← Environmental Law Center← Centro de Derecho Ambiental
Res. 23963-2025 Sala Constitucional · Sala Constitucional · 01/08/2025
OutcomeResultado
The Chamber ordered the Municipality of Cartago and the local Health Governing Area to definitively remedy the environmental problem within two months, immediately adopt urgent interim measures, and pay the resulting costs and damages.La Sala ordenó a la Municipalidad de Cartago y al Área Rectora de Salud corregir definitivamente el problema ambiental en dos meses, adoptar de inmediato las medidas paliativas urgentes y pagar las costas, daños y perjuicios correspondientes.
SummaryResumen
The Constitutional Chamber granted the amparo because the authorities had failed to respond diligently and effectively to the abandoned condition of a landfill located on property owned by the Municipality of Cartago. Inspections documented exposed waste, cracks near the treatment plant, inadequate maintenance of roads and perimeter channels, and a lack of operation and maintenance of the leachate system, creating an imminent risk to public health and the environment. The Chamber rejected the municipality’s attempt to justify its inaction through a settlement assigning closure, post-closure, and mitigation work to a private developer. It reaffirmed that local governments have independent duties of environmental coordination, prevention, inspection, and protection within their territory, notwithstanding contractual disputes or legal formalities. The Municipality and the local Health Governing Area were ordered to coordinate a definitive solution within two months and immediately implement the most urgent interim measures. Any alleged breach of the Environmental Administrative Tribunal’s precautionary measure must instead be raised in the relevant administrative proceeding.La Sala Constitucional declaró con lugar el amparo por la falta de una respuesta diligente y efectiva ante las condiciones de abandono de un relleno sanitario situado en una finca de la Municipalidad de Cartago. Las inspecciones constataron residuos expuestos, grietas cerca de la planta de tratamiento, deficiente mantenimiento de caminos y canales, y falta de operación y mantenimiento del sistema de lixiviados, con riesgo inminente para la salud pública y el ambiente. La Sala rechazó que la municipalidad pudiera excusar su inacción en una conciliación que atribuía al desarrollador privado las obras de cierre, poscierre y mitigación. Reafirmó que los gobiernos locales tienen deberes propios de coordinación, prevención, inspección y protección ambiental dentro de su territorio, por encima de conflictos contractuales o formalismos. Ordenó a la Municipalidad y al Área Rectora de Salud coordinar la solución definitiva en dos meses y adoptar de inmediato las medidas paliativas más urgentes. El alegado incumplimiento de una medida cautelar del Tribunal Ambiental debe plantearse en el procedimiento administrativo correspondiente.
Key excerptExtracto clave
It is therefore evident that the respondent local authority, sheltering behind a legal formality, has refused to implement the mitigation measures ordered by the respondent health authority in order to achieve a comprehensive solution to the reported problem. As established, the municipality-owned property is in a state of abandonment that places the health of nearby residents and the general population in imminent danger, while the intervention of the Cartago Health Governing Area has been insufficiently effective to guarantee a healthy and ecologically balanced environment. The Chamber therefore finds that the alleged violation occurred. Accordingly, the appeal must be granted with respect to the respondent local authority and Health Governing Area, as set forth below. The appellant is further advised that the alleged breach of the precautionary measure issued by the Environmental Administrative Tribunal in Resolution No. 1134-19-TAA at 9:57 a.m. on July 8, 2019, must be raised in the administrative proceeding and not through this specialized jurisdiction. The appeal is granted. Mario Redondo Poveda, Grettel Quesada Moya, and Carlos Alberto Granados Siles, in their respective capacities as mayor and president of the Municipal Council of Cartago and director of the Cartago Health Governing Area, or whoever holds those offices, are ordered to arrange and coordinate whatever is necessary so that, within TWO MONTHS from notice of this judgment, the environmental problem complained of is definitively corrected and the most urgent immediate interim measures are adopted.De ahí que, es evidente que el ente local recurrido escudándose en un formalismo legal se ha negado a ejecutar las medidas de mitigación dispuestas por la autoridad sanitaria recurrida, para conseguir una solución integral al problema denunciado, pues, conforme se comprobó, existe una condición de abandono en el terreno de su propiedad, que pone en inminente peligro la salud de los vecinos y de los pobladores en general, respecto de lo cual la intervención del Área Rectora de Salud de Cartago ha sido poco efectiva para garantizar un entorno sano y ecológicamente equilibrado. Así las cosas, estima la Sala que se produjo la infracción acusada. Bajo esta inteligencia, se impone acoger el recurso, en lo que respecta al ente local y al área rectora de salud recurridas, conforme se dirá. De otra parte, advierta el recurrente que el supuesto incumplimiento de la medida cautelar decretada por el Tribunal Ambiental Administrativo en la resolución No. 1134-19-TAA de las 9:57 horas de 8 de julio de 2019, debe acusarla en el procedimiento administrativo y no en esta vía especializada. Se declara con lugar el recurso. Se ordena a Mario Redondo Poveda, a Grettel Quesada Moya y a Carlos Alberto Granados Siles, en su condición de alcalde y de presidenta del Concejo, ambos de Cartago y, de director del Área Rectora Salud Cartago, respectivamente, o a quienes ejerzan esos cargos, que dispongan y coordinen lo necesario a efecto que, en el plazo de DOS MESES, contado a partir de la notificación de esta sentencia, se corrija de forma definitiva el problema ambiental reclamado, así como se adopten las medidas paliativas inmediatas de mayor urgencia.
Pull quotesCitas destacadas
"Es insoslayable la atención a la ciudadanía de su cantón por encima de cualquier conflicto …"
"Safeguarding the residents of the canton must take precedence over any dispute …"
Considerando IV
"Es insoslayable la atención a la ciudadanía de su cantón por encima de cualquier conflicto …"
Considerando IV
"Ha quedado establecido ya que a los gobiernos locales les alcanza la obligación de coordinación y prevención en materia ambiental dentro del ámbito de su jurisdicción territorial, de donde resulta que ciertamente las municipalidades son actores importantes en la tarea de protección al ambiente."
"It has already been established that local governments are subject to duties of environmental coordination and prevention within their territorial jurisdiction; municipalities are therefore important actors in the task of environmental protection."
Considerando IV
"Ha quedado establecido ya que a los gobiernos locales les alcanza la obligación de coordinación y prevención en materia ambiental dentro del ámbito de su jurisdicción territorial, de donde resulta que ciertamente las municipalidades son actores importantes en la tarea de protección al ambiente."
Considerando IV
"Como se indicó supra, no solo ese cabildo, sino todas las demás autoridades recurridas, cuentan con amplias facultades de actuación, y si bien se encuentran sujetas a la legalidad y la razonabilidad, lo cierto es que teniendo en cuenta que se trata de una amenaza al medio ambiente y a la salud pública, la legalidad y los formalismos se ven desplazados …"
"As stated above, not only that municipal government but all the other respondent authorities possess broad powers to act; although they remain subject to legality and reasonableness, where the environment and public health are threatened, legal formalities must yield …"
Considerando IV
"Como se indicó supra, no solo ese cabildo, sino todas las demás autoridades recurridas, cuentan con amplias facultades de actuación, y si bien se encuentran sujetas a la legalidad y la razonabilidad, lo cierto es que teniendo en cuenta que se trata de una amenaza al medio ambiente y a la salud pública, la legalidad y los formalismos se ven desplazados …"
Considerando IV
"No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política), tal y como sucede en este caso, en el que la parte recurrente presentó una denuncia por una contaminación ambiental que no ha sido resuelta en forma definitiva, con violación del derecho a disfrutar de un ambiente sano y ecológicamente equilibrado y de un nivel digno de calidad de vida."
"Nevertheless, I do address the merits when other rights of persons affected by a source of pollution are at stake, including health, quality of life, and the right to enjoy a healthy environment free of pollution under Article 50 of the Constitution, as in this case, where the appellant reported environmental pollution that has not been definitively resolved, violating the right to a healthy and ecologically balanced environment and to a dignified quality of life."
Nota del magistrado Salazar Alvarado
"No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política), tal y como sucede en este caso, en el que la parte recurrente presentó una denuncia por una contaminación ambiental que no ha sido resuelta en forma definitiva, con violación del derecho a disfrutar de un ambiente sano y ecológicamente equilibrado y de un nivel digno de calidad de vida."
Nota del magistrado Salazar Alvarado
Full documentDocumento completo
Document Review Decision No. 2025023963 CONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at nine fifteen on uno de agosto de dos mil veinticinco.
Petition for constitutional relief (recurso de amparo) filed by Nombre01, identity card CED05, against the MUNICIPALIDAD DE CARTAGO AND THE MINISTERIO DE SALUD.
BACKGROUND:
All of the foregoing was based on Technical Report No. CARTA-MS-DRRSCE-URS-IT0016-2025, which determined that the land owned by the Municipalidad de Cartago was in a state of abandonment. The monthly interinstitutional inspection (inspección interinstitucional) of the sanitary landfill (relleno sanitario), involving the Municipalidad de Cartago, the Ministerio de Salud, and SETENA, is scheduled for 14 mayo de 2025, during which compliance with the administrative act (acto administrativo) identified herein will be verified. He adds that on 18 agosto de 2019, through official letter MS-DRRSCE-ARSC-1050-2019, the corresponding response was provided to the Tribunal Ambiental Administrativo, addressing each of the eight directives issued by that authority.
By official letter number 31419-TAA, the report requested by the Chamber is submitted regarding the motion for reconsideration (recurso de revocatoria) filed by Nombre04 against the Municipalidad de Cartago. By resolution number 1134-19-TAA at 9:57 a.m. on 8 de julio de 2019, the following was ordered: “(...)THIRD: Regarding the need to impose a provisional measure (medida cautelar) in the present case. In accordance with the facts reported by Mr. Manuel Badilla Sánchez, in his capacity as Acting Mayor of the Municipalidad de Cartago, as well as what was observed during the on-site visual inspection conducted by this Tribunal, previously detailed in Finding XIX of this resolution, and after analyzing them, this Office considers that the actions being carried out at the site may cause environmental damage that would be difficult or impossible to remedy. Therefore, pursuant to the precautionary principle (principio precautorio), this Tribunal considers it necessary to undertake certain actions and accordingly deems it appropriate to adopt a PROVISIONAL MEASURE consisting of the following: Order the MUNICIPALIDAD DE CARTAGO, through Mr.
Nombre05, in his capacity as Mayor of that local government, or whoever holds that office, to implement the following mitigation measures (medidas de mitigación) on the land belonging to the municipal corporation, which apparently corresponds to registered property : Improve the leachate collection system, because possible leachate was observed on the ground surface in numerous areas and even in a stormwater downspout. Implement improvements to the gas collection, conveyance, and treatment system, because nonoperational vents and bubbles in the ground were observed, apparently from gas that is not being collected. Implement the appropriate improvements to the peripheral and internal collection, conveyance, and disposal system for stormwater, because no such system was observed at the time of the inspection. Assess, by means of a technical study, the stability of the slopes located at the Dump site, in accordance with applicable legislation.
Conduct the corresponding analysis regarding the use of 2 basins located outside the Dump property, apparently on a property belonging to the Municipalidad de Paraíso, because accumulated water was observed in one of the basins and its quality and final disposal are unknown. Take the appropriate actions to ensure that no solid waste remains uncovered and liable to cause environmental and public-health problems within the Dump area. Submit a complete map of the project area identifying the activities carried out therein. A period of 30 calendar days is granted for the implementation and performance of the ordered actions, beginning on the first business day following service of this resolution. The effects of this interlocutory provisional measure shall remain in effect until this Office issues the final decision in this ordinary administrative investigation proceeding or rules otherwise.
The MUNICIPALIDAD DE CARTAGO, through Mr. Nombre05, in his capacity as Mayor of that local government, or whoever holds that office, is hereby advised that failure to comply fully with this provisional measure could cause him to incur the offense of disobedience of authority, established and punishable by imprisonment under Article 314 of the Criminal Code, and that he may submit to this administrative case file any documentary and/or expert evidence he considers appropriate or relevant concerning the provisional measure imposed by this resolution. A Motion for Reconsideration may be filed against this provisional measure no later than the third business day following service of this resolution, pursuant to Article 346 of the General Public Administration Law. Order WPP CONTINENTAL DE COSTA RICA S.A., corporate identification number CED02, represented in his capacity as President by Mr. ARTURO CHACON GAMBOA, holder of identity card number CED03, or whoever holds his position, AND WPP CORICLEAN LOS mbre02 W WASTE DISPOSAL S.A., corporate identification number CED01, represented in her capacity as President by Ms.
Olga Marta Arias Rivas, identity card number CED04, to implement the following mitigation measures on the land where the Relleno Sanitario Los mbre02 e is located and which is operated by the entity they represent: Implement appropriate actions or practices for stormwater conveyance to prevent potential adverse effects in the work area. Take the appropriate actions to ensure that no solid waste remains uncovered. Implement improvements to the gas collection, conveyance, and treatment system, because nonoperational vents were observed. Improve the leachate collection system on the access road, at the interior level of the working-face cells. Submit a complete map of the project area identifying the activities carried out therein. A period of 30 calendar days is granted for the implementation and performance of the ordered actions, beginning on the first business day following service of this resolution.
The effects of this precautionary provisional measure shall remain in effect until this Office issues the final decision in this ordinary administrative investigation proceeding or rules otherwise. WPP CONTINENTAL DE COSTA RICA S.A., corporate identification number CED02, represented in his capacity as President by Mr. ARTURO CHACON GAMBOA, holder of identity card number CED03, or whoever holds his position, and WPP CORICLEAN LOS mbre02 W WASTE DISPOSAL S.mbre06.,., corporate identification number CED01, represented in her capacity as President by Ms. OLGA MARTA ARIAS RIVAS, holder of identity card number CED04, or whoever holds her position, are hereby advised that failure to comply fully with this provisional measure could cause them to incur the offense of disobedience of authority, established and punishable by imprisonment under Article 314 of the Criminal Code, and that they may submit to this administrative case file any documentary and/or expert evidence they consider appropriate or relevant concerning the provisional measure imposed by this resolution.
A Motion for Reconsideration may be filed against this provisional measure no later than the third business day following service of this resolution, pursuant to Article 346 of the General Public Administration Law. FOURTH: This Office deems it necessary to order Dr. Andrea Morales Fisher, in her capacity as Director of the Área Rectora de Salud de Cartago, or whoever holds that office, to submit a detailed technical report containing the following information: ONE: The actions undertaken by the office under her authority to monitor the Dump area in order to prevent potential adverse effects on the environment and public health, in accordance with its powers established by law, including details of the activities and an implementation schedule. TWO: Report on the permits granted in connection with the site where the Dump is located, their scope, and the monitoring thereof. THREE: State whether the treatment plant was approved and report the flow rate and origin of the leachate it treats, in accordance with the Regulations on the Approval and Operation of Wastewater Treatment Plants.
FOUR: Certification of the quality of the discharged wastewater for the past 2 years. FIVE: The results of the cross-check conducted by the Ministerio de Salud and details of the corrective actions approved if any value was found to be outside regulatory limits. SIX: Report on the monitoring conducted by the institution she represents in relation to the Landfill, in accordance with the powers vested in that institution by law, including improvement actions, compliance schedules, and any other aspects deemed relevant. SEVEN: Report on the monitoring of and compliance with Health Order CEARS-OS-0235-2018 concerning the instances of noncompliance detected at Relleno Sanitario Los Pinos. EIGHT: Submit a report every two months verifying compliance with the provisional measure imposed. The foregoing shall be completed within ten calendar days beginning on the first business day following service of this resolution.
FIFTH: This Office orders Eng. José Miquel Zeledón Calderón, in his capacity as Director of the MINAE Water Directorate, or whoever holds that office, to submit a technical report stating whether the treatment plant operated by WPP Continental de Costa Rica S.A. has a discharge permit and specifying the flow rate and receiving water body. The foregoing shall be completed within ten calendar days beginning on the first business day following service of this resolution. SIXTH: This Tribunal orders Lic. Cinthva Barzuna Gutiérrez, in her capacity as Secretary General of the Secretaría Técnica Nacional Ambiental (SETENA), or whoever holds that office, to provide this Office with the terms of the environmental viability (Viabilidad Ambiental) granted, specifying its scope, the extent of compliance according to the monitoring conducted by her institution, and whether corrective actions or technical closure have been requested.
She shall also submit the technical report concerning the inspection conducted in October of the previous year by Mr. Mauricio Solís Campos, an official under her authority. Furthermore, she shall submit a complete map of the project area identifying the activities carried out therein. The foregoing shall be completed within ten calendar days beginning on the first business day following service of this resolution. SEVENTH: Order Mr. Nombre05, in his capacity as Mayor of the Municipalidad de Cartago, or whoever holds that office, to certify, by means of the real-property folio registration number, the registered owner of the property where Relleno Sanitario Los Pinos is located. The foregoing shall be completed within ten calendar days beginning on the first business day following service of this resolution (...)”. On 1 de agosto de 2019, a filing signed by the then-Mayor of the Municipalidad de Cartago was received, through which he filed a Motion for Reconsideration with an Appeal in the Alternative (Apelación en Subsidio) against resolution number 1 134-19-TAA at 9:57 a.m. on 8 de julio de 2019.
On 5 de agosto de 2019, a submission from Nombre07, in his capacity as representative of WPP Continental de Costa Rica, Sociedad Anónima, was received, through which he reiterated the submission filed on 29 de julio, stating that all actions ordered in resolution No. 1134-19-TAA had already been completed. Resolution No. 2020-02374 appears in the record. By resolution No. 1391-2020-TAA at 11:12 a.m. on 6 de mayo de 2020, it was ordered: “To deny the Motion for Reconsideration, as well as the accompanying claim of nullity, filed by Mr. Nombre05 against resolution number 1134-19-TAA at nine hours and fifty-seven minutes on the eighth day of July of the year two thousand nineteen, based on the facts described in the third recital (considerando) of this resolution.
SECOND: Dismiss as inadmissible the Subsidiary Appeal (Recurso de Apelación en Subsidio) filed against resolution number 1134-19-TAA of nine hours and fifty-seven minutes on ocho de julio del año dos mil diecinueve.” By resolution No. 1392-2020 of 13:15 hours on 6 de mayo de 2020, the commencement of ordinary administrative proceedings (procedimiento ordinario administrativo) was ordered, and a hearing was scheduled for 6 de agosto at 8:30 hours at the offices of the Tribunal Ambiental Administrativo. Subsequently, by resolution No. 1898-2020-TAA of 11:30 hours on 17 de junio de 2020, it was agreed to suspend the oral and public hearing because not all parties had been served notice; in accordance with the principle of due process (principio del debido proceso) and the right of defense (derecho de defensa), safeguarded under Articles 39 and 41 of the Constitución Política, lunes 19 de octubre of that same year was set as the new date for this proceeding.
By resolution 2824-2020-TAA of 11:25 hours on 15 de octubre de 2020, the Tribunal changed the venue for the oral and public hearing. On 19 de octubre de 2020, the oral and public hearing was held. By resolution number 45-2021-TAA of 12:30 hours on 20 de enero de 2021, the following was ordered: “(...) SOLE RULING: Mr. Oscar Bermúdez García, in his capacity as Regional Director of the Rectoría de la Salud Este del Ministerio de Salud, and the parties to these proceedings are hereby advised that the Tribunal is in the final stage of the ordinary administrative proceedings and that, pursuant to Article 111 of the Ley Orgánica de Ambiente, it is not within its authority to issue technical approvals (vistos buenos técnicos) for the potential acceptance of whatever the respondent company may submit; the technical bodies must issue the relevant determinations and forward the appropriate materials to this Office (…)”.
On 20 de abril de 2021, the legal representatives of WPP Continental de Costa Rica S.A. and WPP CORICLEAN LOS mbre02 W WASTES DISPOSAL S.A. filed a submission stating: “We respectfully appear to request a DECLARATION THAT THESE PROCEEDINGS HAVE LAPSED (DECLARATORIA DE CADUCIDAD DE ESTE PROCEDIMIENTO). This request is based on Article 340 of the Ley General de la Administración Pública and on the fact that the oral and public hearing was held on 19 de octubre de 2020; the six-month period has already elapsed without notice of the issuance of the final administrative act (acto final), and without these proceedings having progressed in any manner. Accordingly, respectfully stated, not only has the period established by Article 27 of Decreto Ejecutivo No. 34136 been exceeded by a considerable margin, but the legal condition set forth in the aforementioned provision of the Ley General de la Administración Pública has also been satisfied.
Consequently, invoking the principle of legality (principio de legalidad), as well as the fundamental right to prompt and effective administrative justice, we request that this application be granted, DECLARING THE PROCEEDINGS LAPSED for all legal purposes, with the corresponding consequences...”. By resolution No. 669-2021-TAA of 10:05 hours on 16 de junio de 2021, this Tribunal ruled: “...SOLE RULING: DENY THE REQUEST FOR A DECLARATION THAT the ordinary administrative proceedings conducted under expediente No. 132-18-03-TAA HAVE LAPSED, as submitted by Ms. Nombre07, representative of WPP Continental de Costa Rica S.A., and Ms. Olga Marta Arias Rivas, representative of WPP CORICLEAN LOS mbre02 W WASTES DISPOSAL S.A. ...”. Subsequently, by resolution No. 853-2021-TAA of 9:00 hours on 21 de julio de 2021, evidence to assist in reaching a decision (prueba para mejor resolver) was requested, as follows: “...1.
Request that MSc. Cynthia Barzuna, in her capacity as Secretary General of the Secretaría Técnica Nacional Ambiental, or whoever holds that position: ‘a. In view of Official Letter SETENA-SG-1575-2018 (appearing at pages 49 through 51 of the administrative record), which states: “...FIFTH... It is determined that the project has carried out works in areas that do not have Environmental Feasibility Approval (Viabilidad Ambiental)...”, in relation to Official Letter SETENA-SG-1333-2019 (appearing at pages 273 through 288 of the administrative record), particularly where it states: “...By Resolution NO 2262-2017-SETENA, dated 28 de noviembre de 2017... this Secretaría establishes the following ... SECOND: … That, in accordance with the circumstances described in the preceding Whereas clause (Considerando), this Secretaría considers that the project area for which Environmental Feasibility Approval was granted by Official Letter SG-1033-2003-mbre03 d dated 01 de julio de 2003 comprises a total of 8,4 ha, located exclusively within cadastral plans (planos catastrados) C-4092236-1980 and C-572610-1980 …” and in relation to the location diagram appearing at page 288 of the administrative record, report: On which property or properties, real-property folio or folios, and plan or plans were the works allegedly carried out without Environmental Feasibility Approval; and also prepare a Location Diagram identifying the plans for which Environmental Feasibility Approval was granted and the plans on which the project was allegedly developed.
The foregoing shall be completed within ten calendar days counted from the day following service of this resolution. b. In view of Resolution No. 2712-2019-mbre03 ( (appearing at pages 334 through 359 of the administrative record), particularly pages 351 through 352, which states: “… Based on the findings of the inspection conducted on 09 de octubre de 2018 and the documentation contained in the record, the following may be concluded: Table 1. Observation 6 … At the time of the inspection, several locations were found where the presence of leachate (lixiviados), or its surfacing, was detected on access roads, stormwater ditches, drains, slopes, and in leaks from the wells. The untreated discharge of leachate into a creek or natural stormwater channel was also detected …”, this Tribunal agrees to conduct an on-site visual inspection (inspección ocular in situ) with officials of this Tribunal, to be held on 29 de julio de 2021 at 09:00 hours, with the meeting point at the location of the reported events, jointly with MSc. Cynthia Barzuna, whoever holds her position, or whomever she designates, and Eng.
José Miguel Zeledón Calderón, in his capacity as Director of the Dirección de Agua del MINAE, whoever holds his position, or whomever he designates, so that the location of the alleged creek or natural stormwater channel may be identified. Within ten calendar days following the inspection, Eng. José Miguel Zeledón Calderón, in his capacity as Director of the Dirección de Agua de MINAE, or whoever holds his position, is requested to state the status of the alleged body of water, indicating whether it constitutes a publicly owned watercourse (cauce de dominio público). All parties to administrative expediente No. 132-18-03-TAA are hereby summoned to this inspection...’” On 21 de julio de 2021, a submission was received from Oscar Guzmán Coto, attaching the following documentation: Official Letter CNE-UlAR-lNF-0519-2019 from the Comisión Nacional de Emergencias (CNE); Official Letter MS-DFBS-UGl-DUS-236-2020; Official Letter MS-DPRSA-546-2020; Official Letter MS-DPRSA609-2020 (all from the Ministerio de Salud); resolution number 722-2021-SETENA; Official Letter MSDRRSCE-URS-lT-0233-2021; Official Letter MS-DFBS-UGl-293-2021; resolution MS-DRRSCE-06542021 (all from the Ministerio de Salud); and an undated submission without an official-letter number signed by Oscar Alberto Guzmán Coto.
Pages 2293 through 2306 of the record contain Official Letter number 596-2021-TAA, signed by the acting president of the Tribunal Ambiental Administrativo, responding to the Sala concerning an amparo proceeding (recurso de amparo). On 22 de julio de 2021, a motion for reconsideration (recurso de revocatoria) against resolution number 853-2021-TAA was received, signed by Nombre07, representative of WPP Continental de Costa Rica S. A. On that same day, an unnumbered submission signed by Oscar Alberto Guzmán Coto was received, attaching various documents as evidence. By resolution number 895-2021-TAA of 14:10 hours on 27 de julio de 2021, the following was ordered: “(...)FIRST: Dismiss the motion for reconsideration filed by Ms. Nombre07, representative of WPP Continental de Costa Rica S.A., both on the merits and on procedural grounds, pursuant to the third Whereas clause of this resolution.
SECOND: Regarding the request for a declaration that the proceedings have lapsed, Ms. Nombre07 is advised to abide by the provisions of Resolution 669-2021-TAA. THIRD: Suspend the on-site visual inspection scheduled for 29 de julio de 2021 at 09:00 hours and reschedule said proceeding for Martes 03 de Agosto del 2021 at 09:00 hours, with the meeting point at the location of the reported events. NOTICE SHALL BE SERVED.” On 4 de agosto de 2021, Official Letter number SETENA-SG-SG-0988-2021, signed by the Secretary General of the Secretaría Técnica Nacional Ambiental, was received in response to the request made by resolution number 853-2021-TM. Official Letter number SETENA-DT-ASA-1146-2021 was attached. Subsequently, on 9 de agosto of that same year, Official Letter number DA-UHCAROC-0297-2021, signed by the Dirección de Agua, was received, attaching an expert opinion on the body of water.
Pages 2472 through 2479 of the record at issue contain Official Letter number TAA-DT-316-2021 from the Technical Department of this Tribunal, stating as follows: “(...) 1. The request set forth in administrative resolutions 853-2021-TAA and 895-2021-TAA to conduct an on-site visual inspection as evidence to assist in reaching a decision was fulfilled. 2. The mbre03 m official showed the alleged site assessed by the mbre03 e official in octubre de 2018; that site was assessed by the official from the Dirección de Agua for preparation of the technical opinion requested by the TAA. 3. Photographs and geographic location points were taken at the site where the inspection requested by the TAA was conducted, as a record of that proceeding …”. Official Letter number SETENA-DT-ASA-1191-2021 provided the results of the inspection conducted on 3 de agosto de 2021, concluding as follows: “... It is the responsibility of the Dirección de Aguas to determine whether the surface-water runoff observed on the property of the Municipalidad de Paraíso, into which the water from the observed downspout is discharged...”.
By Official Letter No. DBP-OFl-252-2021 from the Procuraduría General de la República, a plain copy of expedientes 132-18-03 and 212-16-02 was requested. Pages 2495 through 2499 contain Tribunal resolution No. 1109-2021TAA, which includes a sole ruling ordering that the following official letters be disclosed to the parties: SETENA-SG-SG-0988-2021, SETENA-DT-ASA-1146-2021, DAUHCAROC-0297-2021, TAA-DT-3165-2021, SETENA-SG-1021-2021, SETENA-DT-ASA1191-2021, so that, within three business days counted from the first business day following service of this resolution, they may respond to the matters set forth in that documentation. Page 2511 contains the request submitted by the Mayor of Cartago, Lic. Mario Redondo Poveda, authorizing municipal official José Alberto Araya Quirós to collect digital expediente NOo.132-18-03-TAA and resolution No. 11092021-TAA. Page 2512 states that Marcela Medrana Meza, treasurer and holder of an unlimited general power of attorney (Apoderada Generalísima sin límite de suma) for WPP - Cloriclean Los mbre02 W Waste Disposal S.mbre06.,., authorizes Rafael Hernández Pérez to collect a copy of digital expediente No. 132-18-03-TAA.
Pages 2516 through 2518 contain a submission from Nombre07 responding to the hearing granted by the Tribunal. Likewise, pages 2519 through 2521 of the record at issue contain the official letter from the Comisión Plenaria, Acuerdo ACP-013-2014, which states: “FIRST: The submission of an environmental assessment (evaluación ambiental) for the Technical Closure (Cierre Técnico) of a Landfill (Vertedero) is inadmissible; the Ministerio de Salud must be approached in order to carry out the proposed technical closure.
SECOND: Order the closure of the administrative case files concerning the Technical Closure of Dumps that are under review by this Secretariat. It is recorded that the mayor of Cartago stated: “...As regards the theory of the case advanced by the party I represent, the evidence on which a ruling is requested neither affects it nor, much less, the body of evidence offered in support of that theory. Quite the contrary, it even confirms what this municipality has maintained regarding its lack of any liability whatsoever for the reported events...”. Folios 2523 to 2530 of the administrative case file contain Resolution No. 1402-2021-TAA mbre03 d, issued at 9:40 a.m. on 8 de setiembre de 2021, Administrative Case File No. FEAP-0037-2002-SETENA, ruling on the motion for reconsideration with a subsidiary appeal (recurso de revocatoria con apelación en subsidio) filed against Resolution No. 722-2021-SETENA, which states in this regard: “(...) FIRST: IN accordance with the factual and legal grounds set forth, the Motion for Reconsideration against Resolution NO. 722-2021-SETENA is DENIED.
(…)”. Folios 2531 to 2533 of the administrative case file contain the subsidiary appeal filed against Resolution No. 722-2021-SETENA before the Office of the Minister of Environment, which states: “(...) I request that the appeal be granted, with the consequences prescribed by law. In the alternative, I request that the supervening nullity (nulidad sobrevenida), which, in the interest of procedural economy, was also addressed in Resolution 1402-2021-mbre03, be granted (...)”. Folios 2533 to 2585 contain Judgment No. 2021021240 of the Chamber, issued at 9:15 a.m. on 24 de setiembre de 2921, which: “(...) partially grants the appeal. Consequently, the following is ordered...b) Ana María de Montserrat Gómez de la Fuente Quiñónez, in her capacity as president of the Tribunal Ambiental Administrativo, or whoever holds that office, shall issue a final decision in the administrative proceeding (procedimiento administrativo) conducted under case file No. 132-18-03-TAA within 2 months from service of notice.
(...)”. The record also contains a submission filed on 8 de diciembre de 2021 by the general attorney-in-fact with unlimited authority (apoderada generalísima sin límite de suma) of EMPRESAS BERTHIER EBI DE COSTA RICA S.A., stating: “... NOTICE IS HEREBY GIVEN OF A NEW FACT HAVING A SIGNIFICANT BEARING ON THE MATTER UNDER INVESTIGATION ...”. Folios 2614 to 2629 of the administrative case file contain Resolution No. 270-2022-mbre03 d of 17 de febrero de 2022, TECHNICAL CLOSURE OF THE NAVARRO DUMP AND CONSTRUCTION OF THE LOS mbre02 E SANITARY LANDFILL PROJECT, Administrative Case File No. FEAP-0037-2002-SETENA. Folios 2630 to 2634 and 2637 to 2642 of the administrative case file contain Official Letter No. DA-UHCAROC-0121-2022 of 18 de abril de 2022, signed by the Unidad Hidrológica Caribe of the Dirección de Agua. Folios 2635 and 2636 of the administrative case file contain Official Letter SETENA-SG-0391-2022, signed by the secretary general of SETENA.
Folios 2642 to 2653 contain Resolution No. 917-2022-mbre03 d of 1 de junio de 2022. Folio 2654 a of the administrative case file contains Judgment No. 2022022066 of the Chamber, issued at 9:20 a.m. on 23 de setiembre de 2022, which provides: “(...) The application filed is denied (...)”. Folios 2657 to 2670 of the administrative case file contain Resolution No. 1663-mbre03 d of octubre de 2022. Folios 2671 to 2673 of the administrative case file contain a submission filed on 20 de febrero de 2023, signed by the representatives of WPP Continental de Costa Rica S.A. and e de WPP Coriclen Los mbre02 W Waste Disposal S.A., requesting a declaration that the proceeding had expired (caducidad del procedimiento). Folios 2674 and 2675 of the administrative case file contain a submission filed on 9 de junio de 2023 by those same representatives, requesting: “... once again, that the expiration be granted and that this case file be closed.
In addition, it is requested that the status of substantive res judicata (cosa juzgada material) of the cited Voto and the agreement entered into with the Municipalidad de Cartago be respected...”. Folios 2676 to 2686 of the case file at issue contain Official Letter SETENA-SG-0864-2023, corresponding to Case File FEAP-0037-2002-SETENA. Folios 2687 to 2689 of the administrative case file contain Official Letter SETENA-DT-0890-2023, corresponding to Case File FEAP-0037-2002-SETENA. Folios 2690 to 2694 of the administrative case file contain Official Letter No. SETENA-DT-1080-2023, corresponding to Case File FEAP-0037-2002-SETENA. Folios 2695 to 2704 of the administrative case file contain Official Letter No. SETENA-SG-D023-2024, corresponding to Case File FEAP-0037-2002-SETENA. Folios 2705 and 2706 of the administrative case file contain Official Letter No. 350-2024-TAA, addressed to the Área de Derecho Público, Procuraduría General de la República, forwarding a copy of case file No. 132-18-03-TAA, Official Letter No. 349-2024-TAA.
Folios 2707 and 2708 contain a submission filed on 13 de mayo de 2024, signed by the representative of WPP Continental Los mbre02 S S.A., stating: “1-On Friday, 10 de mayo de 2024, by force, without prior notice, and against our will, the Municipalidad de Cartago took possession of the property belonging to it that forms an integral part of the Los Pinos Sanitary Landfill project. 2. On that day, the Municipalidad de Cartago erected fencing and installed a gate without our consent, expelling us and preventing us from accessing that land. In the presence of OIJ officials (because a complaint was filed against our employees that day), that Local Government took possession of the site and left a locked gate that neither we nor anyone else can enter …”. Folios 2709 to 2714 of the administrative case file contain Official Letter No. AL-OF-200-2024/AOM-OF-066-2024/ASC-OF-151-2024, received on 15 de mayo de 2024 and addressed to the mayor of Cartago.
Folios 2715 and 2716 of the administrative case file contain a note addressed to that same mayor. Folios 2717 to 2719 of the administrative case file contain Official Letter SEIENA-SG-0439-2024, received on 23 de mayo de 2024 and signed by the secretary general of the Secretaría Técnica Nacional Ambiental SETENA. Folios 2720 to 2730 of the administrative case file contain an email sent by the Municipalidad de Cartago, stating: “...After respectfully greeting you, I hereby forward an email concerning WPP’s response to the referral for enforcement of Health Order N O MS-DRRSCE-OS-001-2024, for your appropriate attention...”. Folios 2731 to 2733 of the administrative case file contain Official Letter No. AM-OF-391-2024, signed by the mayor of the Municipalidad de Cartago and addressed to the Minister of Health. Folios 2734 to 2741 contain Resolution No. 1241-2024-mbre03 c, corresponding to Administrative Case File No. FEAP-0037-2002-SETENA.
Folios 2743 to 2750 of the administrative case file contain Resolution No. 274-2024-mbre03 d of 11 de julio de 2024, corresponding to Administrative Case File No. FEAP-0037-2002-SETENA. Folios 2751 to 2757 of the administrative case file contain Resolution No. 1275-2024-mbre03 d of 11 de julio de 2024, corresponding to Administrative Case File No. FEAP-0037-2002-SETENA. Folios 2758 to 2771 of the administrative case file contain Resolution No. 1400-2024-mbre03 d of 31 de julio de 2024. Folios 2776 to 2793 of the administrative case file contain Resolution No. 183-2025-mbre03 d of 12 de febrero de 2025, corresponding to Case File FEAP-0037-2002-SETENA. Folios 2794 to 2797 of the administrative case file contain Official Letter No. O-122-2025-TAA of 18 de febrero de 2025, signed by the acting judge-secretary of the Tribunal Ambiental Administrativo and addressed to the Legal Department of the Municipalidad de Cartago, forwarding a certified copy of case file No. 132-1803-TAA.
Finally, they state that the corresponding oral and public hearing has already been held and that, after that proceeding, for the purpose of ascertaining the true facts and taking into account the complexity of the case, it was determined that additional evidence for a better-informed decision (prueba para mejor resolver) needed to be requested; that evidence has already been received from the institutions competent for such purposes, and the final decision in the ordinary administrative proceeding (procedimiento ordinario administrativo) is currently being reviewed and drafted, with this Tribunal acting diligently in processing this administrative case file. This Office further notes that, once the final decision has become final and binding, it will be served on this Chamber for such further action as it deems appropriate.
Justice Hess Herrera drafts the opinion; and,
WHEREAS:
The petitioner alleges that the respondent authorities have not carried out any of the actions ordered by the Tribunal Ambiental Administrativo to guarantee protection of the right to a healthy and ecologically balanced environment. He asserts that such conduct violates his fundamental rights.
Before addressing the merits, it must be clarified that, since Judgment No. 2008-02545 issued at 08:55 hours on 22 February 2008, this Chamber has referred to the administrative litigation jurisdiction—with some exceptions—those matters concerning whether the Public Administration has complied with the reasonably established time limits for deciding requests submitted by private parties, in light of Article 41 of the Constitución Política. This particular case falls within an exception because it concerns the failure to address environmental pollution problems. In view of the foregoing, the Chamber shall decide the specific situation raised in this action.
The following facts relevant to the decision in this amparo proceeding (amparo) are deemed proven:
For those purposes, a period of three days was granted (report submitted under oath and attached copies). 10) On 14 May 2025, the interinstitutional sanitary inspection of Relleno Sanitario Los Pinos was conducted, confirming continued noncompliance with that sanitary order (report submitted under oath). 11) On 4 June 2025, Sanitary Report No. CARTA-MS-DRRSCE-DARSC-IS-005-2025 was served on the mayor of Cartago (report submitted under oath). 12) Currently, the precautionary measure (medida cautelar) ordered in Tribunal Ambiental Administrativo Resolution No. 1134-19-TAA at 9:57 a.m. on 8 July 2019 remains in force (undisputed fact).
This Court established that, in Navarro, Dulce Nombre de Cartago, the Los Nombre02 sanitary landfill (relleno sanitario) operated on adjoining parcels of land owned by the Municipalidad de Cartago and the company WPP Continental de Costa Rica S.A., which entered into a contract for the operation and final disposal (disposición final) of solid waste (desechos sólidos). It was also verified that this local government entity and that company, as well as WPP Coriclean Los Nombre02 Waste Disposal, S. A., entered into a settlement agreement (conciliación) to conclude the existing judicial proceedings and administrative procedures, under which those companies would assume responsibility for all the works required for the technical closure (cierre técnico) of that landfill and its post-closure (post-cierre). Notwithstanding the foregoing, it was established that, in June and August, both in 2018, complaints were filed with the Tribunal Ambiental Administrativo because waste was allegedly still being deposited on one of those properties without a leachate treatment plant (planta de tratamiento de lixiviados), and because cells (celdas) had allegedly been constructed outside the environmentally assessed area (área ambientalmente evaluada); based on those events, in July 2019, the Tribunal Ambiental Administrativo imposed certain precautionary mitigation measures (medidas cautelares de mitigación) on the respondent local government entity to reduce or prevent the environmental harm that those omissions could cause, particularly harm that would be difficult or impossible to remedy.
In this regard, this Chamber, in judgment No. 2020018888 at 9:15 on 2 October 2020, stated that, although: “… the authorities are aware of the reported problem and, although several administrative acts have been issued, none has been effective or efficient. Indeed, the Ministerio de Salud has acknowledged that the legal contractual dispute between the companies WPP Continental de Costa Rica S.A. and WPF Coriclean Los Nombre02 Waste Disponsal S.A. WPP and the Municipalidad de Cartago has resulted in the landfill sector owned by that municipal government receiving no maintenance and in the technical closure works not being performed, leading to leachate pooling on the land, exposed waste due to a lack of cover, and other unsanitary conditions that endanger public health …”. Although the Relleno Sanitario Los Nombre02 is no longer operating, in January 2025, the Ministerio de Salud verified that this situation had not improved and that the reported conditions persisted, because: “…
There is no staff at the site to operate the treatment plant or maintain the system’s operating units, access road, roads, or surrounding areas. The coagulant mixture that the treatment plant operator was responsible for preparing is not being prepared and, therefore, is not being dosed. As a result, the physical-chemical separation treatment, which is the first stage of treatment and helps lower COD, BOD, TSS, and heavy metals to levels at which lagoon-based biological treatment may be used, is not taking place. Consequently, the leachate flows into the lagoon without undergoing the prescribed physical-chemical treatment; the lagoon is therefore completely silted up and has the same deep-black coloration as the leachate generated in the waste cells, showing that the microbial bed has collapsed and has virtually disappeared. The lagoon sludge is not being purged into the drying beds. The dewatered sludge in the drying beds has not been collected.
Leachate from the drying beds is not being pumped to the first stage of the treatment system (stormwater may also be entering at this point). The drying-bed structures are deteriorating because of the lack of maintenance and cleaning. The water-flow pipe from the lagoon to the FAFA filters has become detached, so it is unknown where the liquid is being discharged after leaving the lagoon. In addition, the inspection chamber where samples are taken is completely covered by vegetation, making it impossible to observe any inflow into it. The shed where the sampling instruments and aluminum sulfate (flocculant) are stored remains locked, with increasing vegetation around it. Like the shed, all treatment units are being overtaken by vegetation, causing them to deteriorate. In summary, the site has remained in a state of complete operational abandonment since 10 May 2024; consequently, the responsible party has also conducted no routine follow-up and control sampling as required by decree N 033601-S-MlNAE.
At this point, it is important to document the existence of uncontrolled pollution of a natural body of water (Río Agua Caliente), which is receiving water containing high levels of organic and inorganic loads, suspended solids, dissolved heavy metals, and other constituents characteristic of leachate generated in sanitary landfills. This was also demonstrated in official letter MS-DPRSA-USA-1335-2024, which contains the results of sampling performed by the Laboratorio de Servicio de Análisis Ambientales CHEMLABS as part of the Ministerio de Salud’s governmental wastewater monitoring. This pollution must be reported to the Tribunal Ambiental Administrativo so that it may determine the actions to be taken. Maintenance of project areas. During the inspection, it was established that maintenance work had not continued in various areas of the project. It was also established that local fauna, including grazing cattle, were entering the area.
Stormwater channeling (canalización de aguas pluviales). The stormwater drainage system could not be observed on land owned by the Municipalidad de Cartago; there was a clear lack of maintenance, and visibility was obstructed by grass growing around the system and inside the gutters. On the other hand, stormwater channeling work was observed in the sector owned by WPP. Placement of cover material. No cover-material placement work was observed because the Relleno Sanitario Los Nombre02 project was not operating. Deployment of machinery at the project. No machinery performing work was observed during the inspection. Availability of cover material. No stockpiles of cover material were observed at the site. Biogas-burning chimneys. Overall, the chimneys are only partially operational. During the inspection, some chimneys were observed to be extinguished on property owned by the Municipalidad de Cartago.
On previous visits, a person responsible for verifying that the chimneys were lit had been observed only on the WPP property; however, because of the heavy rain at the time of this visit, no staff were in the field performing that task. Windblown waste. On previous visits, ‘windblown’ waste had been observed in areas near the uncovered zones (eastern sector). Currently, the grass is so overgrown, and because of the rainy conditions at the time of the visit, no ‘windblown’ waste could be seen. No staff are assigned to manually collect waste. Active solid-waste placement face (frente activo de colocación de residuos sólidos). An area of waste remains exposed in the open air. This area was the active working face where the landfill operator had been depositing waste, on land owned by the Municipalidad de Cartago. It was abandoned because it has not been in operation since Friday, 10 May, and neither waste-covering work nor slope formation (configuración de taludes) was carried out.
WPP’s technical criteria for the work being performed in this area before its abandonment are unknown, including those concerning the opening of cells, removal of vegetation cover (cobertura vegetal), rearrangement of buried waste and placement of new waste, odor and pest control, formation of new slopes, control of windblown waste, control of gas emissions and odors, and channeling of leachate and stormwater, among other matters, because, before operations began in that area—which had not been authorized by SETENA, Municipalidad de Cartago, or Ministerio de Salud—no work plan setting out the operational basis and technical criteria was submitted. The sector is abandoned, without any type of operation or maintenance. Inclination of formed slopes. It cannot be stated that any slopes were completely finished in the sectors of the former working face operated until late 2023 on land owned by WPP Continental Los Nombre02 S.A., or at the working face where operations ceased on 10 May 2024.
Demarcation of the property boundary between the WPP land and the Municipalidad de Cartago land. During the inspection, blue posts marking the boundary between land owned by WPP and land owned by the Municipalidad de Cartago were observed. The lack of maintenance is more evident along that perimeter …”. Accordingly, the record shows that, through health order (orden sanitaria) No. CARTA-MS-DRRSCE-DARSC-OS0020-2025 of 10 February 2025, the mayor of Cartago was ordered to do the following: “a) Cover the waste that is currently exposed; b) Continue maintaining the leachate treatment plant; c) Maintain the chimneys used to release gases; d) Maintain the perimeter channels and perform the works necessary for the proper conveyance of runoff water; e) Monitor slope stability to prevent possible landslides; and f) Maintain green areas and internal roads…”, within three days. However, according to the respondent local health authority, that period expired without any change in conditions, since the inspection of 14 May 2025 established that cattle had entered project areas, the project areas had not been maintained, waste remained exposed in abandoned project cells, cracks were present in the ground in the leachate-treatment-plant area, the project’s internal roads and perimeter channels had not been maintained, and the project’s leachate treatment system was neither operating nor being maintained.
In his defense, the respondent mayor contends that the municipal government he represents is not responsible for complying with those health orders because, as a result of the settlement agreement entered into by the municipal government with WPP Continental Los Pinos, S. A. and WPP Coriclean Los Nombre02 Waste Disposal, S. A., the developer is responsible for implementing the mitigation measures ordered by the Ministerio de Salud, the Secretaría Técnica Nacional Ambiental, and the Tribunal Ambiental Administrativo itself. He therefore maintains that the municipal government he represents cannot be faulted for any omission in this case. This Chamber finds that the justification offered in this regard is unacceptable because, as held in an earlier matter addressing the abandonment of the sanitary landfill at issue and its consequences: “… the issue of constitutional significance is limited to determining whether the respondent authorities have acted diligently to address and ultimately resolve this environmental problem, which, as can readily be established, they have not.
Apart from the foregoing, the position taken by the municipal government of Cartago is unacceptable because, even though it no longer deposits waste at the disputed site, it cannot disregard its duty to protect the fundamental rights of its residents. The needs of the residents of its canton must necessarily be addressed above any dispute …”.
Furthermore, it cannot disregard that “…This Court has recognized that local governments have, within the scope of their powers and obligations, a high degree of responsibility in environmental matters, whether through the direct approval of permits or licenses for which prior compliance with requirements demonstrating proper environmental management before other public authorities is required, or through regular inspections and the referral of risk situations to the authorities with greater powers of intervention. It has already been established that local governments are subject to an obligation to coordinate and prevent environmental harm within their territorial jurisdiction, from which it follows that municipalities are indeed important actors in the task of protecting the environment. As indicated supra, not only that municipal council, but also all the other respondent authorities, have broad powers to act; and although they are subject to legality and reasonableness, the fact remains that, given that this involves a threat to the environment and public health, legality and formalities are displaced …” (judgment No. 2020018888 at 9:15 on October 2, 2020).
It is therefore evident that the respondent local government, sheltering behind a legal formality, has refused to implement the mitigation measures ordered by the respondent health authority in order to achieve a comprehensive solution to the reported problem because, as was established, the land it owns is in a state of abandonment that places the health of neighboring residents and the population in general in imminent danger, with respect to which the intervention of the Área Rectora de Salud de Cartago has been largely ineffective in guaranteeing a healthy and ecologically balanced environment. Accordingly, the Chamber finds that the alleged violation occurred. On this understanding, the appeal must be granted with respect to the respondent local government and Área Rectora de Salud, as set forth below.
Moreover, the appellant should note that the alleged noncompliance with the precautionary measure (medida cautelar) ordered by the Tribunal Ambiental Administrativo in resolution No. 1134-19-TAA at 9:57 a.m. on 8 de julio de 2019 must be reported in the administrative proceeding (procedimiento administrativo), and not through this specialized avenue.
In environmental matters, it is also the undersigned’s view that, if the Public Administration (Administración Pública) has already intervened, jurisdiction to hear and decide the matter lies with the contentious-administrative jurisdiction (jurisdicción contenciosa administrativa). Nevertheless, I do address the merits of the matter when other rights of the persons affected by the source of pollution are at stake, including health, quality of life, and the right to enjoy a healthy and pollution-free environment (Article 50 of the Constitución Política), as is the case here, in which the appellant filed a complaint concerning environmental pollution that has not been finally resolved, in violation of the right to enjoy a healthy and ecologically balanced environment and a dignified standard of quality of life.
The parties are hereby advised that, if they submitted any paper document, as well as objects or evidence contained on any additional electronic, computer, magnetic, optical, or telematic device, or produced using new technologies, they must retrieve them from the court office within a maximum period of 30 business days from notification of this judgment. Otherwise, any material not retrieved within that period will be destroyed, pursuant to the "Reglamento sobre Expediente Electrónico ante el Poder Judicial", approved by the Corte Plena at session number 27-11 of 22 de agosto de 2011, Article XXVI, and published in Boletín Judicial number 19 of 26 de enero de2012, as well as the resolution approved by the Consejo Superior del Poder Judicial at session number 43-12 held on 3 de mayo de 2012, Article LXXXI.
POR TANTO:
The appeal is granted. Mario Redondo Poveda, Grettel Quesada Moya, and Carlos Alberto Granados Siles, in their respective capacities as mayor and president of the Concejo, both of Cartago, and director of the Área Rectora Salud Cartago, or whoever holds those offices, are ordered to arrange and coordinate all necessary measures so that, within TWO MONTHS from notification of this judgment, the environmental problem complained of is permanently corrected and the most urgently needed immediate mitigating measures are adopted. The respondents are advised that, pursuant to Article 71 of the Ley de la Jurisdicción Constitucional, anyone who receives an order issued in an amparo proceeding (recurso de amparo) that must be complied with or enforced, and fails to comply with or enforce it, shall be punished by imprisonment for three months to two years, or by twenty to sixty day-fines, provided that the offense is not subject to a more severe penalty. The Municipalidad de Cartago and the State are ordered to pay the legal costs and damages caused by the events underlying this ruling, which shall be assessed during enforcement of the judgment before the contentious-administrative jurisdiction. Justice Salazar Alvarado files a separate note. Let notice be given.
Fernando Castillo V.
President Fernando Cruz C.
Paul Rueda L.
Luis Fdo. Salazar A.
Jorge Araya G.
Anamari Garro V.
Ingrid Hess H.
CASE FILE N° 25-011952-0007-CO Telephone numbers: Telf01/ ALA-4TA (Telf02). Fax: Telf03 / Telf04. Website: www.poder-judicial.go.cr/salaconstitucional. Address: (Dirección02, Dirección03, 100 meters south of the Perpetuo Socorro church).
Revisión del Documento SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE JUSTICIA. San José, a las nueve horas quince minutos del uno de agosto de dos mil veinticinco .
Recurso de amparo promovido por Nombre01, cédula de identidad CED05, contra la MUNICIPALIDAD DE CARTAGO Y EL MINISTERIO DE SALUD.
RESULTANDO:
c)Realizar el mantenimiento de las chimeneas para la liberación de gases.
d)Realizar el mantenimiento de los canales perimetrales y obras necesarias para la conducción optima de aguas de escorrentía.
Todo lo anterior con fundamento en el informe Técnico No. CARTA-MS-DRRSCE-URS-IT0016-2025, que determinó que existe una condición de abandono en el terreno propiedad de la Municipalidad de Cartago. Para el día 14 mayo de 2025 se tiene previsto realizar la inspección mensual de carácter interinstitucional (Municipalidad de Cartago, Ministerio de Salud y SETENA) al relleno sanitaria, donde se verificará la condición de cumplimiento del acto administrativo aquí indicado. Agrega que, el 18 agosto de 2019, mediante el oficio MS-DRRSCE-ARSC-1050-2019 se brindó la respectiva respuesta al Tribunal Ambiental Administrativo donde se abordaron cada una de las ocho ordenanzas emanadas por esa autoridad.
Redacta la Magistrada Hess Herrera; y,
CONSIDERANDO:
El recurrente acusa que las autoridades recurridas no han realizado ninguna de las acciones ordenadas por el Tribunal Ambiental Administrativo para garantizar la tutela del derecho a un ambiente sano y ecológicamente equilibrado. Afirma que ese proceder es contrario a sus derechos fundamentales.
Antes de analizar el fondo del asunto debe aclararse que, a partir de la sentencia No. 2008-02545 de las 08:55 horas del 22 de febrero de 2008, esta Sala ha remitido a la jurisdicción contencioso- administrativa –con algunas excepciones– aquellos asuntos en los que se discute si la Administración Pública ha cumplido o no los plazos razonablemente pautados para resolver las solicitudes planteadas por los administrados a la luz de lo dispuesto por el artículo 41, de la Constitución Política. En el caso concreto, se plantea un supuesto de excepción, pues, se trata de la desatención de problemas de contaminación ambiental. Atendiendo a lo expuesto, se entra a resolver la situación concreta planteada en este recurso.
De relevancia para la decisión del presente amparo se tienen por demostrados los siguientes:
Este Tribunal acreditó que, en Navarro, de Dulce Nombre de Cartago, operó el relleno sanitario Los Nombre02 en unos terrenos colindantes que son propiedad de la Municipalidad de Cartago y de la empresa WPP Continental de Costa Rica S.A., quienes suscribieron un contrato para la operación y disposición final de desechos sólidos. Además, se verificó que ese ente local y esa sociedad, así como WPP Coriclean Los Nombre02 Waste Disposal, S. A., suscribieron una conciliación para la conclusión de los procesos judiciales y los procedimientos administrativos existentes, según la cual, esas empresas se harían cargo de la totalidad de las obras que debían ejecutarse para el cierre técnico de dicho relleno y su post- cierre. Pese a lo anterior, se comprobó que en los meses de junio y agosto, ambos de 2018, se plantearon unas denuncias ante el Tribunal Ambiental Administrativo, en vista de que, presuntamente, se continuaban depositando desechos en uno de esos fundos, sin contar con una planta de tratamiento de lixiviados y por la supuesta construcción de celdas fuera del área ambientalmente evaluada; hechos por los que, en julio de 2019, el Tribunal Ambiental Administrativo impuso cautelarmente algunas medidas de mitigación al ente local recurrido para reducir o evitar los daños ambientales que esas omisiones podrían ocasionar, especialmente aquellas de difícil o imposible reparación.
Sobre el particular, esta Sala en la sentencia No. 2020018888 de las 9:15 horas de 2 de octubre de 2020, señaló que, aunque: “… las autoridades conocen la problemática referida y si bien se han dictado varios actos administrativos, ninguno ha sido eficaz y eficiente. Tanto que el Ministerio de Salud ha aceptado que la problemática contractual de índole legal que existe entre las empresas WPP Continental de Costa Rica S.A. y WPF Coriclean Los Nombre02 Waste Disponsal S.A. WPP y la Municipalidad de Cartago ha ocasionado que en el sector del Relleno Sanitario propiedad de ese cabildo no haya brindado mantenimiento ni se hayan realizado las obras de cierre técnico, teniendo como resultado el empozamiento de lixiviados en el terreno, la exposición de residuos por falta de cobertura, entre otras condiciones insalubres que ponen en riesgo la salud pública …”. Aunque, actualmente, el Relleno Sanitario Los Nombre02 ya no está operando, en enero de 2025, el Ministerio de Salud, verificó que ese panorama no ha mejorado, sino que la situación acusada persiste, pues: “…
En el sitio no hay personal para operar la planta de tratamiento ni dar mantenimiento a las unidades operativas del sistema, al acceso, caminos ni zonas aledañas. No se realiza la preparación de mezcla del coagulante que correspondía realizar al operador de la planta de tratamiento, por lo que no hay dosificación de este, lo que provoca que no exista tratamiento físico- químico de separación, que es la primera etapa del tratamiento y ayuda bajar los niveles de DQO, DBO, SST y Metales Pesados a niveles donde se permite utilizar tratamiento biológico lagunar. Debido a lo anterior, los lixiviados fluyen hasta la laguna sin recibir el tratamiento físicoquímico establecido, por lo que esta se encuentra completamente colmatada, presenta una coloración negro intenso igual a los lixiviados que se generan en las celdas con residuos, lo que evidencia que el lecho microbiano colapsó y prácticamente desapareció.
Los lodos de la laguna no se están purgando hacia los lechos de secado. Los lodos que se encuentran deshidratados en los lechos de secado no fueron recolectados. Los lixiviados de los lechos de secado no se están bombeando hacia la primera etapa del sistema de tratamiento (en este punto también podrían estar ingresando aguas pluviales). Las estructuras de los lechos de secado se están deteriorando por la falta de mantenimiento y limpieza. La tubería de flujo de agua desde la laguna hacia los filtros FAFA se encuentra desprendida, por lo que se desconoce por donde está desfogando el líquido posterior a la laguna. A esto se suma que la caja de registro donde se toman las muestras está completamente tapada por la vegetación, así que no es posible observar algún ingreso al mismo. La caseta donde se almacenan los Instrumentos de muestreo y el sulfato de aluminio (floculante) se mantiene cerrada y cada vez con más vegetación a su alrededor.
Al igual que la caseta, todas las unidades de tratamiento están siendo invadidas por la vegetación, lo que provoca su deterioro. En resumen, en el sitio se mantienen condiciones de completo abandono en la operación desde el 10 de mayo del 2024 por lo que tampoco existen muestreos de seguimiento y control rutinario según decreto N 033601-S-MlNAE por parte del responsable. En este punto es importante dejar evidencia que existe una condición de contaminación descontrolada a un cuerpo de agua natural (Río Agua Caliente), el cual está recibiendo aguas con altos contenidos de carga orgánica, inorgánica, sólidos suspendidos y metales pesados disueltos, entre otros, característicos de los lixiviados generados en rellenos sanitarios, también evidenciado mediante el oficio MS-DPRSA-USA-1335-2024 que contiene los resultados del muestreo realizado por el Laboratorio de Servicio de Análisis Ambientales CHEMLABS como parte de la vigilancia estatal en aguas residuales del Ministerio de Salud.
Esta situación de contaminación debe ser notificada al Tribunal Ambiental Administrativo para que tome acciones a seguir. Mantenimiento de las áreas del proyecto. Se evidenció durante el recorrido que no se ha dado continuidad a las labores de mantenimiento en diversas áreas del proyecto. Adicional, se evidenció que la zona está siendo invadida por fauna local como ganado, que ingresan a pastar. Canalización de aguas pluviales. En terrenos en propiedad de la Municipalidad de Cartago no se logra observar la canalización pluvial, se evidencia falta de mantenimiento, el impedimento en la visibilidad es debido al crecimiento de zacate alrededor del sistema y dentro de las cunet as. Por otro lado, se evidenciaron trabajos realizados en la canalización pluvial en sector propiedad WPP. Colocación de material para cobertura. No se observaron labores de colocación de material de cobertura, debido a que el proyecto Relleno Sanitario Los Nombre02 estaba fuera de operaciones.
Disposición de maquinaria en el proyecto. Durante el recorrido no se observó maquinaria realizando labores. Disposición de material para cobertura. No se observó en el sitio apilamientos con material para cobertura. Chimeneas para quemado del biogás. En general, el funcionamiento de las chimeneas es parcial. Durante el recorrido se observaron zonas con las chimeneas apagadas esto en propiedad de la Municipalidad de Cartago, en anteriores visitas se ha observado la presencia de un responsable en la verificación del encendido solo para la propiedad de WPP, sin embargo, y debido a las condiciones de mucha lluvia en el momento de la visita, no había personal en el campo ejecutando esa labor. Residuos esparcidos por el viento. En anteriores visitas, se han evidenciado residuos "volados" en las áreas cercanas a las zonas descubiertas (sector este), actualmente, el pasto está tan crecido y debido a las condiciones de lluvia del momento de la visita, no se apreció la existencia de residuos "volados".
No hay personal asignado a labores de recolección manual de residuos. Frente activo de colocación de residuos sólidos. Se mantiene una zona con residuos expuestos a cielo abierto, zona que correspondía al frente activo de trabajo donde el operador sanitario se encontraba depositando residuos, sitio ubicado en terreno propiedad de la Municipalidad de Cartago, mismo que se dejó en abandono, ya que desde el viernes 10 de mayo se encuentra sin operación y no se llevaron a cabo las acciones de cobertura de residuos ni de configuración de taludes. Para esta zona se desconocen los criterios técnicos de la empresa WPP en los trabajos que estaban realizando previo a su abandono, en cuanto a la abertura de las celdas, remoción de cobertura vegetal, reordenamiento de los residuos ahí enterrados y colocación de nuevos residuos, control de olores y de fauna nociva, conformación de nuevos taludes, control de volados, control de emisión de gases, olores y canalización de lixiviados y aguas pluviales, entre otros, debido a que antes de la operación en dicha zona (no autorizada por SETENA, Municipalidad de Cartago y Ministerio de Salud), no se entregó un plan de trabajo con los fundamentos y criterios técnicos de operación, El sector se encuentra en abandono sin ningún tipo de operación y mantenimiento.
Inclinación de taludes conformados. No se puede indicar que existen taludes finalizados por completo en los sectores del anterior frente de trabajo operado hasta finales de 2023 en terreno propiedad de la empresa WPP Continental Los Nombre02 S.A., ni en el frente de trabajo que dejó de operarse desde el 10 de mayo 2024. Demarcación del límite de propiedad de terreno de WPP y de Municipalidad de Cartago. Se evidenció en el recorrido la existencia de postes color azul los cuales marcan el límite entre los terrenos propiedad de la empresa WPP y de la Municipalidad de Cartago. En dicho perímetro es más evidente la falta de mantenimiento …”. Por lo anterior, consta que, mediante la orden sanitaria No. CARTA-MS-DRRSCE-DARSC-OS0020-2025 de 10 de febrero de 2025 se ordenó al alcalde de Cartago, lo siguiente: “a) Brindar cobertura de los residuos actualmente expuestos; b) Continuar con las labores de mantenimiento de la planta de tratamiento de lixiviados; c) Realizar el mantenimiento de las chimeneas para la liberación de gases; d)Realizar el mantenimiento de los canales perimetrales y obras necesarias para la conducción optima de aguas de escorrentía; e) Realizar la vigilancia de estabilidad de los taludes, en prevención de posibles deslizamientos y f) Brindar el mantenimiento de zonas verdes y vías internas…”, en un plazo de tres días.
Empero, según señala el área rectora de salud recurrida, vencido ese término, las cosas no han cambiado, por cuanto en la inspección de 14 mayo de 2025 se comprobó la invasión de ganado en áreas del proyecto, la falta de mantenimiento de las áreas del proyecto, la existencia de residuos expuestos en celdas abandonadas del proyecto, la presencia de grietas en el terreno en área de la planta de tratamiento de lixiviados, la falta de mantenimiento en caminos internos y canales perimetrales del proyecto, así como la falta de operación y de mantenimiento en el sistema de tratamiento de lixiviados del proyecto. En descargo, el alcalde recurrido sostiene que no es a su representada a la que le corresponde atender esas órdenes sanitarias, pues, como consecuencia de la conciliación que el Ayuntamiento suscribió con WPP Continental Los Pinos, S. A. y WPP Coriclean Los Nombre02 Waste Disposal, S. A., es al desarrollador al que le corresponde ejecutar las medidas de mitigación decretadas por el Ministerio de Salud, la Secretaría Técnica Nacional Ambiental y el propio Tribunal Ambiental Administrativo.
Por lo anterior, sostiene que, en este caso, no puede reprochársele omisión alguna a su representada. Para esta Sala la justificación que en este particular se brinda, no es de recibo, pues, conforme se sostuvo en un asunto anterior en el que se discutió el tema del abandono del relleno sanitario en cuestión y sus consecuencias: “… la trascendencia constitucional se limita en verificar si las autoridades accionadas han sido diligentes en atender y solventar finalmente dicha problemática ambiental, que como es fácilmente constatable, no ha sido así. Aparte de lo anterior, es inaceptable la actitud asumida por el ayuntamiento de Cartago, pues, aunque ya no deposite los desechos el lugar de controversia, no puede obviar que debe acudir en tutela de los derechos fundamentales de sus munícipes. Es insoslayable la atención a la ciudadanía de su cantón por encima de cualquier conflicto …”. Además, no puede obviar que“…Este Tribunal ha reconocido que las corporaciones locales tienen, dentro del ámbito de sus competencias y obligaciones una alta cuota de responsabilidad en materia ambiental, sea mediante la aprobación directa de permisos o licencias para las cuales se exija el previo cumplimiento de requisitos que acrediten ante otras instancias del poder público el adecuado manejo ambiental, como mediante inspecciones regulares y canalización de situaciones de riesgo ante las instancias con mayor competencia de intervención.
Ha quedado establecido ya que a los gobiernos locales les alcanza la obligación de coordinación y prevención en materia ambiental dentro del ámbito de su jurisdicción territorial, de donde resulta que ciertamente las municipalidades son actores importantes en la tarea de protección al ambiente. Como se indicó supra, no solo ese cabildo, sino todas las demás autoridades recurridas, cuentan con amplias facultades de actuación, y si bien se encuentran sujetas a la legalidad y la razonabilidad, lo cierto es que teniendo en cuenta que se trata de una amenaza al medio ambiente y a la salud pública, la legalidad y los formalismos se ven desplazados …” (sentencia No. 2020018888 de las 9:15 hora de 2 de octubre de 2020). De ahí que, es evidente que el ente local recurrido escudándose en un formalismo legal se ha negado a ejecutar las medidas de mitigación dispuestas por la autoridad sanitaria recurrida, para conseguir una solución integral al problema denunciado, pues, conforme se comprobó, existe una condición de abandono en el terreno de su propiedad, que pone en inminente peligro la salud de los vecinos y de los pobladores en general, respecto de lo cual la intervención del Área Rectora de Salud de Cartago ha sido poco efectiva para garantizar un entorno sano y ecológicamente equilibrado.
Así las cosas, estima la Sala que se produjo la infracción acusada. Bajo esta inteligencia, se impone acoger el recurso, en lo que respecta al ente local y al área rectora de salud recurridas, conforme se dirá.
De otra parte, advierta el recurrente que el supuesto incumplimiento de la medida cautelar decretada por el Tribunal Ambiental Administrativo en la resolución No. 1134-19-TAA de las 9:57 horas de 8 de julio de 2019, debe acusarla en el procedimiento administrativo y no en esta vía especializada.
En asuntos ambientales, es también criterio del suscrito, de que si ya ha habido intervención de la Administración Pública, considero que su conocimiento y resolución corresponde a la jurisdicción contenciosa administrativa. No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política), tal y como sucede en este caso, en el que la parte recurrente presentó una denuncia por una contaminación ambiental que no ha sido resuelta en forma definitiva, con violación del derecho a disfrutar de un ambiente sano y ecológicamente equilibrado y de un nivel digno de calidad de vida.
Se previene a las partes que de haber aportado algún documento en papel, así como objetos o pruebas contenidas en algún dispositivo adicional de carácter electrónico, informático, magnético, óptico, telemático o producido por nuevas tecnologías, estos deberán ser retirados del despacho en un plazo máximo de 30 días hábiles contados a partir de la notificación de esta sentencia. De lo contrario, será destruido todo aquel material que no sea retirado dentro de este plazo, según lo dispuesto en el "Reglamento sobre Expediente Electrónico ante el Poder Judicial", aprobado por la Corte Plena en sesión número 27-11 del 22 de agosto de 2011, artículo XXVI y publicado en el Boletín Judicial número 19 del 26 de enero de2012, así como en el acuerdo aprobado por el Consejo Superior del Poder Judicial, en la sesión número 43-12 celebrada el 3 de mayo de 2012, artículo LXXXI.
POR TANTO:
Se declara con lugar el recurso. Se ordena a Mario Redondo Poveda, a Grettel Quesada Moya y a Carlos Alberto Granados Siles, en su condición de alcalde y de presidenta del Concejo, ambos de Cartago y, de director del Área Rectora Salud Cartago, respectivamente, o a quienes ejerzan esos cargos, que dispongan y coordinen lo necesario a efecto que, en el plazo de DOS MESES, contado a partir de la notificación de esta sentencia, se corrija de forma definitiva el problema ambiental reclamado, así como se adopten las medidas paliativas inmediatas de mayor urgencia. Se advierte a los recurridos que de conformidad con lo establecido en el artículo 71 de la Ley de la Jurisdicción Constitucional, se impondrá prisión de tres meses a dos años, o de veinte a sesenta días multa, a quien recibiere una orden que deba cumplir o hacer cumplir, dictada en un recurso de amparo, y no la cumpliere o hiciere cumplir, siempre que el delito no esté más gravemente penado. Se condena a la Municipalidad de Cartago y al Estado al pago de las costas, daños y perjuicios causados con los hechos que sirven de base a esta declaratoria, los que se liquidarán en ejecución de sentencia de lo contencioso administrativo. El Magistrado Salazar Alvarado consigna nota. Notifíquese.
Fernando Castillo V.
Fernando Cruz C.
Paul Rueda L.
Luis Fdo. Salazar A.
Jorge Araya G.
Anamari Garro V.
Ingrid Hess H.
Document not found. Documento no encontrado.