The Air (Prevention and Control of Pollution) Act, 1981

THE AIR (PREVENTION AND  CONTROL OF POLLUTION)1 
ACT, 19812

(Act No. 14 of 1981)

[29 March, 1981]

An Act to provide for the prevention, control and abatement of air pollution, 
for the establishment, with a view to carrying out the aforesaid purposes, of 

Boards, for conferring on and assigning to such Boards powers and 
functions relating thereto and for matters connecting therewith

Whereas decisions were taken at the United Nations Conference on the Human Environment held 
in Stockholm in June, 1972, in which India participated, to take appropriate steps for the preservation of the 
natural resources of the earth which, among other things, include the preservation of the quality of air and 
control of air pollution:
        And whereas it is considered necessary to implement the decisions   aforesaid in so 
far as they relate to the preservation of the quality of air and control of air pollution.

COMMENT

Preamble – It is established law that preamble discloses the primary intention of the statute but does not 
override the express provisions of the statute.3

STATEMENT OF OBJECTS AND REASONS3

1. With the increasing industrialization and the tendency of the majority of industries to congregate in 
area which are already heavily industrialized, the problem of air pollution has begun to be felt in the 
country.  The  problem is  more  acute  in  those  heavily  industrialised  areas  which  are  also  densely 
populated.  Short-term  studies  conducted  by  the  National  Environmental  Engineering  Research 
Institute, Nagpur, have confirmed that the cities of Calcutta, Bombay, Delhi, etc. are facing the impact 
of air pollution on a steadily increasing level.

2. The presence in air, beyond certain limits, of various pollutants discharged through industrial emission 
and  from  certain  human  activities  connected  with  traffic,  heating,  use  of  domestic  fuel,  refuse, 
incinerations, etc, has a detrimental effect on the health of the people as also on animal life, vegetation 
and property. 

3. In the United Nations Conference on the Human Environment held in Stockholm in June, 1972 in 
which India participated,  decisions were taken to take appropriate steps for the preservation of the 
natural resources of the earth which, among other things, include the preservation of the quality of air 
and control of air pollution. The government has decided to implement these decisions of the said 
Conference in so far as they relate to the preservation of the quality of air and control of air pollution.

4. It is felt that there should be an integrated approach for tackling the environmental problems relating to 
pollution. It  is, therefore, proposed that the Central Board for the Prevention and Control of Water 
Pollution  constituted  under  the  Water  (Prevention  and  Control  of  Pollution)  Act,  1974,  will  also 
perform the functions of the Central Board for the Prevention and Control of Air Pollution and of a 
State Board for the Prevention and Control of Air Pollution in the Union Territories. It is also proposed 
that the State Boards constituted under that Act, separate State Boards for the Preservation and Control 
of Air Pollution are proposed to be constituted.



STATEMENT OF OBJECTS AND REASONS OF ACT 47 OF 1987

1. The  Air  (Prevention  and  Control  of  Pollution)  Act,  1981,  was  enacted  under  Art.  253  of  the 
Constitution  to  implement  the  decisions  taken  at  the  United  Nations  Conference  on  Human 
Environment held at Stockholm in June 1972, in which India participated.

2. The Air Act is implemented by the Central and State Governments and the Central and State Boards. 
Over  the  past  few  years,  the  implementing  agencies  have  experienced  some  administrative  and 
practical difficulties in effectively implementing the provisions of this Act and has brought these to the 
notice  of  Government.  The  ways  and  means  to  remove  these  difficulties  have  been  thoroughly 
examined in consultation with the concerned Central Government departments, the State Government 
and the Central and State Boards. Taking into account the views expressed. Government have decided 
to make certain amendments to the Act in order to remove such difficulties.

3. The Bill, inter alia, seeks to make the following amendments in the Act, namely:
(i) The Central  Board  is  proposed to be empowered to exercise  the powers  and perform the 

functions of a State Board in specific situations, particularly when a State Board fails to act 
and comply with the directions issued by the Central Board. It is also proposed to recover the 
cost of the exercise of such powers and the performance of such functions by the Central 
Board from the person or persons concerned, if the State Board is empowered to recover such 
costs under the provisions of the Act, as arrears of land revenue or of public demand.

(ii) It  is  proposed to  make it  obligatory on the part  of  a  person to obtain the consent  of  the 
relevant Board even while establishing an industrial plant.

(iii) It is proposed to empower the Boards to obtain information regarding discharge of pollution 
in excess of specified standards  by the industries operating even outside the air pollution 
control areas.

(iv) In order to prevent effectively air pollution, the punishments provided in the Act are proposed 
to be made stricter.

(v) In order to elicit public co-operation, it is proposed that any person should be able to complain 
to the Courts regarding violations of the provisions of the Act after giving a notice of sixty 
days to the Board or the officer authorized in this behalf.

(vi) It is proposed to omit the Schedule to the Act so as to make the Act applicable to all the 
industries causing air pollution.

(vii) It is proposed to empower the Boards to give directions to any person, officer or authority 
including the power to direct closure or regulation of offending establishment or stoppage or 
regulation of supply of services such as, water and electricity.

(viii) It is proposed to empower the Boards to approach courts to pass orders restraining any person 
from causing air pollution.

(ix) For increasing the financial resources of the Boards, it is proposed to empower them to raise 
money by means of obtaining loans and issue of debentures.

COMMENT

Statement of objects and Reasons – Use of – The law is well settled, in Narain Khamman v. Parguman 
Kumar Jain, 1 the Supreme Court held that though the Statement of Objects and Reasons accompanying a 
legislative Bill could not used to determine the true meaning and effect of the substantive provisions of a 
statute,  it  was  permissible  to  refer  to  the  same for  the  purpose  of  understanding  the background,  the 
antecedent state of affairs, the surrounding circumstances in relation to the statute, and the evil which the 
statute sought to remedy.2

4. The Bill seeks to achieve the above objects.
Be  it  enacted  by  Parliament  in  the  Thirty-second  Year  of  the  Republic  of  India  as 
follows:



CHAPTER I
PRELIMINARY

1. Short title, extent and commencement. – 

(1) This Act may be called the Air (Prevention and Control of Pollution) Act, 1981.
(2) It extends to the whole of India.
(3) It shall come into force on such date3 as the Central Government may, by notification in the 
Official Gazette, appoint.

2. Definitions. – In this Act, unless the context otherwise requires, -
(a) “air pollutant” means any solid, liquid or gaseous substance 4[(including noise)] present 

in the atmosphere in such concentration as may be or tend to be injurious to human 
beings or other living creatures or plants or property or environment;

(b) “air pollution” means the presence in the atmosphere of any air pollutant;
(c) “approved  appliance”  means  any  equipment  or  gadget  used  for  the  burning  of  any 

combustible material or for generating or consuming any fume, gas or particulate matter 
and approved by the State Board for the purposes of this Act;

(d) “approved fuel” means any fuel approved by the State Board for the purpose of this Act;
(e) “automobile” means any vehicle powered either by internal combustion engine or by any 

method of generating power to drive such vehicle by burning fuel;
(f) “Board” means the Central Board or a State Board.
(g) “Central Board” means the [Central Pollution Control Board] constituted under Sec. 3 of 

the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974);
(h) “chimney” includes any structure with an opening or outlet from or through which any air 

pollutant may be emitted;
(i) “control  equipment” means any apparatus, device,  equipment or system to control the 

quality and manner of emission of any air pollutant and includes any device used for 
securing the efficient operation of any industrial plant;

(j) “emission” means any solid or liquid or gaseous substance coming out of any chimney, 
duct or flue or any other outlet;

(k) “industrial plant” means any plant used for any industrial or trade purposes and emitting 
any air pollutant into the atmosphere;

(l) “member” means a member of the Central Board or a State Board, as the case may be, 
and includes the Chairman thereof;

(m)  “occupier”, in relation to any factory or premises, means the person who has control over 
the affairs of the factory or the premises, and includes, in relation to any substance, the 
person in possession of the substance;

(n) “prescribed” means prescribed by rules made under this Act by the Central Government 
or, as the case may be, the State Government;

(o) “State Board” means:
(i) in relation to a State in which the Water (Prevention and Control of Pollution) 
Act, 1974), is in force and the State Government has constituted for that state a [State 
Pollution Control Board] under sec. 4 of that Act, the said State Board; and

(ii) in relation to any other State, the State Board for the Prevention and Control of Air 
Pollution constituted by the State Government under Sec. 5 of this Act.

COMMENTS

General principle of construction – There is one principle on which there is complete unanimity of all the 
Courts  in  the  world  and  this  is  that  where  the  words  or  the language  used  in  a  statute  are  clear  and 
cloudless, plain, simple and explicit, unclouded and unobscured, intelligible and pointed so as to admit of 
no ambiguity,  vagueness,  uncertainty or equivocation, there is absolutely no room for deriving support 
from external aids. In such cases, the statute should be interpreted on the face of the language itself without 
adding, subtracting or omitting words therefrom. Where the language is plain, and unambiguous the Court 



is not entitled to go behind the language so as to add or supply omissions and thus play the role of a 
political reformer or of a wise counsel to the Legislature. 

Definition  –  Interpretation  of  – While  interpreting  a  definition,  it  has  to  be  borne  in  mind  that  the 
interpretation placed on it should not only be not repugnant to the context, it should also be such as would 
aid the achievement of the purpose which is sought to be served by the Act. A construction which would 
defeat or was likely to defeat the purpose of the Act has to be ignored and not accepted.

CHAPTER II

CENTRAL AND STATE BOARDS FOR THE PREVENTION AND 
CONTROL OF AIR POLLUTION

[3. Central Pollution Control Board – The Central Pollution Control Board constituted under Sec. 3 of the 
Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974), shall, without prejudice to the exercise 
and performance of its powers and functions under that Act, exercise the powers and perform the functions 
of the Central Pollution Control Board for the prevention and control of air pollution under this Act.

COMMENT

This  section relates  to  the  constitution of  Central  Pollution Board.  It  is  similar  to  the  Board 
constituted under Sec. 3 of the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974).

4. State Pollution Control Boards constituted under Sec.4 of Act 6 of 1974 to be State Boards under this  
Act. – 

In any State in which the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974), is in 
force and the State Government has constituted for that State a State Pollution Control Board under Sec. 4 
of that Act, such State Board shall be deemed to be the State Board for the Prevention and Control of Air 
Pollution constituted under Sec. 5 of this Act, and accordingly that State Pollution Control Board shall, 
without prejudice to the exercise and performance of its powers and functions under that Act, exercise the 
powers and perform the functions of the State Board for the prevention and control of air pollution under 
this Act.]

5. Constitution of state boards. – 

(1) In any State in which the Water (Prevention and Control of Pollution), Act 1974 (6 of 1974), is not in 
force or that Act is in force but the State Government has not constituted a [State Pollution Control Board] 
under that Act, the State Government shall, with effect from such date as it may, by notification in the 
Official Gazette, appoint, constitute a State Board for the Prevention and Control of Air Pollution under 
such name as may be specified in the notification, to exercise the powers conferred on, and perform the 
functions assigned to that Board under this Act.

(2) A State Board constituted under this Act shall consist of the following members, namely;
(a) a Chairman, being a person having special knowledge or practical experience in respect of matters 

relating to environmental protection to be nominated by the State Government:
provided that the Chairman may be either whole-time or part-time as the State Government may 
think fit;

(b) such  number  of  officials,  not  exceeding  five,  as  the  State  Government  may think  fit,  to  be 
nominated by the State Government to represent that Government;

(c) such  number  of  persons,  not  exceeding  five,  as  the  State  Government  may  think  fit,  to  be 
nominated  by  the  State  Government  from  amongst  the  members  of  the  local  authorities 
functioning within the State;



(d) such number of non-officials, not exceeding three, as the State Government may think fit to be 
nominated by the State Government to represent the interests of agriculture, fishery or industry or 
trade  or  labour  or  any  other  interest,  which  in  the  opinion  of  that  Government,  ought  to  be 
represented;

(e) two persons to represent the companies or corporations owned, controlled or managed by the State 
Government, to be nominated by that Government;

(f) a full-time member-secretary having such qualifications, knowledge and experience of scientific, 
engineering or management aspects of pollution control as may be prescribed, to be appointed by 
the State Government:]

Provided that the State Government shall ensure that not less than two of the members are persons 
having special knowledge or practical experience in respect of matters relating to the improvement of the 
quality of air or the prevention, control or abatement of air pollution.

(3) Every State Board constituted under this Act shall be a body corporate with the name 
specified by the State Government in the notification issued under sub-section (1), having 
perpetual succession and a common seal with power, subject to the provisions of this Act, 
to acquire and dispose of property and to contract, and may be the said name sue or be 
sued.

COMMENTS

Section 5 of the Air Pollution Act, 1981, relates to the Constitution of State Boards.

Wrong observation against U.P. Pollution Board and District Administration, whether could be justified 
– It appears that the Chief Judicial Magistrate has virtually dismissed the petition by not taking any action. 
He has made a wrong observation, joined the attention of the State Government, U.P. Pollution Board and 
District Administration. Their rights could be controlled by the Air Pollution Act, 1981, issuing a direction 
that they may take action under these provisions of law. Paragraph 12 of the Order will, therefore, stand 
quashed and there will be no direction to the U.P. Government or U.P. Pollution board or the District 
Administration in the matter and the application which the learned chief Judicial Magistrate, concerned was 
considering shall be deemed to have been dismissed.

6.  Central  board  to  exercise  the  powers  and perform the  functions  of  a  State  Board  in  the  union  
territories – 

No State Board shall be constituted for a Union Territory and in relation to a Union Territory; the 
Central Board shall exercise the powers and perform the functions of a State Board under this Act for that 
Union Territory:

Provided that in relation to any Union Territory the Central Board may delegate 
all or any of its powers and functions under this section to such person or body of persons 
as the Central Government may specify.

COMMENTS

This section specifically puts the restriction on the constitution of the State Board 
in a Union Territory.
7. Terms and conditions of service of members – 

(1) Save as otherwise provided by or under this Act, a member of a State Board 
constituted under this Act, other than the member-secretary, shall hold office for a term of three 
years from the date on which his nomination is notified in the Official Gazette: Provided that a 



member  shall,  notwithstanding  the  expiration  of  his  term,  continue  to  hold  office  until  his 
successor enters upon his office.
(2) The terms of office of a member of a State Board constituted under this Act 
and nominated under CI. (b) or CI. (e) of sub-section (2) of Sec. 5 shall come to an end as soon as 
he ceases to hold the office under the State Government or, as the case may be, the company or 
corporation owned, controlled or managed by the State Government, by virtue of which he was 
nominated.
(3) A member of a State Board constituted under this Act, other than the member-
secretary, may at any time resign his office by writing under his hand addressed –

(a) in the case of the Chairman, to the State Government; and
(b) in  any  other  case,  to  the  Chairman  of  the  State  Board  and  the  seat  of  the 
Chairman or such other member shall thereupon become vacant.

(4) A member of a State Board constituted under this Act, other than the member-
secretary, shall be deemed to have vacated his seat, if he is absent without reason, sufficient in the 
opinion of the State Board, from three consecutive meetings of the State Board or where he is 
nominated under  CI.  (c)  of  sub-section (2)  of  Sec.  5,  he ceases  to  be a member of the local 
authority and such vacation of seat shall, in either case, take effect from such date as the State 
Government may, by notification in the Official Gazette, specify.
(5) A casual vacancy in a State Board constituted under this Act shall be filled by 
a fresh nomination and the person nominated to fill the vacancy shall hold office only for the 
remainder of the term for which the member whose place he takes was nominated.
(6) A member of a State Board constituted under this Act shall be eligible for re-
nomination [****]
(7) The other terms and conditions of service of the Chairman and other members 
(except the Member-Secretary) of a State Board constituted under this Act shall be such as may be 
prescribed.

COMMENTS

This section fixes the limit of re-nomination of a member of a State Board, i.e., for two terms only.
Section 7, of the Air Pollution Act, 1981, relates to the vacation of seats by members of the Board.

8. Disqualifications. –

(1) No person shall be a member of a State Board constituted under this Act, who –
(a) is, or at any time has been adjudged insolvent, or
(b) is of unsound mind and has been so declared by a competent Court, or
(c) is,  or  has  been  convicted  of  an  offence  which,  in  the  opinion  of  the  State 
Government, involves moral turpitudes, or
(d) is, or at any time has been convicted of an offence under this Act, or 
(e) has directly or indirectly by himself or by any partner, any share or interest in 
any firm or company carrying on the business of manufacture, sale, or hire of machinery, 
industrial plant, control equipment or any other apparatus for the improvement of the 
quality of air or for the prevention, control or abatement of air pollution, or
(f) is a director or a secretary, manager or other, salaried officer or employee of any 
company  or  firm  having  any  contract  with  the  Board,  or  with  the  Government 
constitution  the  Board  or  with  a  local  authority  in  the  State,  or  with  a  company  or 
corporation owned, controlled or managed by the Government, for the carrying  out of 
programmes for the improvement of the quality of air or for the prevention, control, or 
abatement of air pollution, or
(g) has so abused, in the opinion of the State Government, his position as a member, 
as to render his continuance or the State Board detrimental to the interests of the general 
public. 

(2) The State Government shall,  by order  in writing,  remove any member who is,  or has become, 
subject to any disqualification mentioned in sub-section (1): Provided that no order of removal shall 



be made by the State Government under this section unless the member concerned has been given a 
reasonable opportunity of showing cause against the same.

(3) Notwithstanding anything contained in sub-section (1) of sub-section (6) of Sec. 7, a member who 
has  been  removed  under  this  section  shall  not  be  eligible  to  continue  to  hold  office  until  his 
successor enters upon his office, or, as the case may be, for re-nomination as a member.

COMMENTS

Section 8 of  the Air Pollution Act,  1981, relates  to the disqualification’s  at  members to be a 
appointed in the Board. 

Sub-section (2) embodies the principle of natural justice that the member of the Board before his 
removal on the ground of disqualification must be afforded a reasonable opportunity of being heard.

Proviso – In Abdul Jabar Butt v. State of Jammu and Kashmir, it was held that proviso must be considered 
with relation to the principal matter to which it stands as a proviso.

9. Vacation of seats by members – 

If  a  member  of  a  State  Board  constituted  under  this  Act  becomes  subject  to  any  of  the 
disqualification specified in Sec. 8, his seat shall become vacant.

COMMENT

Section 9 of the Air (Prevention and Control of Pollution) Act, 1981, relates to the vacation of seats by 
members of the Board.

10. Meetings of Board – 

(1) For the purposes of this Act, a Board shall meet at least once in every three 
months and shall observe such rules of procedure in regard to the transaction of business at its 
meetings as may be prescribed Provided that if, in the opinion of the Chairman, any business of an 
urgent nature is to be transacted, he may convene a meeting of the Board at such time as he thinks 
fit for the aforesaid purpose.
(2) Copies of the minutes of the meetings under sub-section (1) shall forwarded to 
the Central Board and to the State Government concerned.

COMMENTS

Section 10 of the Air (Prevention and Control of Pollution) Act, 1981, relates to the meetings of Board.

Section 10 empowers the Chairman to convene the meeting at any time for the purpose of the Act.

11. Constitution of Committees. – 

(1) A board may constitute as many committees consisting wholly of members or partly of members and 
partly of other persons and for such purpose or purposes as it may think fit.

(2) A committee constituted under this section shall meet at such time at such place, and shall observe 
such rules of procedure in regard to the transaction of business at its meetings, as may be prescribed.

(3) The  members  of  a  committee  other  than  the  members  of  the  Board  shall  be  paid  such  fees  and 
allowances, for attending its meetings and for attending to any other work of the Board as may be 
prescribed.

COMMENTS

The committees constituted under this section may consist wholly of members or partly of members and 
partly of other persons.



Section  11  of  the  Air  (Prevention  and  Control  of  Pollution)  Act,  1981,  relates  to  the  constitution  of 
committees. 

12. Temporary association of persons with Board for particular purposes. –

1) A Board may associate, with itself in such manner, and for such purposes, as may be prescribed, any 
person whose assistance or advice it may desire to obtain in performing any of its functions under this 
Act.

2) A person associated with the Board under sub-section (1) for any purpose shall have a right to take part 
in the discussions of the Board relevant to that purpose, but shall not have a right to vote at a meeting 
of the Board and shall not be a member of the Board for any other purpose.

3) A person associated with a Board under sub-section (1) shall  be entitled to receive such fees  and 
allowances as may be prescribed.

COMMENT

Section 12 of the Air Pollution Act, 1981, relates to the temporary association of persons with Board for 
particular purposes.

13. Vacancy in Board not to invalidate acts or proceedings. – 

No act or proceeding of a Board or any committee thereof  shall be called in question on the ground merely 
of the existence of any vacancy in, or any defect in the constitution of, the Board or such committee, as the 
case may be.

COMMENT

Section 13 of the Air Pollution Act, 1981, provides that the vacancy in Board shall not 
invalidate acts or proceedings

14. Member-secretary and officers and other employees of State Boards. – 

(1) The terms and conditions of a service of the member-secretary of a State Board constituted under this 
Act shall be such as may be prescribed.

(2) The member-secretary of a State Board, whether constituted under this Act or not, shall exercise such 
powers and perform such duties as may be prescribed, or as may, from time to time, be delegated to 
him by the State Board or its Chairman. 

(3) Subject to such rules as may be made by the State Government in this behalf, a State Board, whether 
constituted  under  this  Act  or  not,  may appoint  such  officers  and  other  employees  as  it  considers 
necessary for the efficient performance of its functions under this Act.

(4) This method of appointment, the conditions of service and the scales of pay of the officers (other than 
the member-secretary) and other employees of a State Board appointed under sub-section (3) shall be 
such as may be determined by regulations made by the State Board under this Act.

(5) Subject to such conditions as may be prescribed, a State Board constituted under this Act may from 
time to time appoint any qualified person to be a consultant to the Board and pay him such salary and 
allowances or fees, as it thinks fit.

COMMENT

Section 14 of the Air Pollution Act, 1981, relates to the member-secretary and officers 
and other employees of the board. 
15. Delegation of powers – 



A State Board may, by general or special order, delegate to the Chairman or the member-secretary or any 
other officer of the Board subject to such conditions and limitations, if any, as may be specified in the 
order, such of its powers and functions under this Act as it may deem necessary

COMMENT

Section  15  of  the  Air  Pollution  Act,  1981,  relates  to  the  delegation  of  powers,  Section  23  of  the 
Environment (Protection) Act, 1986, provides the same power.

Deemed – Meaning of – The word “deemed” always means to be treated “as if it were.”

CHAPTER III

POWERS AND FUNCTIONS OF BOARDS

16. Functions of Central Board – 

(1) Subject to the provisions of this Act, and without prejudice to the performance of its functions under 
the Water (Prevention and Control  of Pollution) Act,  1974 (6 of 1974),  the main functions of the 
Central Board shall be to improve the quality of air and to prevent, control or abate air pollution in the 
country.

(2)  In particular and without prejudice to the generality of the foregoing functions, the Central Board may 
(a) advise the Central Government on any matter concerning the improvement of the quality of air 

and the prevention, control or abatement of air pollution;
(b) plan and cause to be executed a nation-wide programme for the prevention, control or abatement 

of air pollution; 
(c) co-ordination the activities of the State Board and resolve disputes among them;
(d) provide technical assistance and guidance to the State Boards, carry out and sponsor investigations 

and research relating to problems of air pollution and prevention,  control  or abatement  of  air 
pollution;

(dd) perform such of the functions of any State Board as may be specified in an order made under sub-
section (2) of Sec. 18;
(e) plan and organize the training of person engaged or to engaged in programmes for the prevention, 

control  or abatement  of air  pollution on such terms and conditions as the Central  Board may 
specify;

(f) organize through mass media a comprehensive programme regarding the prevention, control or 
abatement of air pollution; 

(g) collect, compile and publish technical and statistical data relating to air pollution and the measures 
devised for its effective prevention, control or abatement and prepare manuals, codes or guides 
relating to prevention, control or abatement of air pollution; 

(h) lay down standards for the quality of air;
(i) collect and disseminate information in respect of matters relating to air pollution;
(j) perform such other function as may be prescribed.

(3) The Central Board may establish or recognize a laboratory or laboratories to enable the Central Board 
to perform its functions under this section efficiently.

(4) The Central Board may -
(a) delegate  any of  its  functions  under  this  Act  generally  or  specially  to  any of  the Committees 

appointed by it;
(b) do  such  other  things  and  perform  such  other  acts  as  it  may  think  necessary  for  the  proper 

discharge of its functions and generally for the purpose of carrying into effect the purposes of this 
Act.



COMMENTS

Section 16 of the Air Pollution Act relates to the functions of Central Board. 
Sub-section (4) empowers the Central Board to delegate any of its functions to any of the 
committees appointed by it.

17. Functions of State Boards – 
(1) Subject to the provisions of this Act, and without prejudice to the performance of its functions, if any, 

under the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974), the functions of a State 
Board shall be: -

(a) to plan a comprehensive programme for the prevention, control or abatement of air pollution and 
to secure the execution thereof;

(b) to advise the State Government on any matter concerning the prevention, control or abatement of 
air pollution;

(c) to collect and disseminate information relating to air pollution;
(d) to  collaborate  with the  Central  Board  in  organizing  the  training of  persons  engaged  or  to  be 

engaged  in  programmes  relating  to  prevention,  control  or  abatement  of  air  pollution  and  to 
organize mass-education programme relating thereto;

(e) to  inspect,  at  all  reasonable  times,  any  control  equipment,  industrial  plant  or  manufacturing 
process and to give, by order, such directions to such persons as it may consider necessary to take 
steps for the prevention, control or abatement of air pollution;

(f) to inspect air pollution control areas to such intervals as it may think necessary, assess the quality 
of air therein and take steps for the prevention, control or abatement of air pollution in such areas;

(g) to lay down, in consultation with the Central Board and having regard to the standards for the 
quality of air laid down by the Central Board, standards for the quality of air laid down by the 
Central Board, standards for emission of air pollutants into the atmosphere from industrial plants 
and automobiles or  for the discharge  of any air pollutant  into the atmosphere from any other 
source whatsoever not being a ship or an aircraft;
Provided that different standards for emission may be laid down under this clause for different 
industrial plants having regard to the quality and composition of emission of air pollutions into the 
atmosphere from such industrial plants;

(h) to advise the State Government with respect  to the suitability of any premises or location for 
carrying or any industry which is likely to cause air pollution;

(i) to perform such other functions as may be prescribed or as may, from time to time, be entrusted to 
it by the Central Board or the State Government;

(j) to do such other things and to perform such other acts as it may think necessary for the proper 
discharge of its functions and generally for the purpose of carrying into effect the purpose of this 
Act. 

(2) A State Board may establish or recognize a laboratory or laboratories to enable the State Board to 
perform its functions under this section efficiently.

COMMENT

Section 17 of the Air Pollution Act relates to the functions of State Board.

No noise pollution in using the horn-type loudspeakers. – 
The final report filed by the Kerala State Pollution Control Board was very specific to Guruvayur and was 
based on filed observations. The use of horn-type loudspeaker is preferable for public announcement and 
speeches, especially in open areas, for the following reasons:
A cone-type loudspeaker (otherwise known as box-type loudspeaker) is able to faithfully reproduce sound 
in a very wide range of frequencies. In other words it can reproduce very shrill (high frequency) to very 
high bass (low frequency) sounds. The efficiency of a horn-type loudspeakers on the other hand, is limited 
to human speech frequencies.  Therefore a horn-type loudspeakers is more preferable for human speech 
amplification.



Box-type loudspeakers are not suitable for prolonged use in the open as they do not withstand the vagaries 
of nature. The horn-type loudspeaker is  are rugged in construction are therefore better suited for outside 
use. Horn-type loudspeaker is more directional and therefore the sound can be better focused towards the 
intended audience. Cone/Box-type loudspeakers are suitable for use in areas with as music/conference halls 
or theatres where the audibility can be restricted to a confined area or audience and where we requires 
faithful reproduction of a wide range of frequencies: -
The only restriction stated is that these loudspeakers should be maintained at a height of 3 
metres above the ground level.  Thus from the above the ground level.  Thus from the 
above reports,  it  is  clear  that  there  will  be no noise pollution  in  using the horn-type 
loudspeakers  so  far  as  Guruvayur  temple  premises  is  concerned.  Therefore,  the 
Guruvayur  Devaswam is  allowed to  use horn-type  amplifiers  in  and around the Sree 
Krishna Temple Premises as required by them. If  any permission is  needed from the 
police authorities, the police authorities are directed to give sanction to the Managing 
Committee to erect the horn-type loudspeakers.

18. Power to give directions. – 

(1) In the performance of its functions under this Act, -
(a) the Central Board shall be bound by such directions in writing as the Central Government may 

give to it; and
(b) every State Board shall be bound by such direction in writing as the Central Board or the State 

Government may give to it:
Provided that where a direction given by the State Government is inconsistent with the direction given by 
the Central Board, the matter shall be referred to the 
Central Government for its decision

(2) Where the Central Government is of the opinion that any State Board has defaulted in complying with 
any directions given by the Central Board under sub-section (1) and as a result of such default a grave 
emergency has arisen and it is necessary or expedient so to do in the public interest, it may, by order, 
direct the Central Board to perform any of the functions of the State Board in relation to such area, for 
such period and for such purposes, as may be specified in the order.

(3) Where the Central Board performs any of the function of the State Board in pursuance of a direction 
under  sub-section  (2),  the  expenses,  if  any,  incurred  by  the  Central  Board  with  respect  to  the 
performance of such functions may, if the State Board is empowered to recover such expenses, be 
recovered by the Central Board with interest (at such reasonable rate as the Central Government may, 
by order, fix) from the date when a demand for such expenses is made until it is paid from the person 
or persons concerned as arrears of land revenue or of public demand.

(4) For the removal of doubts, it is hereby declared that any directions to perform the functions of any 
State Board given under sub-section (2) in respect of any area would not preclude the State Board from 
performing such functions in any other area in the State or any of its other functions in that area. 

COMMENTS

Section 18 of  the Air (Prevention and Control  of Pollution)  Act,  1981, relates  to the power of giving 
directions. Similar power has been given under Sec. 5 of the Environment (Protection) Act, 1986 and Sec. 
18 of the Water (Prevention and Control of Pollution) Act, 1974.
The word “shall” – meaning of – It has been laid down consistently by the Supreme Court that the mere 
use of the word “shall” by itself in the statute does not make the provisions mandatory, but it is the duty of 
the Courts of the justice to try to get at the real intention of the Legislature. In each case, one has to look to 
the  subject-matter,  consider  the  importance  of  the  provisions  and  decide  whether  the  enactment  is 
mandatory or only directory.



Interpretation of the word “shall” – The word “shall” cannot be interpreted as “may”. Where the situation 
and the context warrants it, the word “shall” used in a section or rule of a statute has to be construed as 
“may”.  The power of the Court, however,  to ascertain the real intention of the Legislature by carefully 
examining the scope of the statute, to find out whether the provision is directory or mandatory remains 
unimpaired.

CHAPTER IV

PREVENTION AND CONTROL OF AIR POLLUTION

19. Power to declare air pollution control areas. – 

(1) The State Government may,  after consultation with the State Board, by notification in the Official 
Gazette,  declare  in  such  manner  as  may be  prescribed,  any  area  or  areas  within  the  State  as  air 
pollution control area or areas for the purposes of this Act.

(2) The State Government may,  after consultation with the State Board, by notification in the Official 
Gazette, -
(a) after any air pollution control area whether by way of extension or reduction;
(b) declare a new air pollution control area in which may be merged one or more existing air pollution 

control areas of any part or parts thereof.
(3) If the State Government, after consultation with the State Board, is of opinion that the use of any fuel, 

other than an approved fuel, in any air pollution control area or part thereof, may cause or is likely to 
cause air pollution, it may, by notification in the Official Gazette, prohibit the use of such fuel in such 
area or part thereof with effect from such date (being not less months from the date of publication of 
the notification) as may be specified in the notification.

(4) The State Government may,  after consultation with the State Board, by notification in the Official 
Gazette, direct that with effect from such date as may be specified therein, no appliance, other than an 
approved appliance, shall be used in the premises situated in an air pollution control area provided that 
different dates may be specified for different parts of an air pollution control area or for the use of 
different appliances.

(5) If the State Government after consultation with the State Board, is of opinion that the burning of any 
material (not being fuel) in any air pollution control area or part thereof may cause or is likely to cause 
air pollution, it may, by notification in the Official Gazette, prohibit the burning of such material in 
such area or part thereof.

COMMENTS

Section 19 of the Air Pollution Act, 1981, relates to the applicability of the Act to certain areas.
Sub-section (5) empowers the State Government after consultation with the state Board to prohibit the 
burning of any material (not being fuel) in any air pollution control area or part thereof, which may cause 
or likely to cause air pollution.

20. Power to give instructions for ensuring standards for emission from automobiles – 

With a view to ensuring that the standards for emission of air pollutions from automobiles laid down by the 
State Board under CI. (g) of sub-section (1) of Sec. 17 are complied with, the State Government shall,  in 
consultation with the State Board, give such instructions as may be deemed necessary to the concerned 
authority in charge of registration of motor vehicles under the Motor Vehicles Act (4 of 1939) and such 
authority shall, notwithstanding anything contained in that Act or the rules made thereunder be bound to 
comply with such instructions.

21. Restrictions on use of certain industrial plants. – 



(1) Subject to the provisions of this section, no person shall, without the previous consent of the State 
Board, establish or operate any industrial plant in an air pollution control area:

Provided that a person operating any industrial plant in any air pollution 
control area immediately before the commencement of Sec. 9 of the Air 

(Prevention and Control of Pollution) Amendment Act, 1987, for which no 
consent was necessary prior to such commencement, may continue to do so 
for a period of three months from such commencement or, if he has made an 
application for such consent within the said period of three months, till the 

disposal of such application.

(2) An application for consent of the State Board under sub-section (1) shall be accompanied by such fees 
as may be prescribed and shall be made in the prescribed form and shall contain the particulars of the 
industrial plant and such other particulars as may be prescribed:

Provided that where any person, immediately before the declaration not any 
area as an air pollution control area, operates in such area any industrial  
plant. Such person shall make the application under this sub-section within 

such period (being not less than three months from the date of such 
declaration) as may be prescribed and where such person makes such 

application, he shall be deemed to be operating such industrial plant with 
the consent of the State Board until the consent applied for has been 

refused.

(3) The State Board may make such inquiry as it may deem fit in respect of the application for consent 
referred to in sub-section (1) and in making any such inquiry, shall follow such procedure as may be 
prescribed.

(4) Within a period of four months after the receipt of the application for consent referred to in sub-section 
(1), the State Board shall, by order in writing, [and for reasons to be recorded in the order, grant the 
consent applied for subject to such conditions and for such period as may be specified in the order, or 
refuse such consent:] Provided that it shall be open to the State Board to cancel such consent before the 
expiry  of  the  period  for  which  it  is   granted  or  refused  further  consent  after  such  expiry  if  the 
conditions subject to which such consent as has been granted are not fulfilled: Provided further that 
before canceling a consent or refusing a further consent under the first proviso, reasonable opportunity 
of being heard shall be given to the person concerned.

(5) Every  person  to  whom consent  has  been  granted  by the  State  Board  under  sub-section  (4),  shall 
comply with the following conditions, namely:
(i) the control equipment of such specifications as the State Board may approve in this behalf 

shall be installed and operated in the premises where the industry in carried on or proposed to 
be carried on:

(ii) the existing control equipment, it  any,  shall be altered or replaced in accordance with the 
directions of the State Board; 

(iii) the control  equipment referred to in CI.  (i)  or CI.  (ii)  shall  be kept at  all  times in goods 
running conditions;

(iv) chimney, wherever necessary, of such specifications as the State Board may approve in this 
behalf shall be erected or re-erected in such premises;

(v) such other conditions as the State Board may specify in this behalf; and 
(vi) the conditions referred to in CIs.(i), (ii), and (iv) shall be complied with within such period as 

the State Board may specify in this behalf:



Provided that in the case of a person operating any industrial plant in an air pollution control area 
immediately before the date of declaration of such area as an air pollution control  area,  the period so 
specified shall not be less than six months:

Provided further that –

(a) after the installation of any control equipment in accordance with the specifications under CI. (i) 
or,

(b) after the alteration or replacement of any control equipment in accordance with the directions of 
the State Board under CI. (ii), or

(c) after the alteration or re-erection of any chimney under CI. (iv), no control equipment of chimney 
shall be altered or replaced or, as the case may be, erected or re-erected except with the previous 
approval of the State Board.

(6) If due to any technological improvement or otherwise the State Board is of opinion that all or any of 
the conditions referred to in sub-section (5) require or requires variation (including the change of any 
control equipment either in whole or in part,) the State Board shall, after giving the person to whom 
consent  has  been  granted   an opportunity  of  being  heard,  vary all  or  any of  such conditions  and 
thereupon such person shall be bound to comply with the conditions and thereupon such person shall 
be bound to comply with the conditions as so varied.

(7) Where a person to whom consent has been granted by the State Board under sub-section (4) transfers 
his interest in the industry to any other person, such consent shall be deemed to have been granted to 
such other person and he shall be bound to comply with all the conditions subject to which it was 
granted as if the consent was granted to him originally.

COMMENTS

Compliance of the Section. – 

So  far  as  compliance  with  the  provisions  of  the  Air  Act,  is  concerned,  the  Central 
Government in consultation with the Central Board issued a notification under Sec. 19 (1) 
of the Air Act, notifying certain areas in the Union Territory of Delhi as air pollution 
control areas. The plants of Shriram are admittedly situated in the air pollution control 
area and the industries carried on by Shriram also fall within the schedule of industries 
specified in the Air Act. Shriram was, therefore, required to apply for a consent order 
from the Central Board under Sec. 21 of the Air Act. A consent order was issued by the 
Central Board on 13th June, 1985 authorizing Shriram to operate their plants in the air 
pollution control area, subject to the conditions set out in the consent order. But, if the 
Central Board finds at any time that the conditions in the consent order relating to the 
power plant are not being complied with and the particular matter emitted by the stacks 
of  the  boilers  more  than  150 mg.  Nm2 it  will  be open to  the  Central  Board  to  take 
whatever action is appropriate under the law.

Natural of offences under sub-sections (1) and (2) – 

It is to be noted that in the instant case the prosecution is not for violation of Sec. 21 (1), 
for operating any industries plant without the previous consent. When an industrial plant 
is operated without the previous consent, in violation of Sec. 21 (1) the offence continues 
so long as the operation continues without consent. The offence comes to an end only 
when operation ceases or when the consent is obtained unlike an offence under Sec. 21 



(1), the offence under Sec. 21 (2) in committed on the expiry of the six months period 
provide under Rules 7 (2) for applying for consent. When the six months period expires, 
the offence is committed once and for all. Failure to apply for consent without the six 
months  period,  is  not  a  continuing  offence.  The  offence  under  Sec.  21  (2)  is  not 
continuing offence.

Scope and object of the Act – 

The Act is designed to prevent, control and abatement of air pollution; the provisions 
relate to preservation of quality of air and control of pollution. The “remedial measures” 
contemplated must be understood as such measures which mitigate the emission of air 
pollutions. Therefore, the harsh step of prohibiting the working of the factory is neither 
warranted nor has it the legal sanctity.

Having considered the facts, circumstances, nature of the allegations and the long 
history of enmity and animosity the Supreme Court is of the opinion that prima facie of 
provisions of the relevant Act, namely the Air Pollution Control Act have been complied 
with and there is no conduct which is attributable to respondent NO. 3 herein leading to 
pollution of air or ecological imbalances calling for interference by the Court. 

Discrimination and violation of Art. 14 of the constitution – 

By  preventing  the  petitioner  from  further  polluting  the  area,  public  interest  being  served  in 
preference to individual interest and as such, there is no question of any discrimination. 

Applicability of principle of natural justice – 

The petitioner shall be given a person hearing regarding grant of consent order under Sec. 21 of 
the Act. Personal hearing would also include local inspection.

Application for given consent order rejected by the Board though manufacturing work going on – Order  

liable to be set aside – 

On the facts and circumstances of the present case it is admitted that the application for consent 
order under sec. 21 has not been allowed, but in view of the order (sic) the High Court, the manufacturing 
works is going on. High Court directed the appropriate authority i.e. Board, to consider the question of 
giving consent order to the petitioners. If they are satisfied that such physical work has been started, then if 
there is no other bar, by any other provisions of law, they are bound to grant such consent. However, if 
there is any provision which is not complied with or if the Board is not satisfied to that effect, the Board 
shall be entitled to reject such application.

Rice milling plant – Is an industrial plant – cannot be operated except with the consent of the State  
Pollution Board – 

In the present case, admittedly the 8th respondent has not obtained any consent from the Pollution 
Board.  Therefore,  the  said  nice  milling  plant  is  an  “industrial  plant”  within  the  meaning  of  the  Air 
(Prevention and Control of Pollution) Act, 1981 and same cannot be operated, except with the consent of 
the State Pollution Board as envisaged under Sec. 21 of the Air (Prevention and Control of Pollution) Act, 
1981.

22. Persons carrying on industry, etc, not to allow emission of air pollutants in excess of the standards 
laid down by state Board – 



No person operating any industrial plant, in any air pollution control area shall discharge or cause 
or permit to be discharged the emission of any air pollution in excess of the standards laid down by the 
State Board under CI. (g) of sub-section (1) of Sec. 17.

COMMENT

Removal of the factory – justification of – It is not the intent of law that the community as a whole or a 
large number of complaints come forward to lodge their complaint or protest against the nuisance, that does 
no require any particular number of complainants. A mere reading of Sec. 133 (1), Cr. P.C., would go to 
show that the jurisdiction of the Sub-Divisional Magistrate can be invoked on receiving a report of police 
officer  or  other  information,  and  on  taking  such  evidence  if  any,  as  he  thinks  fit.  These  words  are 
important. The nuisance to the community at large is not by mere installation of the boiler but also by the 
factory itself. In such circumstances while affirming the order passed by the lower Revisional Court the 
original  order  passé  by  the  Sub-divisional  Magistrate  was  modified  deserves  to  be  restored  and  it  is 
accordingly restored without any modification confirming the same.

22.A. Power of board to make application to Court for restraining persons from causing air pollution – 

(1) Where it is apprehended by a Board that emission of any air pollutant, in excess of the standards laid 
down by the State Board under CI. (g) of sub-section (1) of Sec. 17, is likely to occur by reason of any 
person operating an industrial plant or otherwise in any air pollution control area, the Board may make 
an application to a Court, not inferior to that of a Metropolitan Magistrate or a Judicial Magistrate of 
the first class for restraining such person from emitting such air pollutant.

(2) On receipt of the application under sub-section (1), the Court may make such order as it deems fit.
(3) Where under sub-section (2), the Court makes an order restraining any person from discharging or 

causing or permitting to be discharged the emission of any air pollutant, it may, in that order, -
(a) direct such person to desist from taking such action as is likely to cause emission;
(b) authorize the Board, if the direction under CI. (a) is not complied with by the person to whom 

such direction is issued, to implement the direction in such manner as may be specified by the 
Court.

(4) All expenses incurred by the Board in implementing the directions of the Court under CI. (b) of sub-
section (3) shall be recoverable from the person concerned as arrears of land revenue or of public 
demand.

23. Furnishing of information to State Board and other agencies in certain cases. – 

(1) Where in any area the emission of any air pollutant into the atmosphere in excess of the standards laid 
down by the State Board occurs or is apprehended to occur due to accident or other unforeseen act or 
event, the person in charge of the premises from where such emission occurs or is apprehended to 
occur shall forthwith intimate the fact of such occurrence or the apprehension of such occurrence to the 
State Board and to such authorities or agencies as may be prescribed.

(2) On receipt of information with respect to the fact or the apprehension of any occurrence of the nature 
referred to in sub-section (1), whether through intimation under that sub-section or otherwise, the State 
Board and the authorities as are necessary to mitigate the emission of such air pollutants.

(3) Expenses,  if  any,  incurrent  by  the  State  Board,  authority  or  agency  with  respect  to  the  remedial 
measures referred to in sub-section (2) together with interest (at such reasonable rate,  as the State 
Government may, by order, fix from the date when a demand fro the expenses is made until it is paid, 
may be recovered by that Board, authority or agency from the person concerned, as arrears of land 
revenue, or of public demand.

COMMENTS

Section 23 of the Air Pollution Act, 1981, deals with furnishing of information to State Board and other 
agencies in certain cases. Similar provisions are contained in Sec. 9 of the Environment (Protection) Act. 
1986 and Sec. 31 of the Water Pollution Act, 1974.



Section 23 requires the person in charge of the premises to give information of the emission of any air 
pollutant into the atmosphere in excess of the standards laid down by the State Board, due to accident or 
other unforeseen act or event.

24. Power of entry and inspection – 

(1) Subject to the provisions of this section, any person empowered by a State Board in this behalf shall 

have a right to enter, at all reasonable times with such assistance as he considers necessary, any place –

(a) for the purpose of performing any of the functions of the State Board entrusted to him;
(b) for the purpose of determining whether and if so in what manner, any such functions are to be 

performed or whether any provisions of this Act or the rules made thereunder or nay notice, order, 
direction or authorization  served, made, given or granted under this Act is being or has been 
complied with.

(c) For the purpose of examining and testing any control equipment, industrial plant, record, register, 
document or any other material object or for conducting a search of any place in which he has 
reason to believe that an offence under this Act or the rules made thereunder has been or is being 
or is about to be committed and for seizing any such control equipment, industrial plant, record, 
register, document or other material object if he has reasons to believe that it may furnish evidence 
of the commission of an offence punishable under this Act or the rules made thereunder.

(2) Every person operating any control equipment or any industrial plant, in an air pollution control area 
shall be bound to render all assistance to the person empowered by the State Board under sub-section 
(1) for carrying out the functions under that sub-section and if he fails to do so without any reasonable 
cause or excuse, he shall be guilty of an offence under this Act.

(3) If any person willfully delays or obstructs any person empowered by the State Board under sub-section 
(1) in the discharge of his duties he shall be guilty of an offence under this Act.

(4) The provisions of the Code of Criminal Procedure, 1973 (2 of 1974), or, in relation to the State of 
Jammu  and  Kashmir,  or  any  area  in  which  that  Code  is  not  in  force,  the  provisions  of  any 
corresponding law in force in that State or area, shall, so far as may be, apply to any search or seizure 
under this section as they apply to any search or seizure made under the authority of a warrant issued 
under Sec. 94 of the said Code or, as the case may be, under the corresponding provisions of the said 
law.

COMMENTS

Section 24 of the Air Pollution Act, 1981, relates to the powers of entry and inspection. Similar provision is 
provide under Sec. 10 of the Environment (Protection) Act, 1986 and Section 23 of the Water Pollution 
Act, 1974.

To inspect – meaning of – Oxford Concise Dictionary: The meaning of “search” in the same dictionary is 
given as “look or feel or go over” (person or his face or pockets, receptacle, place, book) for what can be 
found or to find something of which presence is suspected, probe, look for, seek out.

“Seize” – meaning of – The word “seize” means “take possession of contrary to the wishes of the owner of 
property”.  No doubt, in cases where a delivery is effected by an owner of the goods in pursuance of a 
demand under legal right, whether oral or backed by a warrant, it would certainly be a case of seizure but 
the idea that it is the unilateral act of the person seizing is the very essence of the concept.

Search – necessity of recording of reasons – 

In Gopi Kishan Agarwal  v. R.N. Sen, it has been held that the procedure prescribed under Sec. 165 (1) 
(new) of the code of Criminal Procedure for search is not applicable in Sec. 105 (2) of the Customs Act 



inasmuch as  the two sections  are intended to meet  totally different  situations,  recording  of  reasons in 
writing by the Assistant Collector is not necessary.

Respectable – The word “respectable” does not connote any particular status or wealth or anything of that 
kind. Any person is entitled to claim respectability provided he is not disreputable in any way, that is, if he 
is not a thief or a criminal of some kind or a person perhaps of grossly immoral habits. To have given 
evidence in police prosecutions is not sufficient to deprive one of one’s title to respectability. A respectable 
person is one who would be impartial and on whom the owner or occupier of the place searched can prima 
facie rely. Men of modest means or belonging to communities which are not considered to be very high are 
respectable all the same.

Respectable witnesses of locality –

In sunder Singh v. state of Uttar Pardesh,  the  witnesses who were said to have witnessed the seizure were 
two rickshawallas. It was held that assuming that witnesses were not respectable inhabitants of the locality 
the circumstances would not invalidate search. It would effect the weight of the evidence in support of the 
search and recovery.
Search by Magistrate – 

A Magistrate competent to issue a search-warrant is also competent himself to conduct the search. 
Section 165 (new) Cr. P.C., speaks of a search by a police officer. A Magistrate cannot conduct a search 
under this section, he can act only under Sec. 103 (Sec. 105, old), Cr. P.C.

Search of police party and search witnesses. – 

The law lays down that persons of search witnesses and of the police party must be searched before they 
are allowed to enter the house so that the owner would not have reasonable growing for suspecting that one 
of the search party had planted something surreptitiously in the house.

Two or more witnesses – 

If  there are more persons it is better, but the officers generally take two persons. If no such persons are 
available,  some  evidence  to  that  effect  must  be  given  at  the  trial.  The  police  officers  are  competent 
witnesses and their evidence cannot be rejected merely because they are police officers. Where, it is not 
possible to make a search in the presence of the panchas or when property is found without a search being 
made, or where under the law it is not obligatory to make a panchnama, it would be open to the Court to 
convict the accused, if after examining police evidence carefully the Court feels satisfied that it is true. It is 
essential that  panch witnesses should be independent witnesses, unbiased and without being in any way 
under the control of the police. Primarily it is for the Magistrate to come to the conclusion whether a panch 
witness suffers from the infirmity. The Court of Appeal must be vigilant in seeing that convictions are not 
based upon the evidence of panch witnesses whose evidence should not be accepted as suffering from the 
infirmity. It is true that the mere fact that a man has acted on several occasions as a panch witness should 
not be sufficient by itself to lead to the inference that the man is a police agent.

Search of the motor-car – 

A motor-car is not a place within the meaning of Sec. 100, Cr. P.C. (Secs. 102 and 103 of the Code, 1898). 
The provisions relating to searches have therefore no application and in making a search of a motor vehicle. 
Even though the statute does not make it obligatory, the police officers wisely carry out the search, if it is 
possible  for  them to secure  the presence  of  respectable  witnesses,  in  their  presence.  This  is  a  healthy 
practice which leads to clear investigation and is guarantee against the oft-repeated charge against police 
officer of planting articles.

Search by unauthorized person – 

Under  Sec.  105 of  the Customs Act,  1962,  the  Assistant  Collector  of  Customs is  given  the  power  to 
authorize any officer of Customs to search when he has reason to believe that goods liable to confiscation 



are secreted in a particular place. Search by a person authorized under Sec. 108 of the Customs Act is 
illegal.

Search of a women – 

The search of a woman is to be conducted as provided for under Sec. 51 (2) (Sec. 52 old), Cr. P.C., which 
says  whenever it  is necessary to cause a female to be searched, the searches shall be made by another 
female, with strict regard to decency.
If the men had actually left the hall during the search even then it will not be an extraordinary circumstance 
that one or all of them should have seen the currency note being taken out from under the blouse of the 
female accused.

25. Power to obtain information – 

For the purposes of carrying out the functions entrusted to  it, the State Board or any officer empowered by 
it in that behalf may call for nay information (including information regarding the types of are pollutants 
emitted into the atmosphere and the level of the emission of such air pollutions) from the occupier or any 
other person carrying on any industry or operating any control equipment or industrial plant and for the 
purpose of verifying the correctness of such information, the State Board or such officer shall have the right 
to inspect the premises where such industry, control equipment or industrial plant is being carried on or 
operated.

COMMENT

Section 25 of  Air Pollution Act,  1981 relates  to the power to obtain information.  Similar  provision is 
contained in Sec. 20 of the Environment (Protection) Act, 1986. sec. 20 of the Water Pollution Act, 1974.

26. Power to take samples of air or emission and procedure to be followed in connection therewith – 

(1) A State Board or any officer empowered by it in this behalf shall have power to take, for the purpose 
of analysis, samples of air or emission from any chimney,  flue or duct or any other outlet in such 
manner as may be prescribed.

(2) The result of any analysis of a sample of emission taken under sub-section (1) shall not be admissible 
in evidence in any legal proceeding unless the provisions of sub-sections (3) and (4) are complied with.

(3) Subject to the provisions of sub-section (4), when a sample of emission is taken for analysis under sub-
section (1), the person taking the sample shall -
(a) serve on the occupier or his agent, a notice, then and there, in such form as may be prescribed, of 

his intention to have it so analysed;
(b) in the presence of the occupier or his agent, collect a sample of emission for analysis;
(c) cause the sample to be placed in a container or containers which shall be marked and sealed and 

shall also be signed both by the person taking the sample and the occupier or his agent;
(d) send, without delay, the container or containers to the laboratory established or recognized by the 

State Board under Sec. 17 or, if a request in that behalf is made by the occupier or his agent when 
the notice is served on him under CI. (a), to the laboratory established or specified under sub-
section (1) of Sec. 28.

(4) When a sample of  emission is  taken for  analysis  under  sub-section (1)  and the person  taking the 
sample serves on the occupier or his agent, a notice under CI. (a) of sub-section (3) then, -
(a) in a case where the occupier or his agent willfully absents himself, the person taking the sample 

shall collect the sample of emission for analysis to be placed in a container or containers which 
shall be marked and sealed and shall also be signed by the person taking the sample, and

(b) in a case where the occupier or his agent is present at the time of taking the sample but refuses to 
sign the marked and sealed container or containers of the sample of emission as required under CI. 
(c) of sub-section (3), the marked and sealed container or containers shall be signed by the person 
taking the sample, and the container or containers shall be sent without delay by the person taking 
the sample for analysis to the laboratory established or specified under sub-section (1) of Sec. 28 
and such person shall inform the Government Analyst appointed under sub-section (1) of Sec. 29, 



in writing about the willful absence of the occupier or his agent, or, as the case may be, his refusal 
to sign the container or containers.

COMMENTS

Sub-section (3) requires the person taking sample of emission for analysis to serve a notice of his intention 
on the occupier of the premises or his agent than and there.
Section 26 of the Air Pollution Act,  1981 relates  to the power of taking samples and procedure to be 
followed in connection therewith.  Similar  provision has  been  provided in  Sec.  11 of  the Environment 
(Protection) Act, 1986, and Sec, 21 of the Water Pollution Act, 1974.

27. Reports of the result of analysis on samples taken under Sec. 26 –

(1) Where a sample of emission has been sent for analysis to the laboratory 
established or recognized by the State Board, the Board Analyst appointed under sub-section (2) 
of sec. 29 shall analyse the sample and submit a report in the prescribed form of such analysis in 
triplicate to the State Board.
(2) On receipt of the report under sub-section (1), one copy of the report 
shall be sent by the State Board to the occupier or his agent referred to in Sec. 26, another copy 
shall be preserved for production before the Court in case any legal proceedings are taken against 
him and the other copy shall be kept by the State Board.
(3) Where a sample has been sent for analysis under CI. (d) of sub-section 
(3) or sub-section (4) of Sec. 26, to any laboratory mentioned therein, the Government Analyst 
referred  to  in  the  said  sub-section  (4)  shall  analyse  the  sample  and  submit  a  report  in  the 
prescribed form of the result of the analysis in triplicate to the State Board which shall comply 
with the provisions of sub-section (2).
(4) Any cost incurred in getting any sample analysed at the request of the 
occupier or his agent as provided in CI. (d) of sub-section (3) of Sec. 26 or when he willfully 
absents himself or refuses  to sign the marked and sealed container or containers of sample fo 
emission under sub-section (4) of that section, shall be payable by such occupier or his agent and 
in case of default the same shall be recoverable from his as arrears of land revenue or of public 
demand.

COMMENTS

According  to  sub-section  (4)  the  occupier  shall  bear  the  cost  incurred  in  the  sample 
analysed at his request. 
Section 27 of the Air Pollution Act, 1981 deals with report of the analysis on samples 
taken.  Similar  provision is contained in Sec. 15 of the Environment  (Protection)  Act, 
1986 and Sec. 22 of the Water Pollution Act, 1974.

28. State air laboratory – 
(1) The State Government may, by notification in the Official Gazette, -

(a) establish one or more State Air Laboratories; or
(b) specify one or more laboratories or institutes as State Air Laboratories to carry out 

the functions entrusted to the State Air Laboratory under this Act. 
(2)  The  State  Government  may,  after  consultation  with  the  State  Board,  make  rules 

prescribing –
(a) the functions of the State Air Laboratory;



(b) the  procedure  for  the  submission  to  the  said  laboratory  of  samples  of  air  or 
emission for analysis or tests, the form of the Laboratory’s report thereon and the 
fees payable in respect of such report;

(c) such other matters as may be necessary or expedient to enable that laboratory to 
carry out its functions.

COMMENTS

Section 28 relates to State Air Laboratory. Section 12 of the Environment (Protection) 
Act, 1986, deals with “Environmental laboratories” while Sec. 52 of the Water Pollution 
Act, 1974, deals with State Water Laboratory.

29. Analysis – 

(1) The State  Government  may,  by notification  in  the  Official  Gazette,  appoint  such 
persons as it  thinks fit and having the prescribed qualifications to be Government 
Analysts for the purpose of analysis of samples of air or emission sent for analysis to 
any laboratory established or specified under sub-section (1) of Sec. 28.

(2) Without prejudice to the provisions of Sec. 14 the State Board may, by notification in 
the Official Gazette, and without the approval of the State Government, appoint such 
persons as it thinks fit and having the prescribed qualifications to be Board Analysts 
for  the  purpose  of  analysis  of  samples  of  air  or  emission  sent  for  analysis  to 
laboratory established or recognized under Sec. 17.

COMMENT

Section 29 of the Air Pollution Act, 1981 and Sec. 53 of the Water Pollution Act, 1974, 
relate to Analysts. Section 13 of the Environment (Protection) Act, 1986 also deals with 
Government Analysis.

30. Reports of analysts – 

Any document purporting to be a report signed by a Government Analyst or, as the case 
may be, a State Board Analyst may be used as evidence of the facts stated therein in any 
proceedings under this Act.

COMMENTS

This section declares the evidentiary value of the report signed by Government Analyst.
Section  30 of  the  Air  Pollution  Act,  1981 relates  to  report  of  analyst.  The report  of 
Government Analysts has also been provided in Sec. 14 of the Environment (Protection) 
Act, 1986 and Sec. 54 of the Water Pollution Act, 1974.

31. Appeals – 



(1) Any person aggrieved by an order made by the State  Board under this  Act may, 
within thirty days from the date on which the order is communicated to him prefer an 
appeal to such authority (hereinafter  referred to as the Appellate Authority) as the 
State Government ma think fit to constitute. Provided that the Appellate Authority 
may entertain the appeal after  the expiry of the said period of thirty days  if such 
authority is satisfied that the appellant was prevented by sufficient cause from filling 
the appeal in time.

(2) The Appellate Authority shall consist of a single person or three persons as the State 
Government may think fit to be appointed by the State Government.

(3) The form and the manner in which an appeal may be preferred under sub-section (1), 
the fees payable for such appeal and the procedure to be followed by the Appellate 
Authority shall be such as may be prescribed.

(4) On receipt of an appeal preferred under sub-section (1), the appellate Authority shall, 

after giving the appellant and the State Board an opportunity of being heard, dispose 

of the appeal as expeditiously as possible.

COMMENTS

Section  31  of  the  Air  (Prevention  and  Control  of  Pollution)  Act,  1981  provides  for 
appeal.
Under sub-section (1) the Appellate Authority is empowered to entertain the appeal even 
after the expiry of the period of limitation, i.e. thirty days, on the ground of sufficient 
cause for not preferring the appeal in time.

31-A. Power to give directions – 

Notwithstanding anything contained in any other law, but subject to the provisions of this 
Act, and to any directions that the Central Government may give in this behalf, a board 
may, in the exercise of its powers and performance of its functions under this Act, issue 
any directions in writing to any person, officer or authority, shall be bound to copy with 
such directions. 
Explanation – For the avoidance of doubts, it is hereby declared that the power to issue 
directions under this section includes the power to direct –

(a) the closure, prohibition or regulation of any industry, operation or process; or
(b) the stoppage or regulation of supply of electricity, water or any othe rservice.

COMMENTS

Scope – Section 31-A does to give a blanket power to pass any and  or every order as it 
may like to do. In the instant case no record produced before the Court to show how the 
Board  arrived  at  this  finding  before  issuing  Annexure-6.  The  whole  action  of  the 
authority  appears  to  be  arbitrary  and  highhanded  exercise  of  power  accordingly 
impugned order vide annexure quashed.



Necessary instructions and the directions issued by the State Government or the Court  
– Must be complied strictly – 
The  problem of  pollution  In  the  city  of  Gwalior  is  merely  on  account  of  plying  of 
indiscriminate  number  of  vehicles  using  unauthorized   fuel  causing  emitting  smoke 
injurious to health. In the present the case the Madhya Pradesh High Court founds that 
the checked staff was not fully equipped to check the cause of pollution on the spot. The 
necessary compliance of Sec. 20 of the Air Pollution Act and rule 116 of the Central 
Motor Vehicles Rules and not being made. NO efforts are being made for strict observing 
the  provisions  of  Rule  116  of  the  Central  Motor  Vehicles  Rules.  The  necessary 
instructions issued in this regard by the State government are not being strictly complied 
with by the concerned authorities and increase of pollution within the city of Gwalior is 
certainly causing health hazards to its inhabitants. There can be no doubt that the human 
life is more importance than the vehicle and traffic. The law and the rules are framed in 
his respect to ensure environment cleanliness and the authorities are are under statutory 
obligation to maintain the atmosphere pollution free and to take necessary measures in 
this respect as provided under the statues.

CHAPTER V

FUND, ACCOUNTS AND AUDIT

32. Contribution by Central Government. – 

The Central Government may, after due appropriation made by Parliament by law in this 
behalf, make in each financial year such contributions to the State Boards as it may think 
necessary to enable the State Board to perform their functions under this Act.
Provided that nothing in this section shall apply to any [State Pollution Control Board] 
constituted under Sec. 4 of the Water (Prevention and Control of Pollution) Act, 1974(6 
of 1974), which is empowered by that Act to expend money from its fund thereunder also 
for performing its functions, under any law for the time being in force relating to the 
prevention, control, or abatement of air pollution.

COMMENT

Section 32 of the Air Pollution Act,  1981, relates  to the contributions  by the Central 
Government.

33. Fund of Board – 

(1) Every State Board shall have its own fund for the purposes of the is Act and all sums 
which may, from time to time, be paid to it by the Central Government and all other 
receipts  (by way of  contributions,  if  any,  from the  State  Government,  free,  gifts, 
grants, donations, benefactions or otherwise) of that Board shall be carried to the fund 
of the Board and all payments by the Board shall be made therefrom.

(2) Every State Board may expend such sums as it thinks fit for  performing its functions 
under this Act and such sums shall be treated as expenditure payable out of the fund 
of that Board.



(3) Nothing in this section shall apply to any [State Pollution Control Board] constituted 
under Sec. 4 of the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974( 
which is empowered by that Act to expend money from its fund thereunder also for 
performing its functions, under any law for the time being in force relating to the 
prevention, control or abatement of air pollution.

COMMENTS

Section 33 of the Air Pollution Act, 1981, relates to the fund of State Board.
Sub-section  (2)  confers  the  discretion  on  the  State  Board  to  expend  the  sum fit  for 
performing its functions under the Act.

33-A Borrowing powers of Board – 

A board may,  with the consent of, or in accordance with the terms of any general or 
special authority given to it by the Central Government or, as the case may be, the State 
Government,  borrow  money  from  any  source  by  way  of  loans  or  issue  of  bonds, 
debentures or such other instruments, as it may deem fit, for discharging all or any of its 
functions under this Act.

COMMENT

Exercise of power – 
The only interpretation that can be made of Sec. 33-A is that the Board can issue any 
directions in exercise of its of its powers and performances of its functions under the Act 
but such direction must be subject to any directions which the Central Government may 
give in this behalf. Where the Central Government has not given any direction the power 
of  the  State  Board  is  unfettered  and  where  the  Central  Government  has  given  any 
direction, then the direction of the State Board is subject to such direction. 

34. Budget – 
The Central Board, or as the case may be, the State Board shall, during each financial 
year, prepare, in such form and at such time as may be prescribed, a budget in respect of 
the financial year next ensuing showing the estimated receipt and expenditure under this 
Act, and copies thereof shall be forwarded to the Central Government or, as the case may 
be, the State Government.

COMMENT

Section 34 of the Air Pollution Act, 1981, relates to the Budget.

35. Annual report –

(1) The Central Board shall, during each financial year, prepare, in such form as may be 
prescribed, an annual report giving full account of its activities under this Act during 
the  previous  financial  ear  and  copies  thereof  shall  be  forwarded  to  the  Central 



Government within four months from the last date of the previous financial year and 
that  Government  shall  cause  every  such  report  to  be  laid  before  both  Houses  of 
Parliament within nine months of the last date of the previous financial year.

(2) Every State Board shall, during each financial year, prepare, in such form as may be 
prescribed, an annual report giving full account of its activities under this Act during 
the  previous  financial  year  and  copies  thereof  shall  be  forwarded  to  the  State 
Government within four months from the last date of previous financial year and that 
Government  shall  cause every such  report  to  be laid  before  the  State  Legislature 
within a period of nine months from the last date of the previous financial year.

COMMENT

Section 35 of the Air Pollution Act, 1981, relates to the Annual Report.

36. Account and audit – 

(1) Every  Board  shall,  in  relation  to  its  functions  under  this  Act,  maintain  proper 
accounts and other relevant records and prepare an annual statement of accounts in 
such form as may be prescribed by the Central Government or, as the case may be, 
the State Government.

(2) The accounts of the Board shall be audited by an auditor duly qualified to act as an 
auditor of companies under Sec. 226 of the Companies Act, 1956 (1 to 1956).

(3) The said auditor shall be appointed by the Central Government or, as the case may be, 
the State Government on the advice of the Comptroller and Auditor-General of India.

(4) Every auditor appointed to audit the accounts of the Board under this Act shall have 
the right to demand the production of books, accounts, connected vouchers and other 
documents and paper and to inspect any of the offices of the Board.

(5) Every such auditor shall send a copy of his report together with an audited copy of 
accounts to the Central Government or, as the case may be, the State Government.

(6) The Central Government shall,  as soon as may be after the receipt of audit report 
under sub-section (5), cause the same to be laid before both Houses of Parliament.

(7) The State Government shall, as soon as may be after the receipt of the audit report 
under sub-section (5), cause the same to be laid before the State Legislature.

COMMENT

Section 36 of the Air Pollution Act, 1981, relates to “accounts and audit”.

CHAPTER VI

PENALTIES AND PROCEDURE

37. Failure to comply with the provisions of Sec. 21 or Sec. 22 or with the directions  
issued under Sec. 31-A – 
(1) Whoever fails to comply with the provisions of Sec. 21 or Sec. 22 or directions issued 

under  Sec.  31-A,  shall,  in  respect  of  each  such  failure,  be  punishable  with 
imprisonment for a term which shall not be less than one year and six months but 



which may extend to six years and with fine, and in case the failure continues, with an 
additional fine which may extend to five thousand rupees for every day during which 
such failure continues after the conviction for the first such failure.

(2) If the failure referred to in sub-section (1), continues beyond a period of one year 
after the date of conviction, the offender shall be punishable with imprisonment for a 
term which shall not be less than two years but which may extend to sever years and 
with fine.

COMMENT

Section 37 of the Air Pollution Act, 1981, is the penal provision and is based on the same 
footing.  The  provision  relating  to  penalty  has  been  provided  in  Sec.  15  of  the 
Environment (Protection) Act, 1986 and Sec. 41 of the Water Pollution Act, 1974.

38. Penalties for certain acts. – Whoever –

(a) destroys, pulls down, removes, injures or defaces any piller,post of stake fixed in the 
ground or any notice or other matter  put up, inscribed or placed,  by or under the 
authority of the Board, or

(b)  obstructs  any  person  acting  under  the  orders  or  directions  of  the  Board  from 
exercising his powers and performing his functions under this Act, or

(c) damage any works or property belonging to the Board, or 
(d)  fails  to  furnish to  the  Board  or  any officer  or  other  employee  of  the  Board nay 

information required by the Board or such officer or other employee for the purpose 
of this Act, or

(e) fails to intimate the occurrence of the emission of air pollutants into the atmosphere in 
excess of the standards laid down by the State Board or the apprehension of such 
occurrence, to the State Board and other prescribed authorities or agencies as required 
under sub-section (1) of Sec. 23, or

(f)  in  giving  any  information  which  he  is  required  to  give  under  this  Act,  makes  a 
statement which is false in any material particular, or
(h) for the purpose of obtaining any consent under Sec. 21, makes a statement which 
is false in any material particular, shall be punishable with imprisonment for a term 
which may extend to three months or with fine which may extend to [ten thousand 
rupees] or with both.

COMMENT

Section 38 of the Air Pollution Act, 1981, provides penalty for certain acts.

39. Penalty for contravention of certain provisions of this Act – 

Whoever contravenes any of the provisions of this Act or any order or directions issued 
thereunder,  for  which  no  penalty  has  been  elsewhere  provided  in  this  Act,  shall  be 
punishable with imprisonment for a term which may extend to three months or with fine 
which may extend to ten thousand rupees or with both, and in the case of continuing 
contravention,  with an  additional  fine  which may extend to  five  thousand rupees  for 



every day during which such contravention continues after conviction for the first such 
contravention.

40. Offences by companies – 

(1) Where an offence under this Act has been committed by a company, every person 
who,  at  the  time  the  offence  was  committed,  was  directly  in  charge  of,  and  was 
responsible to, the company for the conduct of the business of th company, as well as the 
company, shall be deemed to be guilty of the offence and shall be liable to be proceeded 
against and punished accordingly.

Provided that nothing contained in this sub-section shall render any such person liable to 
any punishment provided in this Act, if he proves that the offence was committed without 
his knowledge or that he exercised all due diligence to prevent the commission of such 
offence.

(2) Notwithstanding anything contained in sub-section (1), where an offence under this 
Act has been committed by a company and it is proved that the offence has been 
committed with consent or connivance of, or is attributable to any neglect on the part 
of any director, manager, secretary or other officer of the company,  such director, 
manager, secretary or other officer shall also be deemed to be guilty of that offence 
and shall be liable to be proceeded against and punished accordingly. 

Explanation – For the purposes of this section, -

(a) “company” means any body corporate, and includes a firm or other association of 
individuals; and

(b) “director” in relation to a firm, means a partner in the firm.

COMMENTS

It is imperative to prove the fact of consent or consent or connivance of, in order to hold 
the director, manager or secretary guilty of offence under the Act.
Section 40 of the Air Pollution Act, 1981, deals with offences by companies.  Similar 
provision is contained in Sec. 16 of the Environment (Protection) Act, 1986 and Sec. 47 
of the Water Pollution Act, 1974.

Whether Chairman and Deputy Chairman can be prosecuted under Sec. 40 for the  
offence committed by the company – 
A bare reading of this provision shows that every person who at the time the offence was 
committed, was directly, in charge of and responsible to the company for the conduct of 
the business of the company, would also be liable to be punished for the said offence. The 
words “directly incharge of” are significant in this regard and exclude persons who are 
indirectly responsible for the business of the company. It is, therefore, possible to hold 
that the Chairman and Deputy Chairman of the Company by virtue of office held by them 



cannot be prosecuted for offences committed by the company as they are not the persons 
directly in charge of, and responsible to the company as they are not the persons directly 
in  charge of,  and  responsible  to  the  company for  the conduct  of  the  business  of  the 
company. It is, therefore, possible to hold that the Chairman and Deputy Chairman of the 
Company by virtue of office held by them cannot be prosecuted for offences committed 
by the company as they are not the persons directly in charge of, and responsible to the 
company for the conduct of its business as required under Sec. 40 of the Act. The broad 
language of Sec. 482 of the Code of Criminal Procedure, would also justify that view and 
suggest that High Court has all the powers to prevent misuse of the process of the Court 
or secure ends of justice. Prosecution of Chairman and Deputy.  Chairman quashed in 
exercise of the powers under Sec. 482 of the Code of Criminal Procedure.
Recourse to Art. 142 not to be taken to inflict punishment – 

A fine is to be imposed upon the person who is found guilty of having contravened any of 
the provisions of the Act. He has to be tried for the specific offence and then on being 
found guilty, he may be punished either by sentencing him to undergo imprisonment for 
the period contemplated by the Act or with fine or with both. But recourse cannot be 
taken to Art. 142 to inflict upon him this punishment.

41. Offences by Government department – 

(1)  Where  an  offence  under  this  Act  has  been  committed  by  any  department  of 
Government, the Head of the Department shall be deemed to be guilty of the offence 
and shall be liable to be proceeded against and punished accordingly: 
Provided  that  nothing  contained  in  this  section  shall  render  such  Head  of  the 
Department liable to any punishment if he proves that the offence was committed 
without  his  knowledge  or  that  he  exercised  all  due  diligence  to  prevent  the 
commission of such offence.

(3) Notwithstanding anything contained in sub-section (1), where an offence under this 
Act has been committed by the Department of Government and it is proved that the 
offence has been committed with the consent or connivance of, or is attributable to 
any neglect on the part of, any officer, other than the Head of the Department, such 
officer shall also be deemed to be guilty of that offence shall be liable to be proceeded 
against and punished accordingly.

COMMENT

Section  41  of  the  Air  (Prevention  and  Control  of  Pollution)  Act,  1981,  deals  with 
offences  by  Government  departments.  It  has  also  been  provided  in  Sec.  17  of  the 
Environment (Protection) Act, 1986 and Sec. 48 of the Water (Prevention and Control of 
Pollution) Act, 1974.

42. Protection of action taken in good faith – 

No suit, prosecution or other legal proceeding shall lie against the Government or any 
officer of the Government or any member or any officer or other employee of the Board 



in respect of anything which is done or intended to be done in good faith in pursuance of 
this Act or the rules made thereunder. 

COMMENTS

Section 42 of the Air (Prevention and Control of Pollution) Act, 1981 and Sec. 59 of the 
Water  (Prevention  and Control  of  Pollution)  Act,  1974 provides  protection  of  action 
taken in good faith. Section n18 of the Environment (Protection) Act, 1986, also provides 
the same protection.
This section seeks to grant exemption to the Government, officers of the Government, the 
members and employees of the Board from the legal proceedings in respect of the actions 
taken in good faith.

43. Cognizance of offences – 

(1) No Court shall take cognizance of any offence under this Act except on a compliant 
made by –
(a) a Board or any officer authorized in this behalf by it; or
(b) any  person  who  has  given  notice  and  of  his  intention  to  make  a  manner 

prescribed, of the alleged offence and of his intention to make a complaint to the 
Board  or  officer  authorized  as  aforesaid,  and  no  Court  inferior  to  that  of  a 
Metropolitan Magistrate or a Jundicial Magistrate of the first class shall try and 
offence punishable under this Act.

(2) Where a complaint has been made under CI. (b) of sub-section (1), the Board shall on 
demand by such person, make available the relevant reports in its possession to that 
person:
Provided that the Board may refuse to make any such report available to such person 
if the same is, in its opinion, against the public interest.

COMMENT

Section 43 of the Air Pollution Act, 1981, deals with cognizance of offences. It is also 
provided in Sec. 19 of the Environment (Protection) Act, 1986 and Sec. 49 of the Water 
Pollution Act, 1974.

44. Members, officers and employees of board to be public servants – 

All  the  members  and  all  officers  and  other  employees  of  a  Board  when  acting  or 
purporting to act  in pursuance of any of the provisions of this Act or the rules made 
thereunder shall be deemed to be public servants within the meaning of Sec. 21 of the 
Indian Penal Code (45 of 1860).

COMMENT

Section 44 of the Air Pollution Act, 1981 and Sec. 50 of the Water Pollution Act, 1974, 
provides that members, officers of the Board to be public servant within the meaning of 
Sec. 21 of the Indian Penal Code, Sec. 21 of the Environment (Protection) Act, 1986 are 
based on the above Act.



45. Repots and returns – 

The Central Board shall, in relation to its functions under this Act, furnish to the Central 
Government and a State Board shall, in relation to its functions under this Act, furnish to 
the State Government and to Central Board such reports, returns, statistics, accounts and 
other information as that Government, or, as the case may be, the Central Board may, 
from time to time, require.
46. Bar of jurisdiction – 

No Civil Court shall have jurisdiction to entertain any suit or proceeding in respect of any 
matter which an Appellate Authority constituted under this Act is empowered by or under 
this Act to determine, and no injunction shall be granted by any Court or other authority 
in respect of any action taken or to be taken in pursuance of any power conferred by or 
under this Act.

COMMENTS

Section 58 of the Water Pollution Act, 1974, Sec. 46 of the Air Pollution Act, 1981 bars 
the jurisdiction of Civil Court relating to pollution cases and Sec. 22 of the Environment 
(Protection) Act, 1986 also bar the jurisdiction of Civil Court.

Scope – Section 46 of the Act simply bars the jurisdiction of Civil Courts to entertain nay 
suit  or  proceeding in respect of any matter  which in Appellate  Authority consitituted 
under the Air (Prevention and Control of Pollution) Act is empowered by or under this 
Act to determine. This bar of jurisdiction does not apply to criminal Courts.

CHAPTER VII
MISCELLANEOUS

47. Power of State Government to supersede State Board – 

(1) If at any time the State Government is of opinion –
(a) that a State Board constituted under this Act has persistently made default in the 

performance of the functions imposed on it by or under this Act, or
(b) that circumstances exist which render it necessary in the public interest so to do, 

the State Government may, by notification in the Official Gazette, supersede the 
State Board for such period, not exceeding six months, as may be specified in the 
notification: 

provided  that  before  issuing  a  notification  under  this  sub-section  for  the  reasons 
mentioned in CI. (a), the State Government shall give a reasonable opportunity to the 
State Board to show cause why it should not be superseded and shall consider the 
explanations and objections, if any, of the State Board.



(2) Upon the publication of a notification under this sub-section (1) superseding the State 
Board:- 
(a) all the members shall, as from the date of supersession, vacate their officers as 

such;
(b) all the powers functions and duties which may, by or under this Act, be exercised, 

performed  or  discharged  by  the  State  Board  shall,  until  the  State  Board  is 
reconstituted  under  sub-section  (3),  be  exercised,  performed  or  discharged  by 
such person or persons as the State Government may direct;

(c) all  property  owned  or  controlled  by the  State  Board  shall,  until  the  Board  is 
reconstituted under sub-section (3), vest in the State Government.

(3) On the expiration of the Period of supersession specified in the notification issued 
under sub-section (1), the State Government may –

(a) extend the period of supersession for such further term, not exceeding six months, 
as it may consider necessary; or

(b) reconstitute the State Board by a fresh nomination or appointment, as the case 
may be, and in such case any person who vacated his office under CI. (a) of sub-
section (2) shall also be eligible for nomination or appointment:

Provided that  the State Government  may at  any time before the expiration of the 
period  of  supersession,  whether  originally  specified  under  sub-section  (1)  or  as 
extended under this sub-section, take action under CI. (b) of this sub-section.

COMMENTS

The total period of supersession of the State Board by the State Government should not 
exceed one year.
Section 47 of the Air Pollution Act, 1981, empowers the State Government to supersede 
the State Board in certain cases.

Power under Sec. 47 (1) (b) of the Air (Prevention and Control of Pollution) Act, 1981  
The power under Sec. 47 (1) (b) of the Air (Prevention and Control of Pollution) Act, 
1981 and Sec. 62 (1) (b) of the Water (Prevention & Control of Pollution) Act, 174, has 
been exercised on the basis of a fact finding inquiry got conducted by the Government 
through one of its officers. Therefore, it is not possible tohold that the Government had 
no material before it on the basis which it could form opinion about the desirability of 
supersending the Board. It cannot also be said that the material on the baosis of which the 
opinion was formed was extraneous or irrelevant. The mere fact that the formation of 
opinion by the Government is based on a report, prepared in the context of the complaints 
received from various quarters cannot give rise to an inference that the impugned action 
is punitive in character. Therefore, the formation of opinion by the Government regarding 
the existence of circumstances necessitating the supersession of the Board is not vitiated 
due to malice in fact of malice in law.

48. Special provision in the case of supersession of the Central Board or the State Board constituted  
under the Water (Prevention and Control of Pollution) Act, 1974 



Where  the  Central  Board  or  any State  Board  constituted  under  the  Water  (Prevention  and  Control  of 
Pollution) Act, 1947 (6 of 1974), is superseded by the Central Government or the State Government as the 
case may be, under that Act, all the powers, functions and duties of the Central Board or such State Board 
under this Act shall be exercised, performed or discharged during the period of such supersession by the 
person or persons, exercising, performing or discharging the powers, functions and duties of the Central 
Board or such State Board under the Water (Prevention and Control of Pollution) Act, 1974 (6 of 1974), 
during such period.

COMMENT

Section 48 of the Air Pollution Act, 1981, empowers the Central Government to supersede the Central 
Board or the State Board in certain cases.

49. Dissolution of State Board constituted under the Act – 

(1) As and when the Water (Prevention and  Control of Pollution) Act, 1974, (6 of 1974), comes into force 
in any State and the State Government constitutes a [State Pollution Control Board] under that Act, the 
State Board constituted by the State Government under this Act shall stand dissolved and the Board 
first-mentioned shall exercise the powers and perform the functions of the Board second-mentioned in 
that State.

(2) On the dissolution of the State Board constituted under this, Act –
(a) all the members shall vacate their offices as such;
(b) all moneys and other property of whatever kind (including the fund of the State Board) owned by, 

or vested in the State Board, immediately before such dissolution, shall stand transferred to and 
vest in the [State Pollution Control Board].

(c) Every  officer  and  other  employees  serving  under  the  State  Board  immediately  before  such 
dissolution shall be transferred to and become an officer or other employee of the [State Pollution 
Control Board] and hold office by the same tenure and at the same terms and conditions of service 
as  he  would  have  held  the  same  if  the  State  Board  constituted  under  this  Act  had  not  been 
dissolved and shall continue to do so unless and until such tenure, remuneration and terms and 
conditions of service are duly altered by the [State Pollution  Control Board]:

Provided that the tenure, remuneration and terms and conditions of service of any such officer or other 
employee  shall  not  be  altered  to  his  disadvantage  without  the  previous  sanction  of  the  State 
Government;
(d) All  liabilities  and  obligations  of  the  State  Board  of  whatever  kind  immediately  before  such 

dissolution, shall be deemed to be the liabilities or, obligations, as the case may be, of the [State 
Pollution Control Board] and any proceeding or cause of action, pending or existing immediately 
before such dissolution by or against the State Board constituted under this Act in relation to such 
liability or obligation may be continued and enforced by or against the Board for the Prevention 
and Control of Water Pollution.

50. Power to amend the Schedule

51. Maintenance of register – 

(1) Every State Board shall maintain a register containing particulars of the persons to 
whom consent has been granted under Sec. 21, the standards for emission laid down 
by it in relation to each such consent and such other particulars as may be prescribed.

(2) The  register  maintained  under  sub-section  (1)  shall  be  open  to  inspection  at  all  
reasonable  hours  by  any  person  interested  in  or  affected  by  such  standards  for  
emission or by any other person authorized by such person in this behalf.

52. Effect of other laws – 



Save  as  otherwise  provided  by  or  under  the  Atomic  Energy  Act,  1962  (33  of  1962),  in  relation  to 
radioactive air pollution the provision of this Act shall have effect notwithstanding anything inconsistent 
therewith contained in any enactment other than this Act.

COMMENTS

Section  52  of  the  Air  Pollution  Act,  1981,  deals  with  overriding  effects  of  the  Act. 
Section 60 of the Water Pollution Act, 1974 and Sec. 24 of the Environment (Protection) 
Act, 1986 also provide the effect of other laws.

No inconsistency with Sec. 133, Cr. P.C., provisions compared – 

In relation to public nuisance by air pollution, the provisions of the Code of Criminal Procedure, 1973, are 
wider in application and more effective and are intended primarily to remove public nuisance and prevent 
its recurrence. The Air (Prevention and Control of Pollution) Act, 1981, is limited in its operation to certain 
areas and to certain kinds of pollutants, and is primarily intended to control on scientific lines, certain types 
of air pollution and penalize the offender. There is no inconsistency relevant provisions of the Code by 
virtue the overriding provision contained in Sec. 52 of the Air Act. The two legislations are complementary 
to each other, and are intended to function side by side in their own parallel channels. They do not even 
overlap. The provisions of Chapter X-B of the Code relating to public nuisance arising out of air pollution 
cannot be taken to be impliedly repealed by the Air (Prevention and Control of Pollution) Act, 1981.

Power of Magistrate not affected – 

The argument that the Pollution Control Board alone has got the right and the sub-Divisional Magistrate 
has  no  power  relating  to  air  and  water  pollution  cannot  be  entertained.  It  is  only  the  Sub-Divisional 
Magistrate that is entitled to take action under Sec. 133, Cr. P.C., in case of removal of nuisance, if any, 
brought to his notice either by a report from any police officer or any other information. The Magistrate is 
certainly empowered to take in evidence any other particulars that is required for passing of the final order 
in  the  same  shape  or  in  the  modified  form,  after  giving  an  opportunity  to  the  party  concerned.  The 
appreciation certificate has to be obtained from the Pollution Control Board and the Board, if the conditions 
are satisfied, will not hesitate in issuing the certificate. The non-production of the certificate strengthens the 
view  taken  by  the  Sub-Divisions  Magistrate  in  passing  the  final  order  under  Sec.  136,  Cr.P.C.  The 
conditions laid down by the Sub-Divisional Magistrate in requiring the party concerned to produce the 
certificate cannot be said to be without jurisdiction or that the Magistrate exceeded his jurisdiction.
Public nuisance described – Sections 133 to 143 of the Code of Criminal Procedure, 1973 (2 of 1974), 
relate to public nuisance as distinguished from private nuisances. Public nuisance is defined in Sec. 268, 
I.P.C. It is clear from a perusal of Sec. 133, Cr. P., that in order to attract its applicability there must be an 
imminent danger to the health or the physical comfort of the community in the locality in which the trade or 
occupation is conducted. Without such imminent danger jurisdiction under this section cannot be exercised. 
The danger should be such that if the Magistrate does not take immediate action and directs the public to 
take ordinary recourses of law, irreparable damage would ensue. In conformity with the principal of natural 
justice  regarding  hearing  before  an  adverse  order,  the  section,  at  the  initial  stage,  contemplates  only 
conditional order.

53. Power of Central Government to make rules. – 

(1) The Central Government may, in consultation with the Central Board by notification in the Official 
Gazette, make rules in respect of the following matters, namely:
(a) the intervals and the time and place at which meetings of the Central Board or any committee 

thereof shall be held and the procedure to be followed at such meetings, including the quorum 
necessary for the transaction of business thereat, under sub-section (1) of sec. 10 and under sub-
section (2) of Sec. 11;

(b) the fees and allowances to be paid to the members of a committee of the Central Board, not being 
members of the Board, under sub-section (3) of Sec. 11;



(c) the manner in which and the purposes for which persons may be associated with the Central Board 
under sub-section (1) of Sec. 12;

(d) the fees and allowances to be paid under sub-section (3) of Sec. 12 to persons associated with the 
Central Board under sub-section (1) of Sec. 12;

(e) the functions to be performed by the Central Board under CI. (f) of sub-section (2) of Sec. 16;
(f) the form in which and the time within which the budget of the Central Board may be prepared and 

forwarded to the Central Government under Sec. 34;
(ff) the form in which the annual report of the Central Board may be prepared under Sec. 35;
(g) the form in which the accounts of the Central Board may be maintained under sub-section (1) of 

Sec. 36.
(2) Every rule made by the Central Government under this Act shall be laid, as soon as may be after it is 

made, before each House of Parliament, while it is in session, for a total period of thirty days which 
may be comprised in one session or in two or more successive sessions, and if, before the expiry of the 
session immediately following the session or the successive sessions aforesaid, both Houses agree in 
making  any modification in the rule or both Houses agree that the rule should be made, the rule shall 
thereafter have effect only in such modified form or be of no effect, as the case may be; so however 
that  any  such  modification  or  annulment  shall  be  without  prejudice  to  the  validity  of  anything 
previously done under that rule.

COMMENTS

Section 53 of the Air Pollution Act, 1981, empowers the Central Government to make rules. Section 63 of 
the Water Pollution Act, 1974 and Sec. 25 of the Environment (Protection) Act, 1986 also provided the 
same powers to Central Government.

Sub-section (2) of this section lays down that every rule shall be laid before the Parliament for approval.
Rules – Power of framing – The general power of framing rule for effectuating the purposes of the Act 
would plainly authorize and sanctify the framing of such a rule.

Rules, whether validly framed – The question whether rules are validly framed to carry out the purposes of 
the Act can be determined on the analysis of the provisions of the Act. 

54. Power of State Government to make rules – 

(1) Subject to the provisions of sub-section (3), the State Government may, by notification in the Official 
Gazette, make rules to carry out the purposes of this Act in respect of matters not failing within the 
purview of Sec. 53.

(2) In particular, and without prejudice to the generality of the foregoing power, such rules may provide 
for all or any of the following matters, namely:
(a) the qualification, knowledge and experience of scientific, engineering or management aspects of 

pollution  control  required  for  appointment  as  Member-Secretary  of  a  State  Board  constituted 
under the Act;

(aa) The terms and conditions of service of the Chairman and other members (other than the Member-
       Secretary) of the State Board constituted under this Act under sub-section (7) of sec. 7;

(b) the intervals and the time and place at which meetings of the State Board or any committee thereof 
shall be held and the procedure to be followed at such meetings, including the quorum necessary 
for the transaction of business thereat, under sub-section (1) of Sec. 10 and under sub-section (2) 
of Sec. 11;

(c) the fees  and allowances  to be paid to the members of a committee of State Board,  not  being 
members of the Board under sub-section (3) of Sec. 11;

(d) the manner in which and the purposes for which persons may be associated with the State Board 
under sub-section (1) of Sec. 12;

(e) the fees and allowances to be paid under sub-section (3) of Sec. 12 to persons associated with the 
State Board under sub-section (1) of sec. 14;



(f) the terms and conditions of service of the member-secretary of a State Board constituted under this 
Act under sub-section (1) of Sec. 14,

(g) the powers and duties to be exercised and discharged by the member-secretary of a State Board 
under sub-section (2) of Sec. 14;

(h) the conditions subject to which a State Board may appoint such officers and other employees as it 
considers necessary for the efficient performance of its functions under sub-section (3) of Sec. 14;

(i) the conditions subject to which a State Board may appoint a Consultant under sub-section (5) of 
Sec. 14;

(j) the functions to be performed by the State Board under CI. (i) of sub-section (1) of sec. 17;
(k) the manner in which any area or areas may be declared as air pollution control area or area under 

sub-section (1) of Sec. 19;
(l) the form of application for the consent of the State Board, the fees payable therefore, the period 

within which such application shall be made and the particulars it may contain, under sub-section 
(2) of Sec. 21;

(m) the procedure to be followed in respect of an inquiry under sub-section (3) of Sec. 21;
(n) the  authorities  or  agencies  to  whom  information  under  sub-section  (1)  of  Sec.  23  shall  be 

furnished;
(o) the manner in which sample of air or emission may be taken under sub-section (1) of Sec. 26;
(p) the form of the notice referred to in sub-section (3) of Sec. 26; 
(q) the form of the report of the State Board Analyst under sub-section (1) of sec. 27;
(r) the form of the report of the Government Analyst under sub-section (3) of sec. 27;
(s) the functions of the State Air Laboratory, the procedure for the submission to the said laboratory 

of samples of air or emission for analysis or tests, the form of Laboratory’s report thereon, the fees 
payable in respect of such report and other matters as may be necessary or expedient to enable that 
laboratory to carry out its functions, under sub-section (2) of Sec. 28;

(t) the qualifications required for Government Analysts under sub-section (1) of Sec. 29;
(u) the qualification s required for State Board Analysts under sub-section (2) of Sec. 29;
(v) the form and the manner in which appeals may be preferred, the fees payable in respect of such 

appeals and the procedure to be followed by the Appellate Authority in disposing of the appeals 
under sub-section (3) of Sec. 31;

(w)  the term in which and the time within which the budget of the State Board may be prepared and 
forwarded to the State Government under Sec. 34;

(ww)the form in which the annual report of the State Board may be prepared under 
Sec. 35;

(x) the form in which the accounts of the State Board may be maintained under sub-section (1) of Sec. 
36;

(xx) the manner in which notice of intention to make a complaint shall be given under Sec. 43;
(y) the particulars which the register maintained under Sec. 51 may contain;
(z) any other matter which has to be, or may be, prescribed.

(3) After the first Constitution of the State Board, no rule with respect to any of the matters referred to in 
sub-section (2) [other than those referred to [in Cl. (aa)] thereof], shall be made, varied, amended or 
repealed without consulting that Board.

COMMENT

Section 64 of the Water Pollution Act, 1974 (6 of 1974), empowers the State Government to make rules:

[THE SCHEDULE]

Omitted by the Air (Prevention and Control of Pollution) Amendment Act, 1987., w.e.f. 1.4.1988.


	COMMENT
	STATEMENT OF OBJECTS AND REASONS OF ACT 47 OF 1987
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	Two or more witnesses – 

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