CEDH · CASELAW;JUDGMENTS;CHAMBER;ENG — 11 octobre 2022

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border-top-style:solid; border-top-width:0.75pt; border-right-style:solid; border-right-width:0.75pt; border-left-style:solid; border-left-width:0.75pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top } .s521C835 { width:13.12%; border-top-style:solid; border-top-width:0.75pt; border-left-style:solid; border-left-width:0.75pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top } .sD7287D91 { margin-top:0pt; margin-bottom:0pt; text-align:center; font-size:9pt } .sF6A12959 { width:33%; height:1px; text-align:left } .s3DC36BA9 { font-family:Arial; text-decoration:underline; color:#0069d6 } .s391E78BA { font-family:Arial; background-color:#ffffff }   THIRD SECTION CASE OF KOTOV AND OTHERS v. RUSSIA (Applications nos. 6142/18 and 13 others – see appended list)     JUDGMENT   Art 8 • Positive obligations • Private life • Failure to take adequate protective measures from 2015 to 2018 to reduce effects of pollution emanating from a landfill so as to prevent applicant’s exposure to related health risks • Fair balance struck, after 2019, between competing interests at stake, with adoption of more robust and encompassing measures • Art 8 applicable • Non-negligible pollution levels affecting adversely and to a sufficient extent applicant’s private life Art 13 (+ Art 8) • Effective remedy Art 11 • Freedom of peaceful assembly • Measures taken in relation to protests against the landfill and official refusals to approve related events, not “necessary in a democratic society”   STRASBOURG 11 October 2022   FINAL   11/01/2023   This judgment has become final under Article 44 § 2 of the Convention. It may be subject to editorial revision. In the case of Kotov and Others v. Russia, The European Court of Human Rights (Third Section), sitting as a Chamber composed of: Georges Ravarani , President, Georgios A. Serghides , María Elósegui , Anja Seibert-Fohr , Peeter Roosma , Frédéric Krenc , Mikhail Lobov , judges, and Olga Chernishova, Deputy Section Registrar, Having regard to: the applications (nos.   6142/18 and others, see Appendix I) against the Russian Federation lodged with the Court under Article 34 of the Convention for the Protection of Human Rights and Fundamental Freedoms (“the Convention”) by ten Russian nationals (“the applicants”, see Appendix I), on the various dates indicated in the appended table; the decision to give notice to the Russian Government (“the Government”) of the complaints concerning the applicants’ right to respect for their private life, the existence of effective domestic remedies with regard to that complaint and their right to freedom of assembly, and to declare inadmissible the remainder of the applications; the parties’ observations; Having deliberated in private on 6 September 2022, Delivers the following judgment, which was adopted on that date: INTRODUCTION 1.     The main issues in the present case are (i) whether the authorities failed to take protective measures to minimise or eliminate the effects of the pollution allegedly caused by the continuing operation of a landfill site near the applicants’ homes in the town of Klin, Moscow Region, in violation of the applicants’ rights under Article 8 of the Convention and (ii) whether the applicants had an effective domestic remedy in respect of that complaint. Some of the applications also raise an issue concerning the right to freedom of peaceful assembly in connection with their protests against the landfill. THE FACTS 2.     The applicants’ relevant personal details are set out in Appendix I. The applicants were represented by Mr K. Koroteev, a lawyer practising in Moscow. 3.     The Government were initially represented by Mr M. Galperin, former Representative of the Russian Federation to the European Court of Human Rights and lately by Mr M. Vinogradov, his successor in that office. 4.     The facts of the case may be summarised as follows. Background to the case 5 .     The applicants live in the town of Klin, Moscow Region, which is located approximately 7   km from Aleksinskiy Quarry. The villages of Novotschapovo, Bol’shoye Tschapovo, Golikovo and Opritovo are located near each other in the Klin District and between 5.8 and 13 km from the quarry. Since 1993 the quarry has been used as a landfill site for solid household waste collected in the Klin District. It is currently operated by the waste management company Kombinat LLC ( OOO Комбинат ), pursuant to a lease agreement dated 12   November 2009 with the Klin municipal administration. 6 .     The applicants alleged that large amounts of solid waste had been taken to the quarry daily and deposited in the landfill site, in violation of the applicable environmental regulations. The allegedly unlawful operation of the landfill site had caused a number of environmental nuisances in Klin and the areas nearby, such as: a strong foul odour, air pollution, groundwater contamination and the circulation of waste particles in the air. Moreover, the large numbers of scavenging birds in the landfill site had threatened air safety in the area, owing to the fact that a military airbase (“Klin-5”) was situated within 3 km of the landfill site and in proximity to the applicants’ houses. 7 .     A large-scale multi-level solid waste recycling and processing plant was set up and started operations at the end of 2019 at the site of Aleksinskiy Quarry ( комбинат по переработке отходов (КПО) «Алексинский карьер» – “the waste processing plant”) (see paragraphs 51 and 69 below). The project for its construction had been discussed at a public hearing and it had received a positive conclusion from the authorities concerning the assessment of its impact on the environment. domestic proceedings Civil proceedings brought by the first applicant (Mr Kotov, application no. 6142/18) 8 .     On 11 May 2017 the Klin Town Court of Moscow Region (“the Klin Town Court”) examined a claim for compensation of damage to health and non-pecuniary damage brought by Mr Kotov (“the first applicant”) against Kombinat LLC, the Moscow Regional Department of the Ministry of Natural Resources and Environment and the Klin municipal administration, in connection with the use and operation of the landfill site at Aleksinskiy Quarry. Mr Kotov requested the court to order the defendants to abstain from acts or omissions interfering with his right to safe environment or creating a risk of such interference. 9 .     The first applicant explained at the hearing that (i) he owned and had been cultivating a plot of land in the village of Bol’shoye Tschapovo in the Klin District of Moscow Region; (ii) since 2015, every day, especially on hot days or in the evening, there had been a strong foul odour, which had made him feel frustrated, physically and mentally unwell, had caused him to have mood swings and had made him lose the desire to work and unable to sleep; he had also experienced headaches and nausea so badly that he could not even eat; and (iii) the landfill at Aleksinskiy Quarry had been the source of the foul waste odour, which had been confirmed by multiple complaints from local residents and the head of the regional administrative and technical supervisory body in a press release of 20 July 2016. 10 .     Witnesses A., Ch., Ey. and An., who lived in the villages close to the quarry, testified at the hearing that since 2015 there had regularly been a strong unpleasant odour emanating from the quarry. 11 .     The Klin Town Court, relying on relevant legal norms (see paragraphs   77 and 78 below) found that the first applicant had not substantiated with documentary evidence the harm allegedly caused to his health and the non ‑ pecuniary damage he had allegedly sustained owing to the operation of the landfill site. In particular, the court held that (i) no documentary evidence, such as medical certificates confirming disability or admission for treatment in outpatient facilities or hospital, prescriptions for medication or pharmaceutical or medical receipts had been submitted proving the harm to his health; and (ii) the testimony of the four witnesses summoned on the first applicant’s behalf regarding the foul odour emanating from the landfill site had been their subjective assessments of the odour and were not proof that the first applicant had actually endured any suffering personally and that he had in fact sustained the non-pecuniary damage caused by the smell from the quarry. 12 .     The Klin Town Court further held that the fact that Kombinat LLC had been sanctioned in administrative proceedings on 7 April 2015 and on 15   July 2015 for failure to register as a waste management company in the State landfill register and for failing to obtain license to emit harmful substances was not legally binding in the first applicant’s case, as he had not been a party to either of those sets of proceedings. The court also held that neither those administrative judgments nor a judgment of the Commercial Court of Moscow Region (finding Kombinat LLC liable for conducting business operations without a permit) showed that the company had caused any air pollution. 13 .     Lastly, the court found that according to an inspection report dated 30   March 2017 by the Moscow Regional Department of the Ministry of Natural Resources and the Environment, the level of permitted air pollution during the operation of the landfill site by Kombinat LLC had not been exceeded. This inspection report was not provided to the Court. 14 .     On 12 July 2017 the judgment was upheld on appeal by the Moscow Regional Court. On 12 October and 27 November 2017 respectively, the judgment was also upheld by the Moscow Regional Court and the Supreme Court of the Russian Federation in cassation appeal proceedings. Administrative proceedings in respect of Kombinat LLC brought by different State bodies 15 .     Several sets of administrative proceedings in respect of Kombinat LLC may be summarised as follows:   No. Date State body Administrative offence/environmental violation Sanction 1.   7 April 2015 Klin Town Court   failing to register in the State landfill register fine (amount left blank in a published copy of the judgment) 2.   15 July 2015   Klin Town Court   failing to register in the State landfill register 3.   15 July 2015   Klin Town Court operating without a licence to emit certain harmful substances into the atmospheric air and without established emission limits 4.   3 March 2017 Klin Town Court illegally depositing waste beyond the designated boundaries of the quarry 150,000 Russian roubles ((RUB) (about 1,700   euros (EUR)) 5.   4 August 2017   Consumer Protection Authority See paragraphs 18-22 and 25 below 6.   13 October 2017   Klin Town Court See paragraphs 19-20 below 7.   15 December 2017   Klin Town Court emitting toxic elements above the MPL (registered   on 6   September 2017): - ammonia (3 MPL), -   nitrogen   oxide (53   MPL) - phenol (93.8 MPL) - soot (1.3 MPL) - xylol (2.3 MPL) RUB 90,000 (about EUR   1,000) 8. 19 December 2017 Klin Town Court See paragraph 22 below 9.   24 April 2018 Commercial Court of Moscow Region failing to construct a protective barrier around the quarry to prevent the spread of fragments of waste, thus endangering people’s lives and health and creating various environmental hazards fine in the amount of RUB   100,000 (about EUR   1,000) 10.   7 May 2018 Klin Town Court emitting toxic elements above the MPL (registered on 8   February 2018): nitrogen dioxide 2.2-12.8 MPL RUB 100,000 11.   7 May 2018 Klin Town Court failing to mention in its report on emissions a degasification furnace that releases carbon monoxide and nitrogen oxide fine (amount left blank in a published copy of the judgment) 12. 7 May 2018   Klin Town Court failing to keep land adjacent to the quarry free of uncollected fragments of waste; depositing unauthorised types of waste fine in the amount of RUB 140,000 (about EUR 1,600) 13. 15 May 2018 Ministry of Natural Resources and the Environment emitting ammonia 3.9-17 times above the MPL (as detected during an inspection on 27 April 2018 at air monitoring posts in the villages near the quarry) order to ensure compliance with emissions permit by 26   January   2019 14. 17 May 2018 depositing 833,186.20 tonnes of waste in 2017, above the authorised limit of 270,000 tonnes of waste a year order to comply with the relevant environmental regulations 15. 19 June 2018 Klin Town Court depositing unauthorised waste of II type of hazard fine in the amount of RUB 120,000 (about EUR   1,400) 16. 13 December 2018 Klin Town Court operating without a positive assessment of the environmental impact of its activities and in the absence of an established sanitary protection zone     16 .     To give more details of some of the above proceedings, at the hearing of 7 April 2015 (set of proceedings no. 1 in the above table) the representative of Kombinat LLC explained that the company had been taking steps to have itself listed in the State landfill register, but that the authorities had not yet taken a decision on the matter. 17 .     At the hearing of 15 July 2015 (set of proceedings no. 3) the representative of Kombinat LLC stated that no measurements of emissions from the quarry had been carried out, that the quarry was the only place for household waste disposal in the Klin District, and that the suspension of Kombinat LLC’s operations would be very damaging to the local environment. They also explained that the authorities had not yet registered Kombinat LLC in the landfill register. 18 .     Prior to the proceedings of 13 October 2017 (set of proceedings no.   6), on 4 August 2017 the Consumer Protection Authority of Moscow Region (“the regional CPA”), acting upon complaints by an unidentified number of people allegedly affected by the activities of Kombinat LLC, carried out an inspection at Aleksinskiy Quarry. The regional CPA concluded that in the course of its waste processing operations Kombinat LLC had breached sixteen environmental, sanitary and epidemiological regulations. The regional CPA ordered Kombinat LLC to suspend its operations and carry out remedial measures by 1 May 2018. On 11 August 2017 the Klin Town Court terminated the administrative proceedings against Kombinat LLC, finding the results of the inspection unsubstantiated. An inspector of the regional CPA appealed and on 7 September 2017 the Moscow Regional Court remitted the case to the Klin Town Court for fresh examination. 19 .     On 13 October 2017 (set of proceedings no. 6) the Klin Town Court confirmed the conclusions of the inspection of 4 August 2017 and found Kombinat LLC liable for breaching sixteen relevant sanitary, epidemiological and environmental regulations, which included: (i)             failure to obtain the approval of the chief environmental health officer ( Главный санитарный врач ) for the creation of a sanitary protection zone around the quarry; (ii)           insufficient soil supply for the intermediary and final stages of waste separation (uncovered and visible waste remains); (iii)         leftover waste (mainly plastic rubbish bags) on the boundary of the quarry adjacent to the villages of Naprugovo and Novotschapovo; (iv)         absence of gas control systems (which causes an increase in air pollution and has an adverse impact on nearby residential areas); (v)           absence of a system for collecting leachates (liquid from rotten waste which endangers the quality of soil, groundwater and surface water); (vi)         absence of regular monitoring (once every ten days) of uncollected fragments of waste (for example plastic bags and scraps of paper) and failure to take the relevant clean-up measures; (vii)       failure to carry out regular cellular morphological and chemical testing of waste components; (viii)     failure to make water control facilities accessible to inspectors’ vehicles. 20 .     The Klin Town Court ordered Kombinat LLC to immediately suspend its activities for ninety days. The court explicitly stated in the operative part of its decision that the lodging of an appeal complaint would not prevent execution of the administrative sanction imposed on the defendant by the court. 21 .     On the same day the Klin Town Court granted a request by Kombinat LLC to suspend execution of the administrative sanction, pending the examination of the company’s statement of appeal by the Moscow Regional Court. 22 .     On 19 December 2017 (set of proceedings no. 8) the Klin Town Court re-examined the case, which had been remitted to it by the Moscow Regional Court. It confirmed its earlier conclusions of 13 October 2017 and imposed an administrative fine of RUB 250,000 (about EUR 3,000 euros) on Kombinat LLC, which was paid in full. 23 .     One of the applicants, Ms Kotova (application no. 106/19), brought a complaint against the decision to suspend execution of the administrative sanction (see paragraph 21 above). On 8 February 2018 the Moscow Regional Court allowed her complaint and quashed the Klin Town Court’s decision to suspend execution. No further information was provided to the Court in respect of those proceedings, and they are not listed in the above table. 24 .     On 15 May 2018 (set of proceedings no. 13) another notice of violation was issued to Kombinat LLC (see paragraph 15 above). In addition to information contained in it on excessive levels of ammonia, it also stated that (i) the main source of air pollution at Aleksinskiy Quarry had been the body of the landfill and (ii) hydrogen sulphide, ammonia, methane, benzol, nitrogen dioxide, formaldehyde and other toxic substances had been released into the atmospheric air as a result of the waste disposal. 25 .     On 7 June 2018 the regional CPA carried out an unannounced inspection at the quarry and established that all the violations detected on 4   August 2017 (set of proceedings no. 5) had been corrected by Kombinat LLC, except the failure to obtain the approval of the chief environmental health officer for a sanitary protection zone around the quarry. Civil proceedings against Kombinat LLC brought by residents of Klin 26 .     On 8 November 2019 the Klin Town Court examined a complaint brought by a group of residents of Klin, including the applicants (except the first, fourth and seventh applicants – see Appendix I), against Kombinat LLC. They requested the court, in particular, to stop the company’s activities and close Aleksinskiy Quarry permanently. 27 .     The Klin Town Court found that Kombinat LLC had obtained (i) a State-issued licence to collect and process solid waste, issued in 2007; (ii) a licence to emit harmful substances within the applicable limits, issued in 2015; (iii) two positive assessments of the environmental impact of its activities and a positive assessment of its project for a sanitary protection zone, issued in 2014, 2015 and 2016 respectively (see paragraphs 116 and 117 below); and (iv) a certificate confirming registration of the quarry in the polluting entities register, issued in 2017. 28 .     The Klin Town Court also examined a report by Mr P., a court ‑ appointed environmental expert, who testified that Kombinat LLC had committed irreversible environmental violations and that waste disposal at the quarry should be discontinued immediately (see paragraph 50 below for detailed findings made by the expert). 29 .     At the hearing Mr P. confirmed the conclusions reached in his report, explaining that he had not tested air quality at the quarry, and that the relevant officials should do such tests regularly over a year. According to Mr P., it was not possible to establish a direct link between the environmental impact and morbidity rates. No technology existed to collect leachate that had already contaminated soil. In 1993 a protective plastic liner had been laid at the quarry against leachate contamination, but no data was available about its maintenance. 30 .     The Klin Town Court found the expert’s report unconvincing because it determined that Mr P. (i) had not reviewed the relevant project documentation; (ii) had not tested air, water and soil quality; (iii) had not noted any measurements of harmful substances for the quarry or Klin; and (iv) had not measured the quantity of waste that had been deposited at the quarry. 31 .     The Klin Town Court further held that Kombinat LLC had provided [an unidentified number of ] reports on air, water and soil quality testing at the quarry and beyond its boundaries carried out between March 2018 and June 2019 by a private laboratory (Promenergo LLC), according to which the MPL for nitrogen dioxide, ammonia, carbon monoxide, phenol, formaldehyde, hydrogen sulphide, benzol, methane, xylol and toluene had not been exceeded (see excerpts from those reports (at least eight of which from 2018 were also provided to the Court) in Appendix III, Tables 1, 2 and 4 (measurements by Promenergo LLC, indicating, prima facie that MPL of some substances have been exceeded). 32 .     Furthermore, the Klin Town Court found that in June 2019 the director of Kombinat LLC had approved a programme for regular air, water and soil quality testing. The reports on the relevant tests conducted in September 2019 were submitted to the court. 33 .     On 22 August 2019 the CPA approved the project documentation for the creation of a sanitary protection zone around the quarry as being compliant with the relevant environmental standards, including those for air quality. On 23 September 2019 the project documentation for the creation of the waste processing plant at the quarry was approved by the State authorities. The commander-in-chief of the military base located in the Klin District had informed Kombinat LLC that the construction of the waste processing plant had been approved as safe for flights. 34 .     The Klin Town Court concluded, on the basis of the evidence submitted by the parties and referring to the relevant provisions of domestic law (see paragraphs 76-79 below), that the applicants had not submitted solid and convincing proof of a risk of Kombinat LLC causing harm in the future as a result of its activities, that such a risk could in fact materialise and that its operations should be shut down. The court did not take the reports on air quality testing into account on the grounds that they had been prepared by the applicants themselves, whereas Kombinat LLC had submitted proof of compliance of its operations with the applicable standards and regulations. 35 .     Lastly, the court also held that the fact that the courts and administrative bodies had sanctioned Kombinat LLC eight times in the past for different violations of sanitary and environmental regulations could not justify shutting down its operations because it had not been proven that those violations had caused irreversible damage to the environment. 36 .     On 2 March 2020 the Moscow Regional Court dismissed an appeal by the applicants. They did not provide the Court with a copy of that judgment. 37 .     The applicants also submitted that they had tried to bring further cassation appeals before the higher courts, but that they had been returned to them for “contrived” procedural reasons. It appears from the relevant domestic decisions submitted by the applicants that they did not comply with the procedural requirements for filing cassation appeals. 38 .     On 28 July 2021 the Klin Town Court refused a request by the applicants to re-examine the case anew because they had sought the reassessment of evidence that had already been examined (at the hearing of 8   November 2019), which was not considered a valid reason for reopening the proceedings. Administrative proceedings concerning the construction of the waste processing plant at Aleksinskiy Quarry 39 .     Some of the applicants, together with other residents of Klin, brought administrative proceedings in connection with the construction of the waste processing plant at Aleksinskiy Quarry. In particular, they alleged that the public hearing and procedure for approval of the project for its construction had been tainted with certain defects. The domestic courts dismissed their complaints. In particular, they reviewed the procedural shortcomings alleged by the applicants and established, on the basis of the evidence examined, that all procedural requirements had been observed by the respective authorities, who had acted within their powers, and that there was nothing to indicate that the applicants’ rights had been breached in the process. the applicants’ protests 40 .     In March 2018 the applicants started organising protests against the landfill site. 41 .     All the applicants (except Ms Kotova (application no. 106/19)) were charged with various administrative offences in connection with their protests. The details concerning the charges against them, their arrest and the administrative sanctions imposed on them are outlined in Appendix I. 42 .     In November 2017 and May 2018 respectively, Mr Kotov submitted three notices of a public event (meeting) and one notice of an environmental protest car rally to the Klin municipal administration. Neither of his applications was approved and he brought a complaint against the municipal authorities before the courts. The details of those proceedings are outlined in Appendix I (application no. 56764/18). Documentary evidence relied on by the applicants 43 .     The applicants submitted a number of documents, the contents of which may be summarised as follows. 44.     In letter of 10 April 2013 addressed to the Russian President, the regional governor highlighted the deteriorating environmental situation in Moscow Region and the need to implement modern waste processing technologies, and requested the President to order the closure of twenty-four landfills in the region owing to their excessive storage capacity and obsolete technical characteristics. 45.     In 2017 and 2018 State laboratories of the Ministry of Natural Resources and Environment of the Moscow Region and of the State Fire and Rescue Service and Federal Service for Hydrometeorology and Environmental Monitoring carried out air quality tests in the vicinity of Aleksinskiy Quarry and in Klin. In December 2018 to November 2019 a public interest group carried out measurements of air quality, using special testing equipment. Excerpts from air testing reports produced, in particular, by State laboratories indicate a number of instances where the MPLs in the atmospheric air of Kiln and its districts have been exceeded. On other dates, the measurements indicated no such excess (see Appendix II, Table I, Columns 2-4). 46 .     A report of the state laboratory dated 15 March 2018 of air sampling in some of the villages near Aleksinskiy Quarry (see Appendix II, Table 1, Column 3) stated, in particular, that a foul odour typical for landfills had been smelled in the village of Novotschapovo and that its residents should complain to the relevant authorities. 47.     A notice of violation issued to Kombinat LLC by the Moscow Regional Department of the Ministry of Natural Resources and the Environment on 17 May 2018 (see paragraph 15 above, line 14) stated that Aleksinskiy Quarry had exceeded its storage capacity by three times (833,186.20 tonnes of waste had been deposited in 2017 instead of an anticipated 270,000 tonnes). 48 .     According to a letter dated 16 July 2018 from the Federal Service for Hydrometeorology and Environmental Monitori