ஜல்லிகட்டு போட்டிகளுக்கு தடைவிதிக்கக்கோரி பிராணிகள் நல வாரியத்தின் சார்பில் உச்ச நீதிமன்றத்தில் வழக்கு தொடரப்பட்டது.
இந்த வழக்கில் மத்திய, மாநில அரசுகள், ஜல்லிக்கட்டு பேரவை, பிராணிகள் நல வாரியம் சார்பில் வாதங்கள் முன்வைக்கப்பட்டன.
ஜல்லிக்கட்டுப் போட்டி தமிழர்களின் பாரம்பரிய விளையாட்டு என்றும், காளைகள் துன்புறுத்தப்படுவதில்லை என்றும், தமிழக அரசு சார்பில் வாதம் செய்யப்பட்டது. அதேபோல், விதிமுறைகள் அனைத்தும் முறையாக பின்பற்றப்படுகின்றன என்ற வாதமும் முன் வைக்கப்பட்டது.
ஜல்லிக்கட்டு போட்டிகளை கண்காணிக்கவும் காளைகள் துன்புறுத்தப்படுகின்றதா? என்பதை உறுதிப்படுத்தவும், பிராணிகள் நல வாரியத்தின் அதிகாரிகளை நியமிக்கலாம் என மத்திய அரசு சார்பில் வாதிடப்பட்டது.
போட்டிகளின்போது கட்டுப்பாடுகள் கடைபிடிக்கப்படாததால் ஜல்லிக்கட்டிற்கு தடைவிதிக்க வேண்டும் என பிராணிகள் நல வாரியத்தின் சார்பில் கோரிக்கை விடுக்கப்பட்டது.
இந்த வழக்கில், அனைத்துத்தரப்பு வாதங்களும் கடந்த மாதம் 24 ஆம் தேதி முடிவடைந்து தேதி குறிப்பிடாமல் தீர்ப்பு ஒத்தி வைக்கப்பட்டது.
இந்நிலையில், இந்த வழக்கில் இன்று (07.05.2014) தீர்ப்பளித்த உச்ச நீதிமன்றம், பல்வேறு அம்சங்களை சுட்டிக்காட்டி ஜல்லிக்கட்டு போட்டிக்கு தடை விதித்து உத்தரவிட்டுள்ளது.
உச்சநீதி மன்ற தீர்ப்பின் உண்மை நகல், நமது வாசகர்களின் மேலானப் பார்வைக்கு இத்துடன் இணைக்கப்பட்டுள்ளது.
-டாக்டர்.துரைபெஞ்சமின்.
Hon’ble Mr. Justice K.S.Ratha krishnan
Hon’ble Mr. Justice Pinaki Chandra Ghose
உச்சநீதி மன்ற தீர்ப்பின் உண்மை நகல்:
Page1
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 5387 OF 2014
(@ Special Leave Petition (Civil) No.11686 of 2007)
Animal Welfare Board of India …. Appellant
Versus
A. Nagaraja & Ors. …. Respondents
WITH
CIVIL APPEAL NO. 5388 OF 2014
(@ Special Leave Petition (Civil) No.10281 of 2009)
CIVIL APPEAL NOS. 5389-5390 OF 2014
(@ Special Leave Petition (Civil) Nos.18804-18805 of 2009)
CIVIL APPEAL NO. 5391 OF 2014
(@ Special Leave Petition (Civil) No.13199 of 2012)
CIVIL APPEAL NO. 5392 OF 2014
(@ Special Leave Petition (Civil) No.13200 of 2012)
CIVIL APPEAL NO. 5393 OF 2014
(@ Special Leave Petition (Civil) No.4598 of 2013)
CIVIL APPEAL NO. 5394 OF 2014
(@ Special Leave Petition (Civil) No. 12789 of 2014)
(@ SLP(C) CC…4268 of 2013)
WRIT PETITION (C) NO.145 OF 2011
AND
2
T.C. (C) Nos.84, 85, 86, 97, 98 and 127 of 2013
K.S. Radhakrishnan, J.
1. Leave granted.
2. We are, in these cases, concerned with an issue of seminal
importance with regard to the Rights of Animals under our
Constitution, laws, culture, tradition, religion and ethology, which
we have to examine, in connection with the conduct of Jallikattu,
Bullock-cart races etc. in the States of Tamil Nadu and
Maharashtra, with particular reference to the provisions of the
Prevention of Cruelty to Animals Act, 1960 (for short ‘the PCA
Act’), the Tamil Nadu Regulation of Jallikattu Act, 2009 (for short
“TNRJ Act”) and the notification dated 11.7.2011 issued by the
Central Government under Section 22(ii) of the PCA Act.
3. We have two sets of cases here, one set challenges the
Division Bench Judgment of the Madras High Court at Madurai
dated 09.03.2007, filed by the Animal Welfare Board of India (for
short “AWBI”), Writ Petition No. 145 of 2011 filed by an
organisation called PETA, challenging the validity of TNRJ Act and
few other writ petitions transferred from the Madras High Court at
3
Madurai challenging/enforcing the validity of the MoEF Notification
dated 11.07.2011 and another set of cases, like SLP No. 13199 of
2012, challenging the Division Bench judgment of the Bombay
High Court dated 12.03.2012 upholding the MoEF Notification
dated 11.07.2011 and the corrigendum issued by the Government
of Maharashtra dated 24.08.2011 prohibiting all Bullock-cart
races, games, training, exhibition etc. Review Petition No. 57 of
2012 was filed against the judgment of the Bombay High Court,
which was dismissed by the High Court on 26.11.2012, against
which SLP No. 4598 of 2013 has been filed.
4. ABWI, a statutory Board, established under Section 4 of the
PCA Act for the promotion of animal welfare and for the purpose of
protecting the animals from being subjected to unnecessary pain
or suffering has taken up a specific stand that Jallikattu,
Bull/Bullock-cart races etc., as such, conducted in the States of
Tamil Nadu and Maharashtra respectively, inherently violate the
provisions of the PCA Act, particularly, Section 3, Sections 11(1)
(a) & (m) and Section 22 of the PCA Act. ABWI, through its
reports, affidavits and photographs, high-lighted the manner in
which Jallikattu is being conducted, especially in the Southern Part
of the State of Tamil Nadu, and how the bulls involved are
4
physically and mentally tortured for human pleasure and
enjoyment. Details have also been furnished by the 2nd
respondent, in SLP No. 13199 of 2012, along with photographs
explaining how the Bullock-cart race is being conducted in various
parts of the State of Maharashtra and the torture and cruelty meted
out to the bullocks. ABWI has taken up the stand that, by no
stretch of imagination, it can be gainsaid that Jallikattu or Bullockcart
race conducted, as such, has any historical, cultural or
religious significance, either in the State of Tamil Nadu or in the
State of Maharashtra and, even assuming so, the welfare
legislation like PCA Act would supersede the same, being a
Parliamentary legislation. ABWI has also taken up the specific
stand that the bulls involved in Jallikattu, Bullock-cart race etc. are
not “performing animals” within the meaning of Sections 21 and 22
of the PCA Act and that the MoEF, in any view, was justified in
issuing the notification dated 11.7.2011 banning the exhibition of
Bulls or training them as performing animals on accepting the
stand taken by it before this Court. Further, it has also taken up
the stand that the TNRJ Act is repugnant to the provisions of the
PCA Act and the rules made thereunder and State cannot give
effect to it in the absence of the assent of the President under
5
Article 254 of the Constitution of India. Further, ABWI also submits
that the Bulls which are forced to participate in the race are
subjected to considerable pain and suffering, which clearly violates
Section 3 and Sections 11(1)(a) & (m) of the PCA Act read with
Article 51A(g) and Article 21 of the Constitution of India and hence
exhibition or training them as performing animals be completely
banned.
5. Organizers of Jallikattu and Bullock-cart races, individually
and collectively, took up the stand that these events take place at
the end of harvest season (January and February) and sometimes
during temple festivals which is traditionally and closely associated
with village life, especially in the Southern Districts of the State of
Tamil Nadu. Organizers of Bullock-cart races in the State of
Maharashtra also took the stand that the same is going on for the
last more than three hundred years by way of custom and tradition
and that extreme care and protection are being taken not to cause
any injury or pain to the bullocks which participate in the event.
Organizers also submitted that such sport events attract large
number of persons which generates revenue for the State as well
as enjoyment to the participants. Further, it was also stated that
no cruelty is meted out to the performing bulls in Bullock-cart races
6
so as to violate Section 11(1)(a) of the PCA Act and the District
Collector, Police Officials etc. are always on duty to prevent cruelty
on animals. Further, it is also their stand that the sport events can
only be regulated and not completely prohibited and the State of
Tamil Nadu has already enacted the TNRJ Act, which takes care
of the apprehensions expressed by the Board.
6. The State of Tamil Nadu has also taken up the stand that
every effort shall be made to see that bulls are not subjected to
any cruelty so as to violate the provisions of the PCA Act and the
sport event can be regulated as per the provisions of the TNRJ
Act. Further, it was also pointed out that the bulls taking part in the
Jallikattu, Bullock-cart Race etc. are specifically identified, trained,
nourished for the purpose of the said sport event and owners of
Bulls spend considerable money for training, maintenance and
upkeep of the bulls. Further, the State has also taken up the stand
that the Bulls are “performing animals”, and since there is no sale
of tickets in the events conducted, Section 22 will not apply, so
also the notification dated 11.7.2011. State has also taken up the
stand that complete ban on such races would not be in public
interest which is being conducted after harvest season and
sometimes during temple festivals as well. The State of
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Maharashtra has not challenged the judgment of the Bombay High
Court and hence we have to take it that the State is in favour of
banning the exhibition or training of Bulls, whether castrated or
otherwise as performing animals.
7. MoEF, as early as on 2.3.1991, issued a notification under
Section 22 of PCA Act banning training and exhibition of bears,
monkeys, tigers, panthers and dogs, which was challenged by the
Indian Circus Organization before the Delhi High Court but, later, a
corrigendum was issued, whereby dogs were excluded from the
notification. On the direction issued by the Delhi High Court, a
Committee was constituted and, based on its report, a notification
dated 14.10.1998 was issued excluding dogs from its purview, the
legality of the notification was challenged before this Court in N. R.
Nair Others v. Union of India and Others (2001) 6 SCC 84,
which upheld the notification. Later, MoEF issued a fresh
notification dated 11.7.2011, specifically including “Bulls” also, so
as to ban their exhibition or training as performing animals, while
this Court was seized of the matter.
8. MoEF has now abruptly taken up the stand that though “Bull”
has been included in the list of animals, not to be exhibited or
8
trained as “performing animal” vide Notification dated 11.07.2011,
it has been pointed out that, in order to strike a balance and to
safeguard the interest of all stakeholders, including animals, and
keeping in mind the historical, cultural and religious significance of
the event, and with a view to ensure that no unnecessary pain or
suffering is caused to the animals, participants as well as
spectators, the Government proposes to exempt bulls participating
in Jallikattu in the State of Tamil Nadu from the purview of the
Notification dated 11.07.2011, subject to the guidelines, copy of
which has been provided along with the affidavit filed by the
Deputy Secretary, MoEF.
9. Shri Raj Panjwani, learned senior counsel appearing for
AWBI as well as for the Petitioner in Writ Petition No. 145 of 2011,
submitted that the event Jallikattu, even if conducted following the
TNJR Act, would still violate the provisions of PCA Act, especially
Section 11(1)(a). Learned senior counsel submitted that Jallikattu,
as an event, involves causing the Bull pain and suffering and
cannot be free from cruelty and hence falls within the meaning of
Section 11(1)(a). Further, it was pointed out that, during Jallikattu,
the Bulls, it is observed, carry out a flight response, indicating both
fear and pain and suffering. Shri Panjwani made considerable
9
stress on the words “or otherwise” in Section 11(1)(a) and
submitted that any act which inflicts unnecessary pain or suffering
on an animal is prohibited unless it is specifically permitted under
any of the provisions of PCA Act or the rules made thereunder.
Shri Panjwani also submitted that since the event Jallikattu, as
such, is an offence under Section 11(1)(a), through a State Act, it
can neither be permitted nor regulated and hence the State Act is
void under Article 245(1) of the Constitution, in the absence of any
Presidential Assent.
10. Shri Rakesh Dwivedi, learned senior counsel appearing for
State of Tamil Nadu, referring to Section 11(3) of PCA Act,
submitted that the Act does not prohibit the infliction of all forms of
pain or suffering on animals and hence Section 11(1)(a) has to be
read and understood in that context. Referring to Sections 11(1)
(a), (g), (h), (j), (m) and (n), learned senior counsel submitted that
the expression “unnecessary pain or suffering” is not used in those
clauses and hence the events like Jallikattu, which do not cause
that much of pain or suffering on the animal, cannot be completely
prohibited, but could only by regulated.
10
11. Shri Bali, learned senior counsel appearing for the
organizers, highlighted the historical and cultural importance of
Jallikattu event and submitted that, taking into consideration the
nature of the event, the same would not cause any unnecessary
pain or suffering to the Bulls which participate in that event, so as
to violate Section 3 or Section 11(1)(a) of PCA Act. Learned
senior counsel submitted that such events could be regulated
under the regulations framed under TNRJ Act as well as the
additional safeguards taken by the State Government and the
proposed guidelines framed by MoEF. Learned senior counsel
also submitted that the mere fact that there has been some
violation of the regulations would not mean that the entire event be
banned in the State of Tamil Nadu which, according to the learned
senior counsel, will not be in public interest. Learned senior
counsel also referred to the manner in which such events are
being conducted world-over, after taking proper precaution for the
safety of the animals used in those events.
12. We have to examine the various issues raised in these
cases, primarily keeping in mind the welfare and the well-being of
the animals and not from the stand point of the Organizers, Bull
tamers, Bull Racers, spectators, participants or the respective
11
States or the Central Government, since we are dealing with a
welfare legislation of a sentient-being, over which human-beings
have domination and the standard we have to apply in deciding the
issue on hand is the “Species Best Interest”, subject to just
exceptions, out of human necessity.
Bulls –Behavioral ethology
13. Bulls (Bos Indicus) are herbivores, prey by nature adopted to
protest themselves when threatened engaging in a ‘flight
response’, that is run away stimulus, which they find when
threatening. Bulls, in that process, use their horns, legs, or brute
force to protect themselves from threat or harm. Bulls are often
considered to be herd animals. Bulls move in a relaxed manner if
they are within a herd or even with other Bulls. Individual Bull
exhibits immense anxiety if it is sorted away from the herd. Bulls
vocalize when they are forced away from the rest of the herd and
vocalization is an indicator of stress. Bulls exhibit a fight or flight
response when exposed to a perceived threat. Bulls are more
likely to flee than fight, and in most cases they fight, when agitated.
14. Bulls usually stand to graze and pattern of grazing behavior
of each herd member is relatively similar, which moves slowly
across the pasture with the muzzle close to the ground and they
12
ruminate resting. Bull is known to be having resting behavior and
will avoid source of noise and disturbance and choose nonhabitual
resting sites if the preferred ones are close to the noise or
disturbance, which is the natural instinct of the Bull. Study
conducted also disclosed that Bulls have long memories. Factors
mentioned above are the natural instincts of Bulls.
15. Bulls, as already indicated, accordingly to the animal
behavior studies, adopt flight or fight response, when they are
frightened or threatened and this instinctual response to a
perceived threat is what is being exploited in Jallikattu or Bullockcart
races. During Jallikattu, many animals are observed to
engage in a flight response as they try to run away from arena
when they experience fear or pain, but cannot do this, since the
area is completely enclosed. Jallikattu demonstrates a link
between actions of humans and the fear, distress and pain
experienced by bulls. Studies indicate that rough or abusive
handling of Bulls compromises welfare and for increasing Bulls
fear, often, they are pushed, hit, prodded, abused, causing mental
as well as physical harm.
JALLIKATTU
13
16. Jallikattu is a Tamil word, which comes from the term
“Callikattu”, where “Calli” means coins and “Kattu” means a
package. Jallikattu refers to silver or gold coins tied on the bulls’
horns. People, in the earlier time, used to fight to get at the money
placed around the bulls’ horns which depicted as an act of bravery.
Later, it became a sport conducted for entertainment and was
called “Yeruthu Kattu”, in which a fast moving bull was corralled
with ropes around its neck. Started as a simple act of bravery,
later, assumed different forms and shapes like Jallikattu (in the
present form), Bull Race etc., which is based on the concept of
flight or fight. Jallikattu includes Manjuvirattu, Oormaadu,
Vadamadu, Erudhu, Vadam, Vadi and all such events involve
taming of bulls.
17. AWBI gives a first hand information of the manner in which
the event of Jallikattu is being conducted in Southern parts of
Tamil Nadu, through three reports submitted along with the
additional affidavit filed by the Secretary of the Animal Welfare
Board, MoEF, Government of India on 7.9.2013, flouting the
various directions issued by this Court, High Court and the
regulatory provisions of TNRJ Act. Dr. Manilal Vallyate and Mr.
Abhishek Raje, the Observors of AWBI, have submitted the first
14
report regarding Jallikattu events that took place at Avnlapuram on
14.1.2013, Palamedu on 15.1.2013 and Alanganallur on
16.1.2013. Relevant portions of the reports read as under:
“I. Executive Summary
In a comprehensive investigation authorized by the
Animal Welfare Board of India, investigators observed
jallikattu events at venues in Avaniapuram, Palamedu and
Alanganallur on the 14th, 15th and 16th of January 2013,
respectively. During the course of the investigation, one
bull died and many more were injured. Investigators
observed that bulls were forced to participate and were
deliberately taunted, tormented, mutilated, stabbed,
beaten, chased and denied even their most basic needs,
including food, water and sanitation. The findings of this
investigation clearly show that bulls who are used in
jallikattu are subjected to extreme cruelty and unmitigated
suffering.
All the acts of cruelty to animals detailed in the below
observations contravene the orders of the Supreme
Court of India and Madurai High Court, which
mandate that bulls should not be harmed or tortured
in any way. Such animal abuse is also in violation of
numerous clauses of section 11(1) of The Prevention of
Cruelty to Animals Act, 1960.
15
II. Welfare Implications and Violations of the Law
1. Ear Cutting/Mutilation
At least 80 per cent of the bulls observed had their ears
cut, with three-fourths of the external ear pinna absent.
When asked about the reason for the mutilation, many
bull owners explained that by cutting the ear, the animal
would be able to hear sounds even from the back, which
they deemed to be very important while the animals are in
the jallikattu arena.
Welfare Concerns
Cutting the external ear in no way helps to improve a
bull’s hearing. Instead, the bull loses his natural ability to
receive sounds signals with appropriate positioning and
movement of the ear pinna. Cutting the ear causes
intense pain and distress as the external ear pinna
consists of cartilage and is highly vascular with a rich
nerve supply. The procedure leads to physiological,
neuroendocrine and behavioural changes in the animal.
Bulls strongly resist being touched on the head or around
the ear because of painful past experiences. Many
animals get agitated if someone tries to do so.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(l), which prohibits the
mutilation of an animal’s body.
2. Fracture and Dislocation of Tail Bones
16
Many bulls suffered from dislocated or even amputated
tails caused by deliberate pulling and twisting.
Welfare Concerns
The tail, which has nearly 20 small bones, is an extension
of the spinal cord and vertebral column. Dislocation and
fracture of the tail vertebrae are extremely painful
conditions.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(l), which prohibits the
mutilation of an animal’s body.
3. Frequent Defecation and Urination
Ninety-five per cent of the bulls were soiled with faeces
from below the base of their tails and across the majority
of their hindquarters.
Welfare Concerns
Bulls were forced to stand together in accumulated waste
for hours on end. Frequent defecation and urination are
indicators of fear and pain in cattle.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
4. Injuries and Death
17
Because of the absence of a contained “collection area”
in Avaniapuram, a bull died after a head-on collision with
a moving passenger bus. In Palamedu, a terrified bull
sustained a crippling leg injury after he jumped more than
10 feet off a narrow road to escape a mob carrying sticks.
In Alanganallur, two bulls, who were terrified after being
chased by onlookers, ran amok and fell into open wells in
an agriculture field. Both sustained serious injuries.
Welfare Concerns
An injury involving muscles, bones, nerves and blood
vessels causes an animal tremendous pain. A complete
fracture of a lower joint in large animals takes time to heal
and leads to a deformation of the leg that leaves the
animal unfit for any kind of work. Bulls also suffer from
chronic pain as well as mental trauma brought on by the
injury and the handlers’ and bull tamers’ cruel treatment.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
III. Cruel Practices and Violations of the Law
1. Biting a Bull’s Tail
On many occasions, bulls’ tails bitten by the organizers
and owners of the animals in the waiting area and inside
the vadi vassal. The vadi vassal is a chamber that is
closed off from public view. Abuse runs rampant in vadi
vasals. Bulls are poked, beaten and deliberately agitated
18
before they are forced into the jallikattu arena, where
more than 30 “bull tamers” are waiting.
Welfare Concerns
Considered an extremity of the body, a bull’s tail has
many vertebrae but very little muscle or subcutaneous
tissue to protect it. Any direct pressure or injury to the tail
bones causes extreme pain that sends bulls into a frenzy.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
2. Twisting a Bull’s Tail
Owners routinely beat the bulls and twist their tails in
order to induce fear and pain while they are in the waiting
area and the vadi vassal. Many bulls had dislocated or
even amputated tails.
Welfare Concerns
The tails, which has nearly 20 small bones, is an
extension of the spinal cord and vertebral column.
Frequent pulling and bending of the tail causes extreme
pain and may lead to a dislocation and/or fracture of the
tail vertebrae. This causes severe chronic pain and
psychological changes that make an animal easily
frightened when someone goes behind him or tries to
catch or hold his tail.
Violation
19
This is violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(l), which prohibits the
mutilation of an animal’s body.
3. Poking Bulls with Knives and Sticks
Many bulls were poked with sticks by owners, police
officials and organizers inside the vadi vassal and near
the collection yard. People inside the vadi vassal often
poked bulls on their hindquarters, aces and other parts of
their bodies with pointed wooden spears, tiny knives,
sticks and sickle-shaped knives used for cutting nose
ropes.
Welfare Concerns
Poking bulls with sticks or sharp knives causes immense
pain and agitation. Distressed bulls often adopt a flight
response and desperately try to escape through the halfclosed
gates of the vadi vasals. While attempting to flee
from people in the arena, agitated bulls often injure
themselves when they run into barricades, electric polls,
water tanks, tractor carriages and police watch towers
placed inside the jallikattu arena.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
20
4. Using Irritants
Irritant solutions were rubbed into the eyes and noses of
bulls inside the vadi vassal in order to agitate them.
Welfare Concerns
Eyes and noses are very sensitive, sensory organs, and
the use of any irritating chemicals causes pain, distress
and an intense sensation. Bulls who try to escape from
such torture often end up injuring themselves by hitting
walls, gates, fencing and other erected structures inside
the Vadi Vasal and jallikattu arena
Violation
This practice violates section 11(1)(a) of The Prevention
of Cruelty to Animals Act, 1960, which prohibits treating
any animal in a way that causes unnecessary pain or
suffering. It also violates section 11(1)(c), which prohibits
the willful and unreasonable administration of any
injurious drug or substance to any animal.
5. Using Nose Ropes
Nose ropes were frequently pulled, yanked or tightened in
order to control bulls before they were released into
arenas and collection yards. Some animals were even
bleeding from the nose as a result of injuries caused by
pulling the rope.
Welfare Concerns
Pulling or twisting the nose rope exerts pressure on the
nerve-rich and extremely sensitive septum, causing bulls
pain and making it easier for handlers to force them to
21
move in a desired direction. According to one study, 47
per cent of animals whose noses were pierced had
lacerations and ulcerations, and 56 per cent had pus in
their nostrils. They study also pointed out that 57 per cent
of cattle had extensive and severe nose injuries.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
6. Cramped Conditions
Bulls were packed so tightly into narrow waiting corridors
that they were unable to take a step forwards or
backwards. Forced to stand for more than eight hours in
line at the waiting area for a health examination and in the
vadi vassal, bulls had no protection from the blistering sun
and the crowds of people, who shouted and hooted at
them, harassed them and frightened them. Bull owners
start lining up the night before the jallikattu event, and
they are given serial numbers. Some were in line until the
events ended at 2 pm the next day.
Welfare Concerns
Bulls were denied shade and were not allowed to lie down
and rest. This causes exhaustion and extreme distress
and discomfort.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
22
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(f), which prohibits trying an
animal for an unreasonable time with an unreasonably
short rope.
7. Forcing Bulls to Move Sideways
The animals were forced to move sideways at a slow
pace for more than eight hours over a distance of
approximately 500 to 1000 metres.
Welfare Concerns
Forcing bulls to walk sideways – which is an unnatural
gait for any animal – for a long duration causes them
extreme discomfort.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(d), which prohibits conveying
any animal in such a manner or position as to cause
unnecessary pain or suffering.
8. Lack of Food and Water
All the bulls observed were not offered food, water or
shelter from 8 am, when they were forced to line up, until
the jallikattu events ended at 2.30 pm. Though concrete
water troughs were available at the registration area and
collection yards, none of the animals were offered water.
Bulls were so terrified and focused on surviving at the
23
collection yards in Palamedu and Alanganallur that they
did not drink water. Several bulls became recumbent and
were unable to stand up because of dehydration and
exhaustion. Many people kicked, beat and bit the bulls in
order to force them back onto their feet.
Welfare Concerns
As ruminants, bulls normally graze for several hours a
day in an open field or eat a bulk quantity of feed when
kept in stalls. They loiter around chewing their cud
before grazing or eating again. During jallikattu, the
animals are starved and prevented from chewing their
cud (they won’t do it when they are frightened or in pain
distress). No intake of food and water and the absence of
shade lead to dehydration and exhaustion. This often
results in injuries or death.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(h), which states that failing to
provide animals with sufficient food, drink or shelter is an
act of cruelty.
9. Forcing Bulls to Drink Liquids
On many occasions, bulls were forced to drink fluids that
were likely liquor. Animals’ heads were raised by pulling
24
on the nose ropes, and the fluids were forced into their
mouths using a plastic bottle.
Welfare Concerns
Forcing bulls to drink causes them physical discomfort
and fear. They often become excited and frenzied as the
alcohol affects their central nervous system. Forcing
them to drink can also cause the aspiration of fluid in the
upper and lower respiratory tracts (lungs). This can
cause pneumonia, a serious respiratory disease that can
lead to death. Normally, bulls drink water at their own
pace from a bucket, but no such allowances were
witnessed during any of the jallikattu events.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which prohibits treating any
animal in a way that causes unnecessary pain or
suffering, and section 11(1)(c), which states that giving
any injurious drug or substance to any animal is
prohibited.
10.Forcing Bulls to Stand in their Own Waste
In the waiting areas, bulls were forced to wait for more
than eight hours while standing in their own faeces and
urine.
Welfare Concerns
25
No sanitation facilities were made available, and bulls
were forced to stand together in the accumulated faeces
and urine for hours. The accumulated waste attracts flies
that bother the animals and cause them discomfort. The
eggs laid by the flies may lead to maggot infestation of
any wounds the bulls may have.
Violation
This is a violation of Supreme Court and Madurai High
Court orders, which mandate that sanitation facilities
should be made available during jallikattu events and that
bulls should not be allowed to suffer in any. Section
11(1)(a) of The Prevention of Cruelty to Animals Act,
1960 prohibits treating any animal in a way that causes
unnecessary pain or suffering.
11.Spectators Beating and Agitating Bulls
When collection yards were not present or not used,
injured, exhausted bulls were tormented by spectators as
they exited. “Parallel jallikattu” events happened at each
venue as the aggressive crowds agitated the bulls exiting
the arena by shouting at them, beating them and jumping
on them. Many people, including police officials, beat
exhausted bulls with sticks and jumped in front of the
bulls in an effort to frighten them. Running for their lives,
terrified bulls ran amok, stumbling into shops and houses
and slamming into barricades and vehicles parked
nearby. Both the bull who died after a head-on collision
with a passenger bus in Avaniapuram and the bull who
26
fractured his leg after jumping off a road in Palamedu
were running loose when their injuries occurred “Parallel
jallikattu” is often considered to be the “real jallikattu”, as
the most risky action takes place during the deliberate
harassment by spectators.
Welfare Concerns
When bulls are not afraid, they stand still and engage in
normal behaviour to the species, such as grazing,
chewing cud, lying down or grooming. None of these
types of behavior were seen at any point during any of the
jallikattu events. Jallikattu causes bulls severe mental
and physical anguish. When bulls are frightened or in
pain, they adopt a flight response that can often lead to
serious physical injuries and even death. Near the
collection area, the spectators didn’t allow the bulls to
calm down and relax – they instead induced further fear,
distress, discomfort and pain.
Violation
This is a violation of section 11(1)(a) of The Prevention of
Cruelty to Animals Act, 1960, which states that beating,
kicking, torturing or otherwise treating any animal so as to
subject the animal to unnecessary pain or suffering is an
act of cruelty.
12.Restraining and Roping
When bulls entered the collection yard, they were caught
using looped rope that was attached to a long stick. At no
point were the frightened bulls allowed to calm down.
27
After a long struggle, bulls were captured by handlers
who inserted two fingers into their noses and pulled them
to the nearest tree while three to four men held their
horns and necks using multiple ropes. Once an animal
was tied to a tree, a new thick nose rope was forcefully
inserted through the existing hole in the nasal septum.
Often the rope was very thick, and pulling it vigorously
caused injuries to the nasal septum, which led to profuse
bleeding in many animals.
Welfare Concerns
As a prey animal, bulls are better controlled using
behavioural techniques instead of crude and painful
restraining techniques that cause intense mental suffering
and physical injuries. Such a painful experience will
cause long-lasting psychological and behavioural
changes in bulls.
Violation
Section 11(1)(a) of The Prevention of Cruelty to Animals
Act, 1960, prohibits treating any animal in a way that
causes unnecessary pain or suffering.
IV. xxx xxx xxx
V. Injuries and Deaths
Jallikattu is dangerous not only to bulls but also to
humans. Many participants and spectators sustained
serious injuries at all three jallikattu events. A total of 58
participants and 56 spectators were injured in the three
28
jallikattu events. One police constable was also injured in
Avaniapuram.
1. In Avaniapuram, a total of 55 persons were injured
during the jallikattu event. Of the 26 people who were
injured while trying to tame the charging bulls by
clinging to their backs, five were seriously injured.
Twenty-four spectators, including a police constable,
were injured following a melee after some bulls ran into
the crowd. Five people were injured when a section of
the gallery erected for spectators collapsed because of
severe crowing.
2. In Palamedu, 21 people, including 11 tamers, were
injured during the jallikattu event. Ten spectators were
injured by bulls who escaped the fighting arena. The
21 people who suffered injuries were admitted to the
Palamedu Primary Health Centre. One onlooker, who
was hit in the abdomen, was later moved to the
Government Rajaji Hospital in Madurai while others
were treated as outpatients.
3. In Alanganallur, 38 people were injured during the
jallikattu event. Twenty-one were tamers, and others
injured included onlookers and owners. Two people
who were seriously wounded were admitted to the
government hospital in Madurai.
VI. xxx xxx xxx
VII. xxx xxx xxx
29
VIII. Conclusion
Bulls are prey animals. According to animal behavioural
studies, bulls adopt a flight or fight response when they
feel frightened or threatened. This instinctual response to
a perceived threat is deliberately exploited by jallikattu
organizers. During jallikatt, many animals are observed
to engage in a flight response as they run away from
people when they experience pain or fear. This flight
response is not surprising, given the amount of pain and
terror bulls are subjected to before, during and after
jallikattu. Bulls are beaten, poked, prodded, harassed
and jumped on by numerous people. They have their
tails bitten and twisted and their eyes and noses filled with
irritating chemicals. Many peer-reviewed papers
demonstrate a link between the actions of humans and
the fear, distress and pain experienced by animals.
Research has shown that rough or abusive handling of
animals compromises welfare by increasing an animal’s
fear of humans. Bulls – who are pushed, hit, prodded and
abused in jallikattu – suffer mentally as well as physically.
Detailed Reports on Jallikattu in Avaniapuram,
Palamedu and Alanganallur
The cruelty and animal abuse detailed below in sections
A, B and C also violate the Prevention of Cruelty to
Animals Act, 1960. Observations of three jallikattu
30
locations have been grouped broadly under four
categories:
. Waiting area
. Vadi vasal
. Arena
. Collection yard
Avaniapuram – 14 January 2013
Waiting Area
. Bulls were forced to stand in long lines for more than
eight hours without shade, food and water or room to
move.
. Many animals were forced to drink fluids, likely alcohol,
to disorient them.
. Bulls were continuously pulled and yanked by nose
ropes.
. Handlers forced bulls to move in the lines sideways by
painfully pulling and yanking their tails.
. Some reluctant bulls jumped out of the line and
attacked their owners out of fear.
. None of the animals had the JK number given to them
by the Animal Welfare Board of India on their horns,
which is a registration requirement.
Vadi Vasal
. Bulls were pulled by nose ropes into the narrow,
closed enclosure. Participants also pushed on the
bulls’ backs as the animals resisted.
31
. Inside the vadi vasal, nose ropes were cut with a sharp
sickle. At times, bulls were poked with these sickles in
order to force them to enter the arena. Much of the
cruelty the bulls were subjected to during jallikattu
happened inside the vadi vasal.
. Closed off from the public, the high-walled vadi vasal is
a torture chamber. Here, organizers hit the bulls with
wooden sticks and owners bit and brutally twisted
bulls’ tails. Organisers and owners of bulls also beat
bulls with their bare hands, whipped them with
snapped nose ropes and poked them with small, sharp
knives.
. Some animals returned to the vadi vasal after being
terrified by the jallikattu participants.
Arena
. The Supreme Court’s guideline for arena barricades
calls for them to be no less than 8 feet high. This
guideline was flagrantly ignored, and the barricade in
the main area was as low as 5-1/2 feet. The noncompliance
of a guideline as basic as the barricade’s
height endangers the lives of spectators.
. The Supreme Court’s guideline of double barricading
was not implemented anywhere around the arena or
along the path from the main arena to the town’s
street.
. As many as six to eight matadors jumped onto bulls to
take them. Unable to carry the weight, the bulls often
feel to the ground.
32
Collection Yard
. There was no collection yard.
. Because of the absence of a collection yard, the bulls
ran amok in the streets, which were lined with unruly
crowds eager to hit the scared animals.
. Many spectators pounded on the petrified bulls and
tried to perform jallikattu on the streets.
. Bulls entered bylanes and trampled both men and
parked vehicles.
. Because of the lack of a collection area, one bull lost
his life after a head-on collision with a moving
passenger bus.
2. Palamedu – 15 January 2013
Waiting Area
. The bulls were forced to move sideways for hours as
they inched closer to the vadi vasal. This sideways gait
is unnatural and uncomfortable to them.
. Even though there were water troughs near the
medical examination area, bulls were not allowed to
drink water because the owners did not want to lose
their place in line.
. There was no food or fodder for the bulls who were
forced to stand in line the night before the event.
. The bulls in line defecated constantly, which is a sign
of fear.
. The ears of almost all the bulls were cut and mutilated.
33
. Several bulls in line were dragged by their tails.
. Owners dragged bulls around by inserting their fingers
into bulls’ noses and pulling them.
. Bulls were forcibly beaten, pushed and pulled into the
vadi vasal. The reluctant bulls had their tails painfully
twisted, broken and bitten. These abusive practices,
though common, were particularly rampant in
Palamedu.
. Bulls were hit and poked with wooden sticks. One of
the organiser’s sole duty was to force bulls into the
vadi vasal by striking and prodding them with a
wooden stick.
. Shockingly, police in uniform blatantly hit and poked
the bulls with their wooden lathis instead of stopping
the abuse.
. On the sly, owners forced suspicious liquids, likely
alcohol, down the throats of bulls in order to disorient
them.
Vadi Vasal
. The vadi vasal is hidden from the view of the public
and media and can be accessed and viewed only by
select jallikattu personnel.
. The vadi vasal was a permanent cement structure. Its
walls hid some of the cruelty from spectators and TV
cameras.
. The practice of inflicting pain by poking and hitting the
bulls is common. Almost every bull that stayed in the
vadi vasal for more than a couple of seconds after his
34
nose rope was cut was subjected to physical torture.
This rampant cruelty proves that the court’s guidelines
regarding jallikattu are completely disregarded.
. Bulls’ tails were brazenly twisted and broken in order
to force bulls to run out of the vadi vasal into the
arena.
. A bull’s anus was deliberately injured to cause pain to
the animal.
. Inside the vadi vasal, bulls’ eyes and noses were
forcibly rubbed with irritant liquids to disorient and
agitate them.
. Feeling immense fear, some bulls jumped against the
exit door of the vadi vasal to try to flee the enclosure.
Arena
. The path from the arena to the collection area was
dotted with dangerous obstructions, such as tractor
carriages, water tanks, and a small truck. These
obstructions posed serious threats to speeding bulls
who were being chased away by participants.
. The Supreme Court’s guidelines were not
implemented as the barricades were not 8 feet high.
. An electric pole posed grave danger to speeding bulls
who charged out of the vadi vasal.
Collection yard
. The Collection yard was nowhere close to half an
acre in size as instructed by the court guidelines.
35
. The collection area was also impractical by design as
bulls sped right through its narrow enclosure, which
was erected in the path from the main arena to the
town’s streets.
. Because of the insufficient collection yard, bulls ran
along streets and into moving traffic.
. Bull were brutally beaten by unruly spectators who
drew sadistic pleasure in landing blows with their fists
and sticks. As the loud crowd hooted, bulls ran for
cover.
. Some bulls injured themselves when they jumped off
the narrow roads into fields that were 10 feet below.
Others jumped into dry river beds.
. One bull who was being chased and beaten by a
mob jumped into a field and fractured his font leg. It
took 90 minutes for the suffering animal to receive
medical attention proving that having ambulances on
standby is of no use.
. Several bulls trampled the metal barricades and ran
into residential homes and bylanes.
. One bull entered a house.
. Another bull plunged into a sewage drain that was
more than 10 feet below the road.
. Several young people were injured when bulls
trampled them on the streets.
4. Alanganallur – 16th January 2013
Waiting Area
. The waiting area had long lines.
36
. No shade or fodder was supplied to the bulls.
. The breaking, twisting and biting of bulls’ tails was
rampant in the line.
. One person’s sole job was to force bulls into the vadi
vasal by beating them with sticks.
. Bull owners were seen rubbing suspicious liquids into
the eyes of bulls moments before the bulls were
taken inside the vadi vasal.
Vadi Vasal
. The vadi vasal at Alanganallur was no different from
those in previous jallikattu locations. Bulls were
subjected to barbaric cruelty inside the enclosure,
which was shielded from public view.
. Organisers armed with sticks perched inside the vadi
vasal and repeatedly hit bulls who were reluctant.
. The practice of biting tails was most rampant in this
vadi vasal, as every other bull had his tail bitten by
people sitting inside.
. Bulls had their tails pulled, twisted and broken inside
the vadi vasal.
. Some bulls were brutally hit on the bridge of the nose
right before their nose ropes were cut open.
. Bulls were kicked in their hindquarters.
. People guarding and sitting on top of the vadi vasal
smoked beedis, completely disregarding the safety of
the bulls.
37
. Cruelty was most rampant and brazen in this vadi
vasal.
Collection Yard
. In Alangannlur, the collection area did not prevent
bulls from running amok and injuring spectators and
villages standing outside the barricades.
. Many bulls ran straight out of the collection area and
into the nearby fields. Two bulls fell into wells filled
with water and injured themselves.
. The fact that bulls fell into wells in spite of a collection
yard that was erected as per the Supreme Court’s
guidelines proves that the lives of bulls are at stake
even if the guidelines are followed. The scope for
mishaps is immense.
. Several bulls who ran into the collection yard were
frightened by the bull catchers and ran back into the
barricaded passageway to the main arena.
. Cops standing on a tractor carriage in the
passageway between the main arena and collection
yard often hit the bulls with long wooden sticks.
. Bulls who escaped from the collection yard ran amok
and stayed into nearby fields. The bulls also
trampled and injured spectators around the collection
yard.
Manoj Oswal, Animal Welfare Officer to the Board, submitted the
second interim report on 25.1.2012 with regard to the events
38
witnessed at various places like Avanlapuram and Palamedu.
The operative portion of the report reads as under:
“Primary observation:
While it is not possible to conduct animal sport like
Jallikattu without causing trauma and cruelty to animals, it
was anticipated that the guidelines and rules would
ensure that the cruelty is minimum.
The events at the surface looked very organized and
orderly but scratching a little below the surface showed
that the abuse and violations now have been hidden away
from the main arena. The unruly people have been found
their own place away from media glare and eyes of
Animal Welfare Officers.
The fundamental issue remains that a large section of
people come to the events with a hope-expectation that
they are also a part of the action, which indeed has been
a way of Jallikattu always. Such people continue to
handle bulls in crude fashion, continue to risk their own
lives and create hazard for themselves and others and
they undo whatever the system has built as check and
balance.
Queuing of bulls
The most stressful time for the animals is the long wait,
particularly when events are back to back. The same
animals participate in many events and travel to new
events every day. No animal has the possibility of basic
39
shelter from sun and wind, food or water while it awaits its
turn.
The situation in all districts remain the same as it was last
year. Between 200 to 400 bulls come to the venue but
the facility of pens and shelter are symbolic, holding at the
most 10-12 animals. These poster boys are shown as
how well bulls were treated. However, in reality they are
not even a fraction of the bulls that participate.
The bull are held tightly by their ropes. There is no
possibility to move even an inch. The bull that cannot
even lower hold itself to its natural position, it is held up
tightly that is how it remains in that single position for hour
at a stretch. If the bull stands naturally the holder will
have bend himself in an awkward position.
In such a situation there is no possibility of either feeding
or watering the animal. The bull start queuing from 1 am
and they are held that way till 4pm till then the program
usually ends. The bull coming first may get released
about 2 hours earlier.
Cruelty before release
The bull does not want to go into the arena. It does not
like people and does not like the crowd. The only way to
get it go before the crowd is to prod it and threaten it.
Cause the animal so much pain and fear that it believes
that going before the thousands of people is a better
40
escape than being tortured here in the small box like
enclosure.
The methods of torture vary, but the essence remains the
same. The bull has to run for its life. The bull is scared of
both scenarios the large crowd outside and the captive
and painful life with the current owner. Given an
opportunity the bull prefers to stay in the small enclosure
than run into a crowd of strangers, the way the bull is
made to run is to give it immediate pain or restrain it
unnaturally.
Despite ban, people were seen giving alcohol to the
animal in the sly. The tail of the animal is one of the
sensitive part of the body, so is the nose and the eyes.
Torture to these parts is one quick way to get the bull run.
Cruelty within arena:
Mental Torture
Physical abuse is not the only kind of injury that is illegal
and hurtful. Mental abuse is also amongst the worst kind
of abuse as it leaves a lifelong mark on the mind.
It is a known fact that victims of accident, crime or
disasters recover from their physical injuries in certain
time but mental injuries remain etched for decades, play
havoc in day to day life. Animals, irrespective of the fact
whether they can express it or not, in this particular case
were seen going through the same shock and terror as a
41
person goes into in a hostage situation. Constant fear of
death and continuous torture.
Physical torture
With the entire world watching at the events, it was not
expected that the animals will be harassed in the arena.
The animals got a respite from physical abuse in the
arena that was well covered by media, however, as soon
as they left the main arena, the tale of torture remained
the same what it has been for long.
Outside the Arena:
What has changed
– Registered bulls marked in five out of six venues (not
so in Previyasuriyal).
– Symbolic testing done for alcohol (actual testing done
in Previyasuriya, rest of the places the test was just a
cover up).
– Obvious and visible forms of cruelty disallowed in
public view.
– The double barricades were less porous and so it was
not easy for unruly people to enter arena. (not so in
Siravayal)
Everything else, the issues highlighted in the report
in 2011 remain active
1. Queuing of animals and holding them in unnatural
position for hours without food and water.
42
2. In the secluded and enclosed area, all forms of animal
abuse.
3. The animals are invariably not going into the yard but
onto the street, groves, cluttered vegetation, dry canals
and other free-for-all areas, all misnamed as yards.
4. Animals running out the yard to escape brutality
straying into the streets of the village.
5. Jallikattu barricades punctured at certain points or that
they being open at one end leading to non participants
indulging in the same kind of cruelty that were seen
last year.
6. A complete parallel set of jallikattus happening with the
crowd as people release the unregistered bulls into the
crowd, this is more particular and obvious in
Sivagangai.
7. A less obvious but with same effect, parallel Jallikattu
happening in areas designated as bulls yards. So
instead of rest, the bull yards are the areas designated
as bull yards. So instead of rest, the bull yards are the
areas where the bulls get tortured the most.
18. We have also perused the recent affidavit filed by Smt. Uma
Rani, the Secretary, AWBI, MoEF, Chennai on 7.4.2014, giving the
details of the manner in which Jallikattu was conducted in various
parts of Tamil Nadu, like Avaniapuram, Palamedu etc., and the
torture and cruelty meted out to the Bulls, which is unimaginable.
43
19. We notice that the situation is the same in the State of
Maharashtra also. The details furnished by the 2nd respondent in
I.A. No. 5/2014 on 20.1.2014 along with the photographs, depict
the state of affairs, which is also cruel, barbaric, inhuman and
savage. Report highlights the manner in which it is being
conducted.
BULLOCK-CART RACE IN MAHARASHTRA:
20. We notice, in various parts of Maharashtra, varied types of
Bullock-cart races are being organized. Bailgada Sharyat is a race
where no person rides the cart. In such a race, at times, Bullocks
are brought to the venue blind folded through trucks and let free,
through a ghat either side of which spectators, large in number,
assemble. Due to sudden exposure to the light, after unfolding,
and the huge noise source made by spectators, Bullock get
terrified and run in straight on the slope. Many of the Bullocks are
tortured and whipped to make them run and the price is decided
on the basis of time taken to cover gap of approximately 300 meter
distance. Races are also there where Bullocks have to cover 10
kilometres and more. Before and during the course of the race,
cruel practices like beating, twisting of tail, biting tail, poke with
spiked instruments, electric shock etc. is given. Races, such as,
44
Ghoda Bail Sharyat which involves a horse and a bull on the same
cart is also being held. Sometimes, a bigger Bullock is paired with
a smaller one. Various forms of torture are adopted in all these
races.
21. We are sorry to note, in spite of the various directions issued
by this Court, in the conduct of Jallikattu, Bullock-cart Race etc.,
the regulatory provisions of TNRJ Act and the restrictions in the
State of Maharashtra, the situation is the same and no action is
being taken by the District Collectors, Police Officials and others,
who are in-charge to control the same, to see that those directions
are properly and effectively complied with and the animals are not
being subjected to torture and cruelty. Being dumb and helpless,
they suffer in silence.
22. We notice, following the Central Government notification
dated 11.7.2011, the Committee constituted in the State of
Maharashtra to monitor animal welfare laws in the State, submitted
a letter dated 1.8.2011 to the then Chief Minister, with specific
reference to the notification dated 11.7.2011, stating as follows:
“Now that the exhibition and training as performing
animals of bulls also is prohibited, bullocks cart races
which are very widely organized in the State become
illegal. During the month of Shravan, many such races
45
are organized in the rural parts of the State and these
must be stopped in compliance with the above
notification.
We, therefore, request you to issue instructions through
the Collectors all over the State, prohibiting such bullock
cart races with immediate effect.
This issue has been agitated in the State of years now
by animal welfare activists and the Central
Government’s move should put an end to it. As the
notification may not have come to the notice of people
and even administration at large, we hope you will kindly
take necessary action as requested above at the
earliest.
Thanking you,
Yours sincerely,
For Committee to Monitor Animal
Welfare Laws in Maharashtra
Sd/-
C.S. Dharmadhikari
Chairman”
The State of Maharashtra, based on the notification dated
11.7.2011 and the letter dated 1.8.2011 of the Committee, issued
a notification dated 24.8.2011, the operative portion of the same
reads as follows:
“Reference Item No. 1 above, as per the Notification of
Environment & Forest Department of Central
Government dated 11.7.2011, has been brought on
training, exhibition and as such the performance of
animals like bears, monkeys, tigers, leopards, lions and
bullocks etc. Accordingly, it was under consideration of
the State Government to bring about a ban on the
bullock cart races and various exhibitions taking place in
the State.
46
Accordingly, by this notification, a ban has been
imposed on bullock cart races / games/ training /
exhibition in the State in accordance with the above
reference item No. (1) Notification of the Central
Government.
As per order of the Government of Maharashtra.
Sd/-
C. N. Suryavanshi
Deputy Secretary, Govt. of Maharashtra”
The State of Maharashtra later issued a corrigendum dated
12.9.2011 clarifying that the word “Bull” be read as Valu/Sand,
meaning thereby, it would take both Bulls whether castrated or not.
The State of Maharashtra later, through the Government decision
dated 20.4.2012 imposed total prohibition in the State of organizing
Bull/Bullock-cart Races, Bulls Fight, Training of Bulls/Bullocks for
the sport, sport activities. The operative portion of the order reads
as follows:
“PREAMBLE
The organization of animal sports in State, mainly in its
rural hinterland especially sports such as bull ox/ bullock
cattle exhibition, organizing their race, their cart race,
fight etc., is nothing but violence to these dumb animals
for which, to stop the continuation of the same, to
prohibit the same, the State Government has already
taken a decision to prohibit them on 24.8.2011.
Moreover, as in the list in this regard of prohibited
animals by Central Government as bulls, bullock has not
been included but not in State Government, the State
47
Government issued a corrigendum by prohibiting bulls
instead of bullock in State Govt. list too. In this regard,
the corrigendum of the State Government was issued on
12.9.2011. But by opposing this corrigendum of State
Government, above referred No.1, and No.2 cases were
filed in the Hon’ble High Court, Mumbai. In accordance
with the judgment given by the Hon’ble High Court,
Mumbai in those cases, to the State Government issued
abovementioned circular Nos.4 and 5 are superseded
now and the government decision in this regard is now
being issued as under:-
GOVERNMENT’S DECISION:
In compliance of Central Govt.’s Department of Forest
and Environment Departmental Notification dated
11.7.2011 and also in the light of relevant judgment
pronounced by Hon’ble High Court, Mumbai Bullock
Cart Race, Bullock Race/ Bull Fight/ training of bull /
Bullock / Ox for such race, fights / using them for any
animal sport activities is being prohibited herewith now.
In accordance with letter dated 7.10.2011 of Central
Government, Bamboo Cart / Cart / Ox / Cow / Calf etc.,
are also increased in the broader sense of technical
definitions of ‘Bulls’ prohibited under this act which must
be prohibited for usage as sort sporting / animal
sporting/ fighting / right sports related training.
If anybody is found guilty of the aforesaid prohibited act
and activities, then on such offenders, let action be
taken stringently and effectively against them under the
provisions of cruelty to animals act and the concerned
District Collectors, Police Superintendents have the
entire enforcement responsibility.
Under the directions of and in the name of Hon’ble
Governor of Maharashtra State.
48
Sd/-
(S. T. SHENDE)
Under Secretary
Govt. of Maharashtra”
23. We have already indicated that the State of Maharashtra has
accepted the judgment of the High Court and the Government
decision dated 20.4.2012 is also not under challenge.
24. We have to examine, in the light of the above facts, whether
the events that are being conducted in the States of Tamil Nadu
and Maharashtra are in violation of Sections 3, 11(1)(a) & (m), 21
and 22 of the PCA Act read with Articles 51A(g) and (h) of the
Constitution and the notification dated 11.7.2011.
PCA ACT:
25. The PCA Act was enacted even before the introduction of
Part IV-A dealing with the fundamental duties, by the Constitutional
47th Amendment Act, 1956. Earlier, the then British in India
enacted the Prevention of Cruelty Act, 1890 for the human beings
to reap maximum gains by exploiting them with coercive methods
with an idea that the very existence of the animals is for the benefit
of the human beings. During the course of administering the
above mentioned Act, many deficiencies were noticed by the
49
Government of India and a Committee was constituted to
investigate and suggest measures for prevention of cruelty to
animals. Following that, a Bill was introduced in the Parliament
and, ultimately, the PCA Act, 1960 was enacted so as to prevent
the infliction of unnecessary pain or suffering on animals and to
amend the law relating to prevention of cruelty to animals.
JUDICIAL EVALUATION
26. PCA Act is a welfare legislation which has to be construed
bearing in mind the purpose and object of the Act and the Directive
Principles of State Policy. It is trite law that, in the matters of
welfare legislation, the provisions of law should be liberally
construed in favour of the weak and infirm. Court also should be
vigilant to see that benefits conferred by such remedial and welfare
legislation are not defeated by subtle devices. Court has got the
duty that, in every case, where ingenuity is expanded to avoid
welfare legislations, to get behind the smoke-screen and discover
the true state of affairs. Court can go behind the form and see the
substance of the devise for which it has to pierce the veil and
examine whether the guidelines or the regulations are framed so
as to achieve some other purpose than the welfare of the animals.
Regulations or guidelines, whether statutory or otherwise, if they
50
purport to dilute or defeat the welfare legislation and the
constitutional principles, Court should not hesitate to strike them
down so as to achieve the ultimate object and purpose of the
welfare legislation. Court has also a duty under the doctrine of
parents patriae to take care of the rights of animals, since they are
unable to take care of themselves as against human beings.
27. The PCA Act, as already indicated, was enacted to prevent
the infliction of unnecessary pain, suffering or cruelty on animals.
Section 3 of the Act deals with duties of persons having charge of
animals, which is mandatory in nature and hence confer
corresponding rights on animals. Rights so conferred on animals
are thus the antithesis of a duty and if those rights are violated, law
will enforce those rights with legal sanction. Section 3 is extracted
hereunder for an easy reference:
3. Duties of persons having charge of animals.- It
shall be the duty of every person having the care or
charge of any animal to take all reasonable measures to
ensure the well-being of such animal and to prevent the
infliction upon such animal of unnecessary pain or
suffering.”
Section 3 of the Act has got two limbs, which are as follows:
51
(i) Duty cast on persons-in-charge or care to take all
reasonable measures to ensure the well-being of the
animal;
(ii) Duty to take reasonable measures to prevent the infliction
upon such animal of unnecessary pain and suffering.
Both the above limbs have to be cumulatively satisfied. Primary
duty on the persons-in-charge or care of the animal is to ensure
the well-being of the animal. ‘Well-being’ means state of being
comfortable, healthy or happy. Forcing the Bull and keeping the
same in the waiting area for a number of hours and subjecting it to
scorching sun, is not for the well-being of the animal. Forcing and
pulling bulls by nose ropes into the narrow closed enclosure of
vadi vassal, subjecting it to all forms of torture, fear, pain and
suffering by forcing it to go the arena and also over-powering it at
the arena by the Bull tamers, are not for the well-being of the
animal. The manner in which the Bull tamers are treating the
bulls in the arena is evident from the reports filed before this Court
by ABWI. By forcing the bull into the vadi vassal and then into the
arena, by no stretch of imagination, can be said to be “for the wellbeing
of such animal”. Organizers of Jallikattu are depriving the
rights guaranteed to the bulls under Section 3 of PCA Act. Sadism
52
and perversity is writ large in the actions of the organizers of
Jallikattu and the event is meant not for the well-being of the
animal, but for the pleasure and enjoyment of human beings,
particularly the organizers and spectators. Organizers of
Jallikattu feel that their bulls have only instrumental value to them,
forgetting their intrinsic worth. First limb of Section 3, as already
indicated, gives a corresponding right to the animal to ensure its
well-being. AWBI, a body established to look after the welfare of
the animals has to see that the person-in-charge or care of the
animals looks after their well-being. We have no hesitation to say
that Jallikattu /Bullock-cart race, as such, is not for the well-being
of the animal and, by undertaking such events, organizers are
clearly violating the first limb of Section 3 of the PCA Act.
28. We will now examine whether the second limb of Section 3
which casts a duty on the person in-charge or care of animal to
prevent the infliction upon an animal, unnecessary pain or
suffering, discharges that duty. Considerations, which are relevant
to determine whether the suffering is unnecessary, include
whether the suffering could have reasonably been avoided or
reduced, whether the conduct which caused the suffering was in
compliance with any relevant enactment. Another aspect to be
53
examined is whether the conduct causing the suffering was for a
legitimate purpose, such as, the purpose for benefiting the animals
or the purpose of protecting a person, property or another animal
etc. Duty is to prevent the infliction of unnecessary pain or
suffering, meaning thereby, no right is conferred to inflict
necessary/unnecessary pain or suffering on the animals. By
organizing Jallikattu and Bullock-cart race, the organizers are not
preventing the infliction of unnecessary pain or suffering, but they
are inflicting pain and suffering on the bulls, which they are legally
obliged to prevent. Section 3 is a preventive provision casting no
right on the organizers, but only duties and obligations. Section 3,
as already indicated, confers corresponding rights on the animals
as against the persons in-charge or care, as well as AWBI, to
ensure their well-being and be not inflicted with any unnecessary
pain or suffering. Jallikattu or Bullock-cart race, from the point of
the animals, is not an event ensuring their well-being or an event
meant to prevent the infliction of unnecessary pain or suffering, on
the contrary, it is an event against their well-being and causes
unnecessary pain and suffering on them. Hence, the two limbs of
Section 3 of PCA Act have been violated while conducting
Jallikattu and Bullock-cart race.
54
CRUELTY TO ANIMALS:
29. Section 11 generally deals with the cruelty to animals.
Section 11 confers no right on the organizers to conduct Jallikattu/
Bullock-cart race. Section 11 is a beneficial provision enacted for
the welfare and protection of the animals and it is penal in nature.
Being penal in nature, it confers rights on the animals and
obligations on all persons, including those who are in-charge or
care of the animals, AWBI etc. to look after their well-being and
welfare. The relevant portion of Section 11 reads as follows:
“11. Treating animals cruelty.- (1) If any person-
(a)Beats, kicks, over-rides, over-drives, overloads,
tortures or otherwise treats any animal
so as to subject it to unnecessary pain or
suffering or causes or, being the owner permits,
any animals to be so treated; or
(b)xxx xxx xxx
(c)willfully and unreasonably administers any
injuries drug or injurious substance to any
animal or wilfully and unreasonably causes or
attempts to cause any such drug or substance
to be taken by any animal; or
(d)xxx xxx xxx
(e)keeps or confines any animal in any cage or
other receptacle which does not measure
sufficiently in height, length or breadth to permit
the animal a reasonable opportunity for
movement; or
55
(f) keeps for an unreasonable time any animal
chained or tethered upon an unreasonably
short or unreasonable heavy chain or cord; or
(g)xxx xxx xxx
(h)being the owner of any animal, fails to provide
such animal with sufficient food, drink or
shelter; or
(i) xxx xxx xxx
(j) xxx xxx xxx
(k)xxx xxx xxx
(l) mutilates any animal or kills any animal
(including stray dogs) by using the method of
strychnine injections in the heart or in any other
unnecessarily cruel manner; or;
xxx xxx xxx
(2) For the purposes of sub-section (1), an
owner shall be deemed to have committed an offence if
he has failed to exercise reasonable care and
supervision with a view to the prevention of such
offence:
Provided that where an owner is convicted of
permitting cruelty by reason only of having failed to
exercise such care and supervision, he shall not be
liable to imprisonment without the option of a fine.
(3) xxx xxx xxx”
Section 11(1)(a) uses the expressions “or otherwise”,
“unnecessary pain or suffering” etc. Beating, kicking etc. go with
the event so also torture, if the report submitted by AWBI is
56
accepted. Even otherwise, according to AWBI, the expression “or
otherwise” takes in Jallikattu, Bullock-cart race etc. but, according
to the State of Tamil Nadu, that expression has to be understood
applying the doctrine of ejusdem generis . In our view, the
expression “or otherwise” is not used as words of limitation and the
legislature has intended to cover all situations, where the animals
are subjected to unnecessary pain or suffering. Jallikattu, Bullockcart
races and the events like that, fall in that expression under
Section 11(1)(a). The meaning of the expression “or otherwise”
came up for consideration in Lilavati Bai v. State of Bombay
1957 SCR 721 and the Court held that the words “or otherwise”
when used, apparently intended to cover other cases which may
not come within the meaning of the preceding clause. In our view,
the said principles also can be safely applied while interpreting
Section 11(1)(a).
30. Pain and suffering are biological traits. Pain, in particular,
informs an animal which specific stimuli, it needs to avoid and an
animal has pain receptors and a memory that allows it to
remember what caused the pain. Professor of Animal Welfare,
D.M.Broom of University of Cambridge in his articles appearing in
57
Chapter fourteen of the Book “Animal Welfare and the Law”
Cambridge University Press (1989) says:
“Behavioural responses to pain vary greatly from
one species to another, but it is reasonable to suppose
that the pain felt by all of these animals is similar to that
felt by man”.
Suffering has the same function, but instead of informing the
animal about stimuli to avoid, which informs it about a situation to
avoid. An animal might be regarded as suffering, if is in pain,
distress, or acute or unduly prolonged discomfort. Consequently,
to experience the suffering, the animal needs an awareness of its
environment, the ability to develop moods that coordinate a
behavioral response, and the capacity to change adverse situation
or avoid them. Reports submitted by AWBI clearly indicate that
Bulls are being treated with extreme cruelty and suffering, violating
the provisions of Section 11(1) of the PCA Act. Over and above,
Section 11(1), clauses (b) to (o) also confer various duties and
obligations, generally and specifically, on the persons in charge of
or care of animals which, in turn, confer corresponding rights on
animals, which, if violated, are punishable under the proviso to
Section 11(1) of the PCA Act.
DOCTRINE OF NECESSITY:
58
31. Section 11(3) carves out exceptions in five categories of
cases mentioned in Section 11(3)(a) to (e), which are as follows:
“11(3) Nothing in this section shall apply to-
(a) the dehorning of cattle, or the castration or
branding or nose-roping of any animal, in the
prescribed manner; or
(b) the destruction of stray dogs in lethal chambers
or by such other methods as may be prescribed;
or
(c) the extermination or destruction of any animal
under the authority of any law for the time being
in force; or
(d) any matter dealt with in Chapter IV; or
(e) the commission or omission of any act in the
course of the destruction or the preparation for
destruction of any animal as food for mankind
unless such destruction or preparation was
accompanied by the infliction of unnecessary
pain or suffering.”
Exceptions are incorporated based on the “doctrine of necessity”.
Clause (b) to Section 11(3) deals with the destruction of stray
dogs, out of necessity, otherwise, it would be harmful to human
beings. Clause (d) to Section 11(3) deals with matters dealt with in
Chapter IV, incorporated out of necessity, which deals with the
experimentation on animals, which is for the purpose of
advancement by new discovery of physiological knowledge or of
59
knowledge which would be useful for saving or for prolonging life
or alleviating suffering or for combating any disease, whether of
human beings, animals or plants, which is not prohibited and is
lawful. Clause (e) to Section 11(3) permits killing of animals as
food for mankind, of course, without inflicting unnecessary pain or
suffering, which clause is also incorporated ‘out of necessity’.
Experimenting on animals and eating their flesh are stated to be
two major forms of speciesism in our society. Over and above, the
Legislature, by virtue of Section 28, has favoured killing of animals
in a manner required by the religion of any community.
Entertainment, exhibition or amusement do not fall under these
exempted categories and cannot be claimed as a matter of right
under the doctrine of necessity.
32. Sections 3 and 11, as already indicated, therefore, confer no
right on the organisers of Jallikattu or bullock-cart race, but only
duties, responsibilities and obligations, but confer corresponding
rights on animals. Sections 3, 11(1)(a) & (o) and other related
provisions have to be understood and read along with Article
51A(g) of the Constitution which cast fundamental duties on every
citizen to have “compassion for living creatures”. Parliament, by
incorporating Article 51A(g), has again reiterated and re60
emphasised the fundamental duties on human beings towards
every living creature, which evidently takes in bulls as well. All
living creatures have inherent dignity and a right to live peacefully
and right to protect their well-being which encompasses protection
from beating, kicking, over-driving, over-loading, tortures, pain and
suffering etc. Human life, we often say, is not like animal
existence, a view having anthropocentric bias, forgetting the fact
that animals have also got intrinsic worth and value. Section 3 of
the PCA Act has acknowledged those rights and the said section
along with Section 11 cast a duty on persons having charge or
care of animals to take reasonable measures to ensure well-being
of the animals and to prevent infliction of unnecessary pain and
suffering.
PERFORMING ANIMALS
33. All animals are not anatomically designed to be performing
animals. Bulls are basically Draught and Pack animals. they are
live-stock used for farming and agriculture purposes, like
ploughing, transportation etc. Bulls, it may be noted, have been
recognized as Draught and Pack animals in the Prevention of
Cruelty to Draught and Pack Animals Rules, 1965. Draught
means an animal used for pulling heavy loads. Rules define large
61
bullock to mean a bullock the weight of which exceeds 350 Kgs.
Bullocks have a large abdomen and thorax and the entire body
has a resemblance to a barrel shape, which limits ability to run.
Bulls have also limitations on flexing joins and the rigid heavily built
body and limited flexion of joints do not favour running faster. Due
to that body constitution, the Prevention of Cruelty to Animals
(Transportation of Animals on Foot) Rules, 2001, especially Rule
11 says that no person shall use a whip or a stick in order to force
the animal to walk or to hasten the pace of their walk. Bulls, it
may be noted, are cloven footed (two digits) animals and two digits
in each leg can comfortably bear weight only when they are
walking, not running. Horse, on the other hand, is a solid hoofed
plant-eating quadruped with a flowing mane and tail, domesticated
for riding and as a draught animal. Horse power, we call it as an
imperial unit of power, equal to 550 foot-pounds per second.
Horse’s anatomy enables it to make use of speed and can be
usefully used for horse racing etc., unlike Bulls.
34. Bulls, therefore, in our view, cannot be a performing animal,
anatomically not designed for that, but are forced to perform,
inflicting pain and suffering, in total violation of Sections 3 and
Section 11(1) of PCA Act. Chapter V of the PCA Act deals with
62
the performing animals. Section 22 of the PCA Act places
restriction on exhibition and training of performing animals, which
reads as under:
“22. Restriction on exhibition and training of
performing animals : No person shall exhibit or train
(i) any performing animal unless he is registered in
accordance with the provisions of this Chapter;
(ii) as a performing animal, any animal which the
Central Government may, by notification in the official
gazette, specify as an animal which shall not be
exhibited or trained as a performing animal.”
35. The words ‘exhibit’ and ‘train’ are defined in Section 21 of the
PCA Act, which is as follows:
“21. “Exhibit” and “train” defined: In this Chapter,
“exhibit” means exhibit or any entertainment to which
the public are admitted through sale of tickets, and
“train” means train for the purpose of any such
exhibition, and the expressions “exhibitor” and
“trainer” have respectively the corresponding
meanings.”
36. Section 23 of the PCA Act deals with the procedure for
registration. Section 24 of the PCA Act deals with the powers of
the court to prohibit or restrict exhibition and training of performing
animals. Section 25 of the PCA Act confers powers on any
authorised person to enter into the premises to examine as to
63
whether the statutory requirements are properly complied with.
Section 26 of the PCA Act deals with the offences and Section 27
of the PCA Act deals with exemptions. Performing Animals Rules,
1973 define ‘performing animal’ to mean any animal which is used
at, or for the purpose of any entertainment to which public are
admitted through sale of tickets. Jallikattu, Bullock-cart races, it
was contended, are conducted without sale of tickets and hence
Section 22 of the PCA Act would not apply, so also the notification
dated 11.7.2011. We find no substance or logic in that
submission. It may be noted that when Bull is specifically
prohibited to be exhibited or trained for performance, the question
whether such performance, exhibition or entertainment is
conducted with sale of tickets or not, is irrelevant from the point of
application of Sections 3 and 11(1) of the PCA Act.
37. We may, in this respect, refer to Section 11(1)(m) which
reads as follows:
“11. Treating animals cruelty.- (1) If any personxxx
xxx xxx
xxx xxx xxx
(m)solely with a view to providing entertainment-
(i) confines or causes to be confined any
animal (including tying of an animal as
64
a bait in a tiger or other sanctuary) so
as to make it an object of prey for any
other animal; or
(ii) incites any animal to fight or bait any
other animal; or.”
Section 11(1)(m)(ii), therefore, says, if any person, solely with a
view to providing entertainment incites any animal to fight, shall be
punishable under the proviso to Section 11(1). In Jallikattu, Bull is
expected to fight with various Bull tamers, for which it is incited
solely to provide entertainment for the spectators by sale of tickets
or otherwise. Inciting the Bull to fight with another animal or
human being matters little, so far as the Bull is concerned, it is a
fight, hence, cruelty. Jallikattu, Bullock-cart Race, therefore,
violate not only Sections, 3, 11(1)(a) & (m) and Section 22, but
also the notification dated 11.7.2011 issued by the Central
Government under Section 22(ii) of the PCA Act.
38. We may, in this connection, also refer to the Performing
Animals (Registration) Rules, 2001. Rule 8 deals with the general
condition of registration. Rule 8(v) states that the owner shall
ensure that any animal is not inflicted unnecessary pain or
suffering before or during or after its training or exhibition. Rule
8(vii) specifically caution that the owner shall train the animal as a
performing animal to perform an act in accordance with the
65
animals’ natural instinct. Bull is trained not in accordance with its
natural instinct for the Jallikattu or Bullock-cart race. Bulls, in
those events, are observed to carry out a “flight response” running
away from the crowd as well as from the Bull tamers, since they
are in fear and distress, this natural instinct is being exploited.
39. Animal Welfare Division of MoEF, represented by its
Director, submitted a note file on 27.1.2011 to the Minister
specifically referring to the affidavit filed by the AWBI before this
Court in Writ Petition No. 145 of 2011 and the relevant portion of
the affidavit reads as follows:
“I affirm on behalf of the Animal Welfare Board of India
that Jallikattu is indeed an extremely cruel and barbaric
sport, in which the Bulls that are forced to participate are
brutalized and subjected to unnecessary pain and
suffering. Surrounded by huge crowds of shouting,
screaming people intent upon seeing them cruelly
subdued and overpowered, regardless of what they
endure, the bulls are subjected to terrible acts of cruelty.
They are beaten, kicked, and chilly-powder rubbed into
their eyes. Their humps and horns are seized and
twisted and turned during the course of the ‘sport’,
leading to injuries, tears and bleeding and the animals
toppling over. All of this occurs while they are
surrounded by the jeering, frenzied crowd. In fact, the
tails of the animals are routinely pulled, twisted and
turned, leading to painful injuries and often to broken
tails. By no stretch of imagination can the bulls be
termed as “performing animals” or “trained for the sport”.
In fact, what occurs during the event is that the
participating bulls are forced to endure unnecessary
pain and suffering beyond measure. It is for this reason
66
that the answering respondent had represented to the
Central Government that this barbaric, pre-historic event
masquerading under the guise of sport, be banned.
(emphasis supplied)
Further, it was also stated in the affidavit that:
“I also affirm on behalf of the Answering Respondent
that seeking to ‘regulate’ a barbaric event involving
unnecessary pain and suffering for the animals forced to
participate in the same cannot legalize or confer
legitimacy upon the event. Moreover, that the Tamil
Nadu Regulation of Jallikattu Act 2009 is ultra vires the
Constitution of India, and repugnant to the provisions of
the Prevention of Cruelty to Animals Act.”
Note referred to above also made a reference to the Madras High
Court judgment pointing out that Jallikattu and other related events
are exhibition of performance of trained animals, permitted under
Chapter V of PCA Act. Noticing all those aspects, especially
taking note of the stand of AWBI, it recommended that all such
events be stopped, especially Bulls as performing animals under
Section 22 of PCA Act, similar to the ban already introduced in the
case of Bears, Tigers etc.
40. Stand of the Animal Welfare Division of MoEF and AWBI was
accepted by the Central Government (MoEF) and a notification
dated 11.7.2011 was issued, which was also gazetted on the same
date, including Bull also in the category of banned animals. Power
is conferred on the Central Government under Section 22(ii) to ban
67
the exhibition or training of any animal as a performing animal.
Following its earlier notification dated 14.10.1998, as already
stated, the MoEF issued another notification dated 11.7.2011
including “Bull” also as an animal not to be exhibited or trained for
exhibition as a performing animal, which is a conscious decision
taken by the MoEF on relevant materials, while this Court was
seized of the matter. AWBI’s advice under Sections 9(a) and (l) as
well as the note of Animal Welfare Division of MoEF was accepted
by the Central Government and now it cannot take a contrary
stand, that too, without consulting the AWBI, whose advice was
already accepted and acted upon.
41. Jallikattu as well as the Bullock-cart races etc., as an event,
according to the Board, violate Sections 3 and 11(1)(a) & (m) of
the PCA Act read with Article 51A(g) of the Constitution of India.
MoEF, in exercise of its powers conferred under Section 22 of the
PCA Act, as already stated, after noticing the stand of the Board,
issued a notification specifying that Bulls shall not be exhibited or
trained as performing animals, that position still stands. MoEF, it is
seen, so far as the State of Maharashtra is concerned, is not
recognising that Bullock-cart race is part and parcel of the tradition
of the people of Maharashtra and that it has any cultural, historical
68
or religious significance. The State of Maharashtra, in its order
dated 20.4.2012, has clearly acknowledged that the organisation
of animal sports in the State, mainly in its rural hinterland, like
Bull /Ox / Bullock-cart race etc. is nothing but violence to the
dumb animals and has to be prohibited. The State Government
evidently did not give its stamp of approval to the so-called
cultural, historical importance to the Bullock-cart Race and that
order has not been challenged. But, so far as the State of Tamil
Nadu is concerned, now a proposal has been made to exempt
bulls, participating in Jallikattu from the purview of the notification
dated 11.07.2011 stating that it has historic, cultural and religious
significance in the State.
CULTURE AND TRADITION
42. The Statement of Objects and Reasons of the TNRJ Act
refers to ancient culture and tradition and does not state that it has
any religious significance. Even the ancient culture and tradition
do not support the conduct of Jallikattu or Bullock cart race, in the
form in which they are being conducted at present. Welfare and
the well-being of the bull is Tamil culture and tradition, they do not
approve of infliction of any pain or suffering on the bulls, on the
other hand, Tamil tradition and culture are to worship the bull and
69
the bull is always considered as the vehicle of Lord Shiva. Yeru
Thazhuvu, in Tamil tradition, is to embrace bulls and not overpowering
the bull, to show human bravery. Jallikattu means, silver
or gold coins tied to the bulls horns and in olden days those who
get at the money to the bulls horns would marry the daughter of
the owner. Jallikattu or the bullock cart race, as practised now,
has never been the tradition or culture of Tamil Nadu.
43. PCA Act, a welfare legislation, in our view, over-shadows or
overrides the so-called tradition and culture. Jallikattu and Bullock
cart races, the manner in which they are conducted, have no
support of Tamil tradition or culture. Assuming, it has been in
vogue for quite some time, in our view, the same should give way
to the welfare legislation, like the PCA Act which has been
enacted to prevent infliction of unnecessary pain or suffering on
animals and confer duties and obligations on persons in-charge of
animals. Of late, there are some attempts at certain quarters, to
reap maximum gains and the animals are being exploited by the
human beings by using coercive methods and inflicting
unnecessary pain for the pleasure, amusement and enjoyment.
We have a history of doing away with such evil practices in the
society, assuming such practices have the support of culture and
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tradition, as tried to be projected in the TNRJ Act. Professor
Salmond states that Custom is the embodiment of those principles
which have commended themselves to the national conscience as
the principles of justice and public utility. This Court, in N.
Adithayan v. Thravancore Dewaswom Board and Others
(2002) 8 SCC 106, while examining the scope of Articles 25(1),
2(a), 26(b), 17, 14 and 21, held as follows:
“18………. Any custom or usage irrespective of
even any proof of their existence in pre-constitutional
days cannot be countenanced as a source of law to
claim any rights when it is found to violate human rights,
dignity, social equality and the specific mandate of the
Constitution and law made by Parliament. No usage
which is found to be pernicious and considered to be in
derogation of the law of the land or opposed to public
policy or social decency can be accepted or upheld by
courts in the country.”
44. As early as 1500-600 BC in Isha-Upanishads, it is professed
as follows:
“The universe along with its creatures belongs to
the land. No creature is superior to any other. Human
beings should not be above nature. Let no one species
encroach over the rights and privileges of other
species.”
45. In our view, this is the culture and tradition of the country,
particularly the States of Tamil Nadu and Maharashtra.
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46. PCA Act has been enacted with an object to safeguard the
welfare of the animals and evidently to cure some mischief and
age old practices, so as to bring into effect some type of reform,
based on eco-centric principles, recognizing the intrinsic value and
worth of animals. All the same, the Act has taken care of the
religious practices of the community, while killing an animal vide
Section 28 of the Act.
INTERNATIONAL APPROACH TO ANIMALS WELFARE
47. We may, at the outset, indicate unfortunately, there is no
international agreement that ensures the welfare and protection of
animals. United Nations, all these years, safeguarded only the
rights of human beings, not the rights of other species like animals,
ignoring the fact that many of them, including Bulls, are sacrificing
their lives to alleviate human suffering, combating diseases and as
food for human consumption. International community should
hang their head in shame, for not recognizing their rights all these
ages, a species which served the humanity from the time of Adam
and Eve. Of course, there has been a slow but observable shift
from the anthropocentric approach to a more nature’s right centric
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approach in International Environmental Law, Animal Welfare
Laws etc. Environmentalist noticed three stages in the
development of international environmental law instrument, which
are as under:
(a) The First Stage: Human self-interest reason for
environmental protection
– The instruments in this stage were fuelled by the
recognition that the conservation of nature was in the
common interest of all mankind.
– Some the instruments executed during this time
included the Declaration of the Protection of Birds
Useful to Agriculture (1875), Convention Designed to
Ensure the Protection of Various Species of Wild
Animals which are Useful to Man or Inoffensive
(1900), Convention for the Regulation of Whaling
(1931) which had the objective of ensuring the health
of the whaling industry rather than conserving or
protecting the whale species.
– The attitude behind these treaties was the assertion of
an unlimited right to exploit natural resources – which
derived from their right as sovereign nations.
(b) The Second Stage: International Equity
– This stage saw the extension of treaties beyond the
requirements of the present generation to also meet
73
the needs to future generations of human beings.
This shift signalled a departure from the pure tenets of
anthropocentrism.
– For example, the 1946 Whaling Convention which built
upon the 1931 treaty mentioned in the preamble that
“it is in the interest of the nations of the world to
safeguard for future generations the great natural
resource represented by the whale stocks”. Similarly,
the Stockholm Declaration of the UN embodied this
shift in thinking, stating that “man …… bears a solemn
responsibility to protect and improve the environment
for present and future generations” and subsequently
asserts that “the natural resources of the earth ….
must be safeguarded for the benefit of present and
future generations through careful planning and
management”. Other documents expressed this shift
in terms of sustainability and sustainable
development.
(c) The Third Stage: Nature’s own rights
– Recent Multinational instruments have asserted the
intrinsic value of nature.
– UNEP Biodiversity Convention (1992) “Conscious of
the intrinsic value of biological diversity and of the
ecological, genetic, social, economic, educational,
cultural, recreational and aesthetic values of biological
diversity and its components …. [we have] agreed as
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follows:……”. The World Charter for Nature proclaims
that “every form of life is unique, warranting respect
regardless of its worth to man.” The Charter uses the
term “nature” in preference to “environment” with a
view to shifting to non-anthropocentric humanindependent
terminology.”
48. We have accepted and applied the eco-centric principles in
T. N. Godavarman Thirumulpad v. Union of India and Others
(2012) 3 SCC 277, T. N. Godavarman Thirumulpad v. Union of
India and Others (2012) 4 SCC 362 and in Centre for
Environmental Law World Wide Fund – India v. Union of India
and Others (2013) 8 SCC 234.
49. Based on eco-centric principles, rights of animals have been
recognized in various countries. Protection of animals has been
guaranteed by the Constitution of Germany by way of an
amendment in 2002 when the words “and the animals” were added
to the constitutional clauses that obliges ‘state’ to respect ‘animal
dignity’. Therefore, the dignity of the animals is constitutionally
recognised in that country. German Animal Welfare Law,
especially Article 3 provides far-reaching protections to animals
including inter alia from animals fight and other activities which
may result in the pain, suffering and harm for the animals.
75
Countries like Switzerland, Austria, Slovenia have enacted
legislations to include animal welfare in their national Constitutions
so as to balance the animal owners’ fundamental rights to property
and the animals’ interest in freedom from unnecessary suffering or
pain, damage and fear.
50. Animals Welfare Act of 2006 (U.K.) also confers considerable
protection to the animals from pain and suffering. The Austrian
Federal Animal Protection Act also recognises man’s
responsibilities towards his fellow creatures and the subject
“Federal Act” aims at the protection of life and well being of the
animals. The Animal Welfare Act, 2010 (Norway) states “animals
have an intrinsic value which is irrespective of the usable value
they may have for man. Animals shall be treated well and be
protected from the danger of unnecessary stress and strain.
Section 26 of the Legislation prohibits training an animal to fight
with people, the operative portion of the same reads as follows :
“Any person who trains animals and who uses
animals which are used for showing, entertainment
and competitions, including those who organise such
activities, shall ensure that the animals:
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(a) xxx xxx xxx
(b) xxx xxx xxx
(c) xxx xxx xxx
(d) are not trained for or used in fights with other
animals or people.”
51. When we look at the rights of animals from the national and
international perspective, what emerges is that every species has
an inherent right to live and shall be protected by law, subject to
the exception provided out of necessity. Animal has also honour
and dignity which cannot be arbitrarily deprived of and its rights
and privacy have to be respected and protected from unlawful
attacks.
52. Universal Declaration of Animal Welfare (UDAW) is a
campaign led by World Society for the Protection of Animals
(WSPA) in an attempt to secure international recognition for the
principles of animal welfare. UDAW has had considerable support
from various countries, including India. WSPA believes that the
world should look to the success of the Universal Declaration of
Human Rights (UDHR) to set out what UDAW can achieve for
animals. Five freedoms referred to in UDAW, which we will deal
with in latter part of the judgment, find support in PCA Act and the
rules framed thereunder to a great extent.
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53. World Health Organization of Animal Health (OIE), of which
India is a member, acts as the international reference organisation
for animal health and animal welfare. OIE has been recognised as
a reference organisation by the World Trade Organisation (WTO)
and, in the year 2013, it has a total of 178 member countries. On
animal welfare, OIE says that an animal is in good state of welfare
if (as indicated by Scientific evidence) it is healthy, comfortable,
well nourished, safe, able to express innate behaviour and if it is
not suffering from unpleasant states such as pain, fear and
distress.
FREEDOM:
54. Chapter 7.1.2 of the guidelines of OIE, recognizes five
internationally recognized freedoms for animals, such as:
(i) freedom from hunger, thirst and malnutrition;
(ii) freedom from fear and distress;
(iii) freedom from physical and thermal discomfort;
(iv) freedom from pain, injury and disease; and
(v) freedom to express normal patterns of behaviour.
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Food and Agricultural Organisation (FAO) in its “Legislative and
Regulatory Options for Animal Welfare” indicated that these five
freedoms found their place in Farm Welfare Council 2009 U.K. and
is also called Brambell’s Five Freedoms. These five freedoms, as
already indicated, are considered to be the fundamental principles
of animal welfare and we can say that these freedoms find a place
in Sections 3 and 11 of PCA Act and they are for animals like the
rights guaranteed to the citizens of this country under Part III of the
Constitution of India.
55. Animals are world-wide legally recognised as ‘property’ that
can be possessed by humans. On deletion of Article 19(1)(f) from
the Indian Constitution, right to property is more a fundamental
right in India, this gives the Parliament more a leeway to pass laws
protecting the rights of animals. Right to hold on to a property
which includes animals also, is now only a legal right not a
fundamental right. We have also to see the rights of animals in
that perspective as well.
56. Rights guaranteed to the animals under Sections 3, 11, etc.
are only statutory rights. The same have to be elevated to the
status of fundamental rights, as has been done by few countries
around the world, so as to secure their honour and dignity. Rights
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and freedoms guaranteed to the animals under Sections 3 and 11
have to be read along with Article 51A(g)(h) of the Constitution,
which is the magna carta of animal rights.
COMPASSION:
57. Article 51A(g) states that it shall be the duty of citizens to
have compassion for living creatures. In State of Gujarat v.
Mirzapur Moti Kureshi Kassab Jamat and Others (2005) 8 SCC
534, this Court held that by enacting Article 51A(g) and giving it the
status of a fundamental duty, one of the objects sought to be
achieved by Parliament is to ensure that the spirit and message of
Articles 48 and 48-A are honoured as a fundamental duty of every
citizen. Article 51A(g), therefore, enjoins that it was a fundamental
duty of every citizen “to have compassion for living creatures”,
which means concern for suffering, sympathy, kindliness etc.,
which has to be read along with Sections 3, 11(1)(a) & (m), 22 etc.
of PCA Act.
HUMANISM:
58. Article 51A(h) says that it shall be the duty of every citizen to
develop the scientific temper, humanism and the spirit of inquiry
and reform. Particular emphasis has been made to the expression
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“humanism” which has a number of meanings, but increasingly
designates as an inclusive sensibility for our species. Humanism
also means, understand benevolence, compassion, mercy etc.
Citizens should, therefore, develop a spirit of compassion and
humanism which is reflected in the Preamble of PCA Act as well
as in Sections 3 and 11 of the Act. To look after the welfare and
well-being of the animals and the duty to prevent the infliction of
pain or suffering on animals highlights the principles of humanism
in Article 51A(h). Both Articles 51A(g) and (h) have to be read into
the PCA Act, especially into Section 3 and Section 11 of the PCA
Act and be applied and enforced.
SPECIESISM:
59. Speciesism as a concept coined by Richard Ryder in his
various works on the attitude to animals, like Animal Revolution,
Changing Attitudes towards Speciesism (Oxford: Basil Blackwell,
1989), Animal Welfare and the Environment (London: Gerald
Duckworth, 1992) etc. Oxford English Dictionary defines the term
as “the assumption of human superiority over other creatures,
leading to the exploitation of animals”. Speciesism is also
described as the widespread discrimination that is practised by
man against the other species, that is a prejudice or attitude of
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bias towards the interest of members of one’s own species and
against those of members of other species. Speciesism as a
concept used to be compared with Racism and Sexism on the
ground that all those refer to discrimination that tend to promote or
encourage domination and exploitation of members of one group
by another. One school of thought is that Castism, Racism and
Sexism are biological classification, since they are concerned with
physical characteristics, such as, discrimination on the ground of
caste, creed, religion, colour of the skin, reproductive role etc.
rather than with physical properties, such as the capacity for being
harmed or benefited.
60. We have got over those inequalities like Castism, Racism,
Sexism etc. through Constitutional and Statutory amendments, like
Articles 14 to 17, 19, 29 and so on. So far as animals are
concerned, Section 3 of the Act confers right on animals so also
rights under Section 11 not to be subjected to cruelty. When such
statutory rights have been conferred on animals, we can always
judge as to whether they are being exploited by human-beings. As
already indicated, an enlightened society, of late, condemned
slavery, racism, castism, sexism etc. through constitutional
amendments, laws etc. but, though late, through PCA Act,
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Parliament has recognized the rights of animals, of course, without
not sacrificing the interest of human beings under the Doctrine of
necessity, like experiments on animals for the purpose of
advancement by new discovery of physiological knowledge or of
knowledge which will be useful for saving or for prolonging life or
alleviating suffering or for combating any disease, whether of
human beings, animals or plants and also destruction of animals
for food under Section 11(3) of the PCA Act. Legislature through
Section 28 also saved the manner of killing of animals in the
manner prescribed by religions, those are, in our view, reasonable
restrictions on the rights enjoyed by the animals under Section 3
read with Section 11(1). Evidently, those restrictions are the direct
inevitable consequences or the effects which could be said to have
been in the contemplation of the legislature for human benefit,
since they are unavoidable. Further, animals like Cows, Bulls etc.
are all freely used for farming, transporting loads etc., that too, for
the benefit of human beings, thereby subjecting them to some pain
and suffering which is also unavoidable, but permitted by the Rules
framed under the PCA Act.
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NON-ESSENTIAL ACTIVITIES:
61. We have, however, lot of avoidable non-essential human
activities like Bullock-cart race, Jallikattu etc. Bulls, thinking that
they have only instrumental value are intentionally used though
avoidable, ignoring welfare of the Bulls solely for human pleasure.
Such avoidable human activities violate rights guaranteed to them
under Sections 3 and 11 of PCA Act. AWBI, the expert statutory
body has taken up the stand that events like Jallikattu, Bullock-cart
race etc. inherently involve pain and suffering, which involves both
physical and mental components, including fear and distress.
Temple Grandin and Catherine Johnson, in their work on “Animals
in Translation” say:
“The single worst thing you can do to an animal
emotionally is to make it feel afraid. Fear is so bad for
animals I think it is worse than pain. I always get
surprised looks when I say this. If you gave most
people a choice between intense pain and intense fear,
they’d probably pick fear.”
Both anxiety and fear, therefore, play an important role in animal
suffering, which is part and parcel of the events like Jallikattu,
Bullock-cart Race etc..
RIGHT TO LIFE:
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62. Every species has a right to life and security, subject to the
law of the land, which includes depriving its life, out of human
necessity. Article 21 of the Constitution, while safeguarding the
rights of humans, protects life and the word “life” has been given
an expanded definition and any disturbance from the basic
environment which includes all forms of life, including animal life,
which are necessary for human life, fall within the meaning of
Article 21 of the Constitution. So far as animals are concerned, in
our view, “life” means something more than mere survival or
existence or instrumental value for human-beings, but to lead a life
with some intrinsic worth, honour and dignity. Animals’ well-being
and welfare have been statutorily recognised under Sections 3 and
11 of the Act and the rights framed under the Act. Right to live in
a healthy and clean atmosphere and right to get protection from
human beings against inflicting unnecessary pain or suffering is a
right guaranteed to the animals under Sections 3 and 11 of the
PCA Act read with Article 51A(g) of the Constitution. Right to get
food, shelter is also a guaranteed right under Sections 3 and 11 of
the PCA Act and the Rules framed thereunder, especially when
they are domesticated. Right to dignity and fair treatment is,
therefore, not confined to human beings alone, but to animals as
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well. Right, not to be beaten, kicked, over-ridder, over-loading is
also a right recognized by Section 11 read with Section 3 of the
PCA Act. Animals have also a right against the human beings not
to be tortured and against infliction of unnecessary pain or
suffering. Penalty for violation of those rights are insignificant,
since laws are made by humans. Punishment prescribed in
Section 11(1) is not commensurate with the gravity of the offence,
hence being violated with impunity defeating the very object and
purpose of the Act, hence the necessity of taking disciplinary
action against those officers who fail to discharge their duties to
safeguard the statutory rights of animals under the PCA Act.
63. Jallikattu and other forms of Bulls race, as the various reports
indicate, causes considerable pain, stress and strain on the bulls.
Bulls, in such events, not only do move their head showing that
they do not want to go to the arena but, as pain is being inflicted in
the vadivasal is so much, they have no other go but to flee to a
situation which is adverse to them. Bulls, in that situation, are
stressed, exhausted, injured and humiliated. Frustration of the
Bulls is noticeable in their vocalization and, looking at the facial
expression of the bulls, ethologist or an ordinary man can easily
sense their suffering. Bulls, otherwise are very peaceful animals
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dedicating their life for human use and requirement, but are
subjected to such an ordeal that not only inflicts serious suffering
on them but also forces them to behave in ways, namely, they do
not behave, force them into the event which does not like and, in
that process, they are being tortured to the hilt. Bulls cannot carry
the so-called performance without being exhausted, injured,
tortured or humiliated. Bulls are also intentionally subjected to
fear, injury – both mentally and physically – and put to
unnecessary stress and strain for human pleasure and enjoyment,
that too, a species totally dedicated its life for human benefit, out of
necessity.
64. We are, therefore, of the view that Sections 21, 22 of the
PCA Act and the relevant provisions have to be understood in the
light of the rights conferred on animals under Section 3, read with
Sections 11(1)(a) & (o) and Articles 51A(g) and (h) of the
Constitution, and if so read, in our view, Bulls cannot be used as a
Performing Animals for Jallikattu and Bullock-cart Race, since they
are basically draught and pack animals, not anatomically designed
for such performances.
REPUGNANCY:
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65. We may now examine whether provisions of the TNRJ Act,
which is a State Act, is repugnant to the PCA Act, which is a
Central Act, since, both the Acts fall under Entry No. 17 in the
Concurrent List. Repugnancy between the Parliamentary
Legislation and State Legislation arises in two ways:
(i) Where the legislations, though enacted with respect to
the matters in their allotted sphere, overlap conflict and
(ii) Where two legislations are with respect to the same
matters in the concurrent list and there is a conflict.
In both the situations, the Parliamentary legislation will
predominate in the first by virtue of the non-obstante clause in
Article 246(1), and in the second by reason of Article 254(1) of the
Constitution. The law on this point has been elaborately
discussed by this Court in the case of Vijay Kumar Sharma v.
State of Karnataka (1990) 2 SCC 562.
66. Instances are many, where the State law may be
inconsistent with the Central law, where there may be express
inconsistency in actual terms of the two legislations so that one
cannot be obeyed without disobeying the other. Further, if the
Parliamentary legislation, if intended to be a complete and
exhaustive code, then though there is no direct conflict, the State
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law may be inoperative. Repugnancy will also arise between two
enactments even though obedience to each of them is possible
without disobeying the other, if a competent legislature with a
superior efficacy expressly or impliedly evinces by its legislation an
intention to cover the whole field.
67. In M. Karunanidhi v. Union of India AIR 1979 SC 898, this
Court held that, in order to decide the question of repugnancy, it
must be shown that the two enactments contain inconsistent and
irreconcilable provisions, therefore, they cannot stand together or
operate in the same field. Further, it was also pointed out that
there can be no repeal by implication, unless inconsistency
appears on the face of those statutes. Further, where two
statutes occupy a particular field, but there is room or possibility of
both the statutes operating in the same field without coming into
collision with each other, no repugnancy results. Further, it was
also noticed that there is no inconsistency, but a statute occupying
the same field seeks to create distinct and separate offences, no
question of repugnancy arises and both the statutes continue to
operate in the same field.
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68. In Jaya Gokul Educational Trust v. Commissioner &
Secretary to Government Higher Education Department,
Thiruvanathapuram, Kerala State and Another (2000) 5 SCC
231, this Court took the view that the repugnancy may arise
between two enactments even though obedience of each of them
is possible without disobeying the other, if a competent legislature
of superior efficacy, expressly or impliedly, evinces by the State
legislation a clear intention to cover the whole field and the
enactment of the other legislature, passed before or after, would
be over-borne on the ground of repugnancy.
69. We may, bearing in mind the above principles, examine
whether there is any repugnancy between PCA Act and TNRJ Act
so as to have inconsistent and inconceivable provisions so that
they cannot stand together or operate in the same field. Both the
legislators trace their legislative power in Entry 17 List III.
“Prevention of Cruelty to animals.”
70. We have to examine whether while enacting the PCA Act,
the Parliament has evinced its intention to cover the whole field.
To examine the same, we have to refer to the Statement of
Objects of the Act, Preamble and other relevant statutory
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provisions, which would indicate that the Parliament wanted a
comprehensive act with the object of promoting message of
animal welfare and for preventing cruelty to the animals. The
Statement of Objects and Reasons of the Act reads as follows:
“Statement of Objects and Reasons
The Committee for the prevention of cruelty to
animals appointed by the Government of India drew
attention to a number of deficiencies in the Prevention of
Cruelty to Animals Act, 1890 (Central Act No. 11 of
1980) and suggested a replacement by a more
comprehensive Act. The existing Act has restricted
scope as:
(1)it applies only to urban areas within municipal
limits;
(2)it defines the term ‘animal’ as meaning any
domestic or captured animal and thus contains
no provision for prevention of cruelty to animals
other than domestic and captured animals;
(3)it covers only certain specified types of cruelty
to animals; and
(4)penalties for certain offences are inadequate.
The Bill is intended to give effect to those
recommendations of the Committee which have been
accepted by the Government of India and in respect of
which Central Legislation can be undertaken. The
existing Act is proposed to be repealed.
Besides declaring certain type of cruelty to
animals to be offences and providing necessary
penalties for such offences and making some of the
more serious of them cognizable, the Bill also contains
provisions for the establishment of an Animal Welfare
Board with the object of promoting measures for animal
welfare.
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Provisions is also being made for the
establishment of a Committee to control experimentation
on animals when the Government, on the advice of the
Animal Welfare Board, is satisfied that it is necessary to
do so for preventing cruelty to animals during
experimentation. The Bill also contains provisions for
licensing and regulating the training and performance of
animals for the purpose of any entertainment to which
the public are admitted through sale of tickets.
71. Section 3 has been specifically enacted, as already indicated,
to confer duties on persons who are in-charge or care of the
animals, which says, it is the duty of such persons to ensure the
well-being of such animals and to prevent infliction of unnecessary
pain or suffering upon the animals. In other words, the well-being
and welfare of the animals is the paramount and dominant intention
of the PCA Act and with that intention it has conferred duties on the
person in-charge or care of the animals and correspondent rights
on the animals. Section 11 confers obligations on all persons,
including persons-in-charge or care of the animals to see that
Section 3 has been fully obeyed. Exemptions to Section 11 have
been provided in sub-section (3) on the doctrine of necessity, which
concept we have already dealt with in the earlier part of the
judgment. Section 22 of PCA Act, which deals with “performing
animals”, has to be read along with Sections 3, 11(1), 11(3) of the
Act and that expects only the animal to perform in an exhibition and
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Bull tamers have no role unlike TNRJ Act. Sections 21 and 22
refer to training of animals for performance and not training to
withstand the onslaught of Bull tamers. Sections 3, 11 or 22 do not
confer any right on the human beings to over-power the animals
while it is performing, on the other hand, under Section 11(m),
inciting an animal to fight is an offence.
72. Section 38 of the PCA Act confers rule-making powers on the
Central Government and, in exercise of its rule-making powers, the
Central Government made the Performing Animal Rules, 1973 and
the Performing Animals (Registration) Rules, 2001 and thrust of all
the substantive and procedural provisions is the welfare and wellbeing
of the animal and the duties and obligations of the persons
who are in-charge of the animals and also to safeguard the rights
conferred on the animals. Rule 8(vii) specifically refers to animals’
“basic natural instinct” and cautions that the basic natural instinct of
the animals be protected and be not exploited.
73. The TNRJ Act, 2009 is an anthropocentric legislation enacted
not for the welfare of the animals, unlike PCA Act, which is an ecocentric
legislation, enacted to ensure the well-being and welfare of
the animals and to prevent unnecessary pain or suffering of the
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animals. The State Act basically safeguards the interest of the
organizers and spectators while conducting the event of Jallikattu.
Act has no Preamble and the Statement of Objects and Reasons of
the Act reads as follows:
“STATEMENT OF OBJECTS AND REASONS.
“Jallikattu” includes “manjuvirattu”, “Oormadu”,
“Vadamadu” or “Erudhu vidum vizha”. The said function
consists of taming of bulls as a part of ancient culture
and tradition of the Tamils. The said tradition is in
vogue for more than 400 years. At present, there is no
legislation to regulate the conduct of Jallikattu,
manjuvirattu, Oormadu, Vadamadu, Erudhu vidum
vizha or any such activity involving the taming of bulls.
The Government have, therefore, decided to bring out a
legislation to regulate the conduct of the Jallikattu in the
State of Tamil Nadu by prescribing norms to hold such
events and to ensure the safety of animals, participants
and the spectators.
2. The Bill seeks to give effect to the above
decisions.”
Section 4 deals with the responsibility of the organizers. Section
4(3) provides for double barricade area in order to avoid injuries to
the spectators and by-standers, the prime consideration is,
therefore, to avoid injuries to spectators and by-standers and not
that of the animal. Section 4(iv) deals with the fixing the gallery for
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the spectators to sit and watch the event. Section 4(vi) empowers
the Animal Husbandry Department to test the bulls to ensure that
performance enhancement drugs are not administered. Duties
have also been assigned to the District Collector, under Section 5
of the Act, to ensure safety of the spectators and to see that bulls
are free from diseases and not intoxicated or administered with any
substance like nicotine, cocaine etc. to make them more
aggressive and ferocious. Sections 5(ix) and (x) authorize the
District Collector to give wider publicity to the provisions of the PCA
Act and the rules made thereunder and to ensure the presence of
animal welfare activists of AWBI during the conduct of the event.
Section 7 deals with penalty, it says ‘whoever contravenes the
provisions of this Act shall, on conviction, be punishable with
imprisonment which may extend to one year or with fine, which
may extend to Rs.10,000/-, or with both’. Section 11 of PCA Act, it
may be noted, provides for imprisonment for a term which may
extend maximum to three months, to that extent, there is
inconsistency between Section 7 of the TNRJ Act as well as
Section 11 of the PCA Act.
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74. Section 2(d) of the PCA Act speaks of domestic animal and
taming the animal for use of men, which is evidently for domestic
use, being domestic animal, not for entertainment or amusement.
Section 11(3), as already stated, excludes five categories of cases
from Section 11 ‘due to necessity’ and Section 28 speaks of killing
of animal in a manner required by the religion of any community.
Section 22 of the Act speaks of performing animal, meaning
thereby, exhibition and training only for performance of the animal.
The PCA Act does not speak of ‘taming of animals’ (over-powering
animals). Taming of animal for domestic use and taming of animal
for exhibition or entertainment are entirely different. Section 2(c) of
TNRJ Act speaks of ‘taming of bulls’ which is inconsistent and
contrary to the provisions of Chapter V of PCA Act. Sections 4(vii),
(viii) and 5 (viii) speak of Bull tamers. Bull tamers, therefore, tame
the bulls at the arena, thereby causing strain, stress, inflict pain and
suffering, which PCA Act wants to prevent under Section 11 of the
Act. Taming of bulls in arena during Jallikattu, as per the State
Act, is not for the well-being of the animal and causes the
unnecessary pain and suffering, that is exactly what the Central Act
(PCA Act) wants to prevent for the well-being and welfare of
animals, which is also against the basic natural instinct of the bulls.
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75. PCA Act, especially Section 3, coupled with Section 11(1)(m)
(ii), as already stated, makes an offence, if any person solely with a
view to provide entertainment, incites any animal to fight. Fight can
be with an animal or a human being. Section 5 of TNRJ Act
envisages a fight between a Bull and Bull tamers, that is, Bull tamer
has to fight with the bull and tame it. Such fight is prohibited under
Section 11(1)(m)(ii) of PCA Act read with Section 3 of the Act.
Hence, there is inconsistency between Section 5 of TNRJ Act and
Section 11(1)(m)(ii) of PCA Act.
76. TNRJ Act, in its Objects and Reasons, speaks of ancient
culture and tradition and also safety of animals, participants and
spectators. PCA Act was enacted at a time when it was noticed
that in order to reap maximum gains, the animals were being
exploited by human beings, by using coercive methods and by
inflicting unnecessary pain. PCA Act was, therefore, passed to
prevent infliction of unnecessary pain or suffering and for the wellbeing
and welfare of the animals and to preserve the natural
instinct of the animal. Over-powering the performing animal was
never in the contemplation of the PCA Act and, in fact, under
97
Section 3 of the PCA Act, a statutory duty has been cast on the
person who is in-charge or care of the animal to ensure the wellbeing
of such animal and to prevent infliction on the animal of
unnecessary pain or suffering. PCA Act, therefore, cast not only
duties on human beings, but also confer corresponding rights on
animals, which is being taken away by the State Act (TNRJ Act) by
conferring rights on the organizers and Bull tamers, to conduct
Jallikattu, which is inconsistent and in direct collision with Section
3, Section 11(1)(a), 11(1)(m)(ii) and Section 22 of the PCA Act read
with Articles 51A(g) & (h) of the Constitution and hence repugnant
to the PCA Act, which is a welfare legislation and hence declared
unconstitutional and void, being violative of Article 254(1) of the
Constitution of India.
77. We, therefore, hold that AWBI is right in its stand that
Jallikattu, Bullock-cart Race and such events per se violate
Sections 3, 11(1)(a) and 11(1)(m)(ii) of PCA Act and hence we
uphold the notification dated 11.7.2011 issued by the Central
Government, consequently, Bulls cannot be used as performing
animals, either for the Jallikattu events or Bullock-cart Races in the
State of Tamil Nadu, Maharashtra or elsewhere in the country.
We, therefore, make the following declarations and directions:
98
(1) We declare that the rights guaranteed to the Bulls under
Sections 3 and 11 of PCA Act read with Articles 51A(g) &
(h) are cannot be taken away or curtailed, except under
Sections 11(3) and 28 of PCA Act.
(2) We declare that the five freedoms, referred to earlier be
read into Sections 3 and 11 of PCA Act, be protected and
safeguarded by the States, Central Government, Union
Territories (in short “Governments”), MoEF and AWBI.
(3) AWBI and Governments are directed to take
appropriate steps to see that the persons-in-charge or
care of animals, take reasonable measures to ensure the
well-being of animals.
(4) AWBI and Governments are directed to take steps to
prevent the infliction of unnecessary pain or suffering on
the animals, since their rights have been statutorily
protected under Sections 3 and 11 of PCA Act.
(5) AWBI is also directed to ensure that the provisions of
Section 11(1)(m)(ii) scrupulously followed, meaning
thereby, that the person-in-charge or care of the animal
shall not incite any animal to fight against a human being
or another animal.
(6) AWBI and the Governments would also see that even in
cases where Section 11(3) is involved, the animals be not
99
put to unnecessary pain and suffering and adequate and
scientific methods be adopted to achieve the same.
(7) AWBI and the Governments should take steps to impart
education in relation to human treatment of animals in
accordance with Section 9(k) inculcating the spirit of
Articles 51A(g) & (h) of the Constitution.
(8) Parliament is expected to make proper amendment of
the PCA Act to provide an effective deterrent to achieve
the object and purpose of the Act and for violation of
Section 11, adequate penalties and punishments should
be imposed.
(9) Parliament, it is expected, would elevate rights of
animals to that of constitutional rights, as done by many of
the countries around the world, so as to protect their
dignity and honour.
(10) The Governments would see that if the provisions of the
PCA Act and the declarations and the directions issued by
this Court are not properly and effectively complied with,
disciplinary action be taken against the erring officials so
that the purpose and object of PCA Act could be achieved.
(11) TNRJ Act is found repugnant to PCA Act, which is a
welfare legislation, hence held constitutionally void, being
violative or Article 254(1) of the Constitution of India.
100
(12) AWBI is directed to take effective and speedy steps to
implement the provisions of PCA Act in consultation with
SPCA and make periodical reports to the Governments
and if any violation is noticed, the Governments should
take steps to remedy the same, including appropriate
follow-up action.
78. Appeals, transferred cases and the Writ Petition are
disposed of as above, setting aside the judgment of the Madras
High Court, but upholding the judgment of Bombay High Court and
the notification dated 11.7.2011 issued by the Central Government.
In the facts and circumstances of the case, there will be no order
as to costs.
………………..………….J.
(K.S. Radhakrishnan)
……………………………J.
(Pinaki Chandra Ghose)
New Delhi,
May 07, 2014.
101
ITEM NO.1A (For Judgment) COURT NO.6 SECTION XII
S U P R E M E C O U R T O F I N D I A
RECORD OF PROCEEDINGS
CIVIL APPEAL NO. 5387 OF 2014
(@ Special Leave Petition (Civil) No.11686 of 2007)
Animal Welfare Board of India …. Appellant
Versus
A. Nagaraja & Ors. …. Respondents
WITH
CIVIL APPEAL NO. 5388 OF 2014
(@ Special Leave Petition (Civil) No.10281 of 2009)
CIVIL APPEAL NOS. 5389-5390 OF 2014
(@ Special Leave Petition (Civil) Nos.18804-18805 of
2009)
CIVIL APPEAL NO. 5391 OF 2014
(@ Special Leave Petition (Civil) No.13199 of 2012)
CIVIL APPEAL NO. 5392 OF 2014
(@ Special Leave Petition (Civil) No.13200 of 2012)
CIVIL APPEAL NO. 5393 OF 2014
(@ Special Leave Petition (Civil) No.4598 of 2013)
CIVIL APPEAL NO. 5394 OF 2014
(@ Special Leave Petition (Civil) No. 12789 of 2014)
(@ SLP(C) CC…4268 of 2013)
WRIT PETITION (C) NO.145 OF 2011
AND
T.C. (C) Nos.84, 85, 86, 97, 98 and 127 of 2013
Date: 07/05/2014 These matters were called on for on
for pronouncement of judgment.
For the parties
Mr. Raj Panjwani,Sr.Adv.
102
Ms. Anjali Sharma,Adv.
Mr. Rajiv Dewan,Adv.
Mr. Rishi Kesh,Adv.
Ms. Purnima Bhat,Adv.
Mr. Rajiv Dewan,Adv.
Mr. Rakesh K. Khanna,ASG
Ms. Seema Rao,Adv.
Ms. Anuradha Tanwar,Adv.
Mr. Mohit Nagar,Adv.
Mr. S.N. Terdal,Adv.
Mr. V.K. Bali,Sr.Adv.
Mr. Aditya Soni,Adv.
Ms. Christine Acy Kumar,Adv.
Mr. P. Soma Sundaram,Adv.
Mr. V. Senthil Kumar,Adv.
Mr. Rajan K.,Adv.
Mr. G. Sivabalamurugan,Adv.
Mr. Anis Mohd.,Adv.
Mr. Sandeep Kumar,Adv.
Mr. L.K. Pandey,Adv.
Mr. Vinay Navare,Adv.
Mr. Satyajeet Kumar,Adv.
Mr. Keshav Ranjan,Adv.
Ms. Abha R. Sharma,Adv.
Mr. Shankar Chillarge,Adv.
Mr. A.P. Mayee,Adv.
Mr. Vijay Panjwani,Adv.
Mr. Subramonium Prasad,AAG
Mr. M. Yogesh Kanna,Adv.
Mr. A. Santha Kumaran,Adv.
Ms. Vanita C. Giri,Adv.
Mr. B. Balaji,Adv.
Mr. K. Shivraj Choudhari,Adv.
Mr. Rakesh K. Sharma,Adv.
Mr. Naresh Kumar,Adv.
Mr. K.V. Vijayakumar,Adv.
103
Mrs. Revathy Raghavan,Adv.
Mr. V.N. Raghupathy,Adv.
Mr. Pahlad Singh Sharma,Adv.
Mr. R. Nedumaran,Adv.
Mr. L.K. Pandey,Adv.
Mr. S.K. Sabharwal,Adv.
Mr. Subodh S. Patil,Adv.
Ms. Asha Gopalan Nair,Adv.
Mr. Shekhar Kumar,Adv.
Mr. Ravindra Keshavrao Adsure,Adv.
Hon’ble Mr. Justice K.S. Radhakrishnan
pronounced the judgment of the Bench comprising
His Lordship and Hon’ble Mr. Justice Pinaki
Chandra Ghose.
Permission to file SLP, in SLP….@ CC
No.4268 of 2013, is granted.
Leave granted.
Applications for intervention and
impleadment are allowed.
Application for restoration is dismissed.
The appeals, writ petition and transferred
cases are disposed of in terms of the signed
judgment.
(NARENDRA PRASAD)
COURT MASTER
(RENUKA SADANA)
COURT MASTER
(Signed “Reportable” judgment is placed on the file)