Municipal liability for drinking water supply interrupted by construction worksResponsabilidad municipal por el suministro de agua potable interrumpido por obras de construcción

Res. No. 2010015676 CONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at seventeen hours and seven minutes on the twenty-first of September two thousand ten.

Amparo action filed by CYNTHIA CALDERÓN AGUILAR, identity card 0303840677, CRISTINA TORRES BRENES, identity card 0108250210, GABRIELA TORRES BRENES, identity card 0502980080, and JUAN EVELIO DURÁN PORTUGUÉS, identity card 0303340497, against the MAYOR AND THE PRESIDENT OF THE MUNICIPAL COUNCIL, BOTH OF THE MUNICIPALITY OF PARAÍSO, THE EXECUTIVE PRESIDENT OF THE INSTITUTO COSTARRICENSE DE ACUEDUCTOS Y ALCANTARILLADOS, AND THE MINISTER OF HEALTH.

Resulting:

1.- By brief received in the Secretariat of the Chamber at ten hours ten minutes on August 20, two thousand ten, the petitioners file an amparo action against the Municipality of Paraíso de Cartago, the Instituto Costarricense de Acueductos y Alcantarillados, and the Ministry of Health, and state that they are residents of Villa Llanos, located in Santa Lucía of the canton of Paraíso de Cartago. They report that for several months they began to suffer water shortages and, for the past 2 weeks, completely lack the precious liquid; although rarely, when they have access to a minimal amount, it is contaminated. Given the seriousness of this threat to the health of the inhabitants of their community, on several occasions they have approached the respondents seeking a solution to their problem and an explanation for what has happened. From their inquiries, all they have been given are pretexts and excuses, not concrete solutions. They allege that their situation has been aggravated by the actions of the construction company named Urbanizadora Navarro de Cartago S.A., which has destroyed a large amount of the aqueduct and sewer infrastructure of the site; furthermore, it has wrecked the streets of their locality, which also prevents the circulation of motor vehicles in the area. They indicate that on their own they took water samples, which they had analyzed at an authorized laboratory, which demonstrated that the liquid is contaminated and presents up to 280 times more than the permissible limit value established by international entities. They warn that the results of the study were taken on August 5 and 6 to the respondent Municipality and Ministry; however, what they were told was that the water of that community was supplied by the Instituto Costarricense de Acueductos y Alcantarillados. On this occasion, they filed a brief signed by 57 residents before the respondent Municipality and Institute, the sole result of which was the issuance of official letter number AMPEXT-ENC-12-2010 by the Municipality, a note that was addressed to the Instituto Costarricense de Acueductos y Alcantarillados. Based on the foregoing, and despite having even filed a complaint with the Defensoría de los Habitantes, their situation has not been resolved. For the reasons stated, they consider their fundamental rights violated. The petitioners request that the action be granted.

2.- Oscar Núñez Calvo reports under oath in his capacity as Executive President of the Instituto Costarricense de Acueductos y Alcantarillados (folio 29), that it is not evident to him that the amparo petitioners are not receiving potable water service properly, given that the Institution is not the operator of the aqueduct system of Paraíso de Cartago. That the Municipality of Paraíso de Cartago is the Administrator of the aqueduct and is responsible for the conditions under which the service is provided and the problems of its users. That according to studies conducted by the National Water Laboratory, what is evident is that the water that leaves the Cartago treatment plant, which is where the petitioners' liquid is sourced, is completely potable. That on August 11, two thousand ten, Eng. Oscar Ramírez, responsible for the treatment plants of the Metropolitan Area of AyA, conducted an inspection in which it was verified that the distribution pipes, which are administered by the Municipality of Paraíso, have been seriously damaged. The foregoing not only produces contamination but also reduces the quantity of liquid supplied, as a large amount of it is lost through leaks. That the works carried out by the Municipality itself and by the company Navarro de Cartago S.A. on behalf of the Fundación Costa Rica Canadá have seriously damaged the aqueduct system administered and operated by that Municipal Corporation. That in official letter SUB-G-GSGAMUPD-DPP-2010-63, Eng. Jaime Astúa indicates: "At the site, and in accordance with the magnitude of the works and earthworks (movimientos de tierra) observed that are being carried out on the public roads, where the water distribution pipes are located, risk factors or probable causes in the distribution network that can contaminate the potable water can be clearly identified, among which the following stand out: exposed pipes without protection; lack of rigid joints (without use of chemical adhesive) between pipes and fittings; temporary use of 12 mm pipe for distribution of several services 'main pipe'; pipe contacts with: black, gray, and rainwater; continuous presence of water leaks and pipe ruptures; decrease in pressure in the pipes. It is perfectly possible to obtain a result of water unfit for human consumption as a consequence of the operational management and works currently being carried out in the municipal aqueduct of the community of Llanos de Santa Lucía. That on August 10 they received a note from Eng. Jaime Astúa, for which reason on August 11, two thousand ten, they proceeded to carry out an inspection whose results were delivered to the Municipality through official letter SUB-G-GSGAM-UPD-DPP-2010-69. That according to the results contained in said official letter, the responsibility for the health problem that could affect the residents of Villas del Llano of Santa Lucía de Paraíso is due to problems in the operation and administration of the aqueduct administered by the Municipality, and that the water that comes from the Treatment Plant is entirely suitable for human consumption and meets the quality parameters, according to the permanent control carried out by the National Water Laboratory. That the report SUB-G-GSGAM-UPD-DPP-2010-69 determines that the problem presented in the water supply in the Community of Villa del Llano of Santa Lucía de Paraíso de Cartago is due to problems in the aqueduct distribution system operated by the Municipality; the pipe is seen to be totally damaged and, in some areas, collapsed, fully exposed and with fissures, which causes the liquid reaching the users of that service to arrive contaminated. That there is a serious problem in the pipe that has nothing to do with the quality and quantity of water derived from the Treatment Plant administered by the institution, which has a program for monitoring the quality of water supplied by Municipal Aqueducts and E.S.P.H.S.A., a program within which the Municipality of Paraíso is included. That according to this program, two analyses per year are carried out on each component of the evaluated aqueducts, such that analyses are performed on tanks, wells, sources, and intakes, the result of which is sent to the operator with a series of recommendations considered necessary to follow to reduce the risk and vulnerability of the systems. That Article 10 of the General Potable Water Law clearly establishes the responsibility of the aqueduct, whether administered by AyA or by a Municipality. That both the Constitutive Law of AyA and the Financial Law of the Republic and Public Budgets prevent it from making investments in systems not administered by the institution. That it is the obligation of every operator of an aqueduct system to have a Water Quality Program, in accordance with what is ordered in the Regulation for Potable Water Quality, Decreto Ejecutivo No. 32327-S. That by official letter SGG-2010-1553, instructions were given to the Municipality of Paraíso so that it immediately proceeded to place a public standpipe (fuente pública), as ordered by the Constitutional Chamber. It requests that the filed action be dismissed.

3.- María Luisa Ávila Agüero reports under oath, in her capacity as Minister of Health (folio 53), and states that according to what was reported in official letter No. DAJ-UGJ-M-1641-2010 of August 25, two thousand ten, signed by the Director of the Health Governing Area of Paraíso, it is true that a water shortage has traditionally persisted in said community. That the quality has always been good according to the laboratory reports provided by the Municipality of Paraíso. That for two months, the Fundación Costa Rica – Canadá has been carrying out infrastructure works at the location, at an approximate cost of three billion colones, which includes the installation of sanitary sewer systems (alcantarillado sanitario), potable water pipes, a treatment plant for residual waters, and others, such that pipes have been ruptured and water valves that supply certain sectors are closed, resulting in inconvenience for some residents. That on August 6, two thousand ten, the petitioner together with another group of residents filed a complaint before the Health Governing Area of Paraíso, where they provided a study from the Laboratorio Clínico Sáenz Blanco in Cartago and also reported the small amount of water reaching their homes. That said complaint was attended to on August 9 and official letter No. CE-ARSP-Y-0315-2010 of August 12, two thousand ten, was prepared and sent to the petitioner Torres Brenes. That as of the date of this report, the protected party has not come to pick it up, although she was notified by telephone. They clarify that the existing sewer system in part of that sector is being replaced by a new one, such that the part being removed is being substituted, and the nuisance that may be caused to residents is minimal, given that sanitary fixtures such as sinks, bathrooms, and toilets continue to operate within the dwellings. That a permanent measure was adopted whereby a municipal official together with another from the construction company coordinate the closing of valves to cause the least possible harm to local residents. That the destruction of pipes does not exist, because what the company is doing is replacing old pipes with new ones. That on some public roads, channels are being installed to conduct rainwater, as well as the new sanitary sewer system, and that subsequently some of the streets will be paved and sidewalks will be built, according to the bidding process that was awarded. That regarding the order issued by the Chamber to install a public standpipe (fuente pública), it is unnecessary given that the Municipality of Paraíso is supplying the affected residents by means of a 10,000-gallon water tanker truck that arrives daily. It requests that the filed action be dismissed.

4.- Damaris Solano Castillo reports under oath, in her capacity as President of the Municipal Council of Paraíso de Cartago (folio 102), that the water that supplies the community of Llanos de Santa Lucía comes from the treatment plant located in Cartago and administered by the Instituto Costarricense de Acueductos y Alcantarillados. That among the factors for the lack of potable water in said community, mention can be made of: reduction of the flow due to the El Niño phenomenon; the entry of the Fundación Costa Rica Canadá to carry out improvement works in the community of Llanos de Santa Lucía; irrational water use in sectors where metering service is not provided; and external factors such as, for example, service suspensions due to corrective and preventive maintenance work by the Instituto Costarricense de Acueductos y Alcantarillados. That the Fundación Costa Rica Canadá was selected by the Ministry of Housing and BANHVI to execute a comprehensive improvement project for the health conditions of the community of Llano de Santa Lucía. That the works have been ongoing for three months and involve the construction of a sewer channel (canalizador de aguas negras), a municipal aqueduct system, sidewalks, and the paving of the main roads where the project is taking place, as well as the installation of new residential potable water metering systems in each of the occupational units where the project is developed. That during the execution of the project works, pipe ruptures have occurred, which has caused sediment and sewage (aguas negras) to enter them. That the pipe ruptures have occurred on some consecutive days, such that the system does not fully recover. That to address this problem, a Municipal Commission was formed, which is composed of three council members, residents, and the Mayor. That a series of regulations have been implemented in the valves of the community's aqueduct system, which has considerably improved the situation in some areas and reduced the time of shortages in others. That by official letter AMPEXT-ENC-11-2010, Eng. Adrián Solís Navarro, resident engineer of the company Navarro, was asked for a 2000-gallon tanker truck to supply the community with water at times when the pipe is broken due to the works being done and service must be suspended for considerable periods. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía and representatives of the Fundación Costa Rica – Canadá, where the deficiencies in the quality and quantity of water supplying that district were made known, and an agreement was reached that the project representatives would inform the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected pipe ruptures that could contaminate the water. That by official letter ALCEXT-245-2010 of August 17, two thousand ten, the Municipal Mayor requested the Executive President of the Instituto Costarricense de Electricidad: 1. The expansion of the potable water concession for the Orosi Project that supplies the community of Llanos de San Lucía, providing an increase of 10 liters per second to meet the growing demand caused by population increase. 3. The installation of an ultrasonic flow meter on the conduction system of the treatment plant located on the south side of the Instituto Tecnológico de Costa Rica to control the liquid supplied to the Municipality of Paraíso. 4. Provide technical support to the Department of the Municipal Aqueduct of Paraíso to expand technical knowledge, tools, and instruments to substantially improve the distribution system in the district of Llano de Santa Lucía. It requests that the filed action be dismissed.

5.- In the proceedings followed, the legal requirements have been observed.

Drafted by Magistrate Hernández Gutiérrez; and,

Considering:

I.- SUBJECT OF THE ACTION. The petitioners, residents of the community of Llanos de Santa Lucía de Paraíso de Cartago, allege that for months they have had problems with the water supply they receive, as well as with the potability of the water, without the respondent authorities having yet provided a solution to the problem, despite the multiple complaints they have filed, an action that violates the provisions of Articles 21 and 50 of the Political Constitution.

II.- PROVEN FACTS. Of importance for the decision of this matter, the following facts are deemed duly proven:

a. The petitioners are residents of Villa Llanos, located in Santa Lucía of the canton of Paraíso de Cartago (filing brief).

b. By official letter CE-ARSP-0269-2010 of July 20, two thousand ten, the Director of the Health Governing Area of Paraíso requested the person in charge of the Municipal Aqueduct of Paraíso to urgently address the complaint of a water shortage for human consumption at the school in Llanos de Santa Lucía (folio 65).

c. Through official letter AMPEXT-ENC-10-2010 of July 21, two thousand ten, the Aqueduct Department of the Municipality of Paraíso informed the Director of the Governing Area that the supply problem occurred because the construction company developing the project disconnected the service connections (previstas) of said Institution and did not reconnect them. That on that day an inspection was carried out and it was determined that the water service at the school is at 50%; That the development of the project in the community of Llanos de Santa Lucía consists of a series of improvements that will affect the municipal aqueduct system, so the respective personnel will be assigned to attend to any emergency (folio 66).

d. By official letter AMPEXT-ENC-11-2010 of July 21, two thousand ten, the person in charge of the Municipal Aqueduct requested Eng. Solís Salazar of Constructora Navarro that, due to the potable water supply problems for the residents of the community of Llanos de Santa Lucía, the following be done: 1. Rental of a 2000-gallon tanker truck by his represented company, during the period the project is executed, which may be resupplied from the municipal aqueduct system of Paraíso, and the Department of the Aqueduct personnel will be responsible for distribution to the affected sectors. Furthermore, he requested greater speed in repairs and that the Aqueduct Department will be responsible for the handling of the valves and supervision of the works carried out on the potable water supply system (folios 63 and 64).

e. Through official letter AMPEXT-47-2010 of July 8, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Governing Area that the water shortage problem is specifically due to the works being developed in that community by the Fundación Costa Rica – Canadá for the installation of sewage pipes (tuberías para aguas negras), thus the company performing the work has broken the main potable water pipe on several occasions; however, the recovery time for the supply system takes some time. That Institution personnel are kept where the works are being carried out to resolve any type of situation (folios 61 and 63).

f. By official letter AMPEXT-49-2010 of July 23, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Health Governing Area of Paraíso that due to the works being carried out in said community by the company Navarro, a valve was damaged, which caused an interruption in the supply in that sector and in the community of Llanos de Santa Lucía in general. The problem was solved the previous day (folio 67).

g. That in accordance with the microbiological analyses conducted by AyA on the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five to July 31, two thousand ten, the result for fecal coliforms/100ML was negative (folio 39).

h. That on August 3, two thousand ten, the Laboratorio Clínico de Cartago Saenz Blanco conducted a bacteriological analysis of tap water at the request of Mrs. Cristina Torres Brenes, which determined that the water sample does not meet the potability requirements established from a bacteriological standpoint by International Public Health Organizations (folio 07).

i. That on August 6, two thousand ten, the petitioner Torres Brenes filed a complaint before the Health Governing Area in question, providing the study from the aforementioned clinical laboratory (report on folio 54).

j. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía, representatives of the Fundación Costa Rica Canadá, and the Person in Charge of the Aqueduct, where the deficiencies in the quality and quantity of water supplying the district were made known, reaching an agreement that the project representatives would be responsible for informing the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected ruptures in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, deficiencies already existed in the water supply, and lately they have become more acute (folio 79).

k. Through official letter SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Directorate of GAM Potabilization Plants informed the Person in Charge of the Aqueduct in question that the treatment plant supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Regulation for Potable Water Quality, Decree No. 32327-S. The National Water Laboratory performs strict quality control over the potabilization process that takes place at the Cartago treatment plant. That on August 11, two thousand ten, an inspection was carried out in the Llano de Santa Lucía community where it was identified that, according to the magnitude of the works and earthworks (movimientos de tierra) observed being carried out on the water distribution pipes, multiple risk factors or probable causes can be identified in the distribution network that could contaminate the potable water, such as: exposed pipes without protection; lack of rigid joints (without use of chemical adhesive) between pipes and fittings; pipe contacts with: black, gray, and rainwater; continuous presence of water leaks and pipe ruptures; decrease in pressure in the pipes. Regarding the analysis performed by the Laboratorio Clínico Sáenz Blanco of the sample taken by Mrs. Torres Brenes, and in the event that the sample collection and analysis procedures were carried out correctly, it is perfectly possible to obtain a result of water not suitable for human consumption, but as a consequence of the operational management and the works currently being carried out in the aqueduct of the community of Llanos de Santa Lucía, and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados (folios 51 and 52).

l. By official letter SGC-2010-1553 of August 26, two thousand ten, the General Manager of the Instituto Costarricense de Acueductos Alcantarillados requested the Mayor of the Municipality of Paraíso that, given that the Municipal Corporation he represents is the one providing the service in the community of Villa de Llanos, it must comply with what was ordered by the Constitutional Chamber regarding the installation of a public standpipe (fuente pública) (folios 40 and 41).

m. That the Municipality of Paraíso is supplying the affected residents by means of a 10,000-gallon water tanker truck that arrives daily (report on folio 55).

III.- RIGHT OF ACCESS TO POTABLE WATER. In reiterated resolutions, this Chamber has recognized a fundamental right to potable water, as stipulated in ruling number 2006-05606, of fifteen hours twenty-one minutes on April 26, two thousand six, as follows:

"VII.- Access to potable water as a human right. In addition to what has been indicated, and perhaps the most relevant aspect in this matter, is the nature and function of water for human life. It is not necessary to detail here an explanation of the evident and notorious reality that without water there can be no life, nor quality of life, and that therefore, with or without a nationalization law, by its very essence, this issue is not and cannot be a territorial or local issue. The Chamber itself, in its constitutional jurisprudence, has said that access to potable water is a fundamental human right, insofar as it constitutes an integral part of the content of the right to health and the right to life. (CONSTITUTIONAL CHAMBER, rulings numbers 534-96, 2728-91, 3891-93, 1108-96, 2002-06157 2002-10776; 2004-1923). This same line has been maintained in rulings 2003-04654 and 2004-07779, which, in what is relevant, state: 'V.- The Chamber recognizes, as part of Constitutional Law, a fundamental right to potable water, derived from the fundamental rights to health, life, a healthy environment, food, and decent housing, among others, as has also been recognized in international instruments on Human Rights applicable in Costa Rica: thus, it appears explicitly in the Convention on the Elimination of All Forms of Discrimination against Women (art. 14) and the Convention on the Rights of the Child (art. 24); furthermore, it is enunciated in the International Conference on Population and Development of Cairo (principle 2), and is declared in numerous other instruments of International Humanitarian Law. In our Inter-American System of Human Rights, the country is particularly obligated in this matter by the provisions of Article 11.1 of the Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights ("Protocol of San Salvador" of 1988), which provides that: "Article 11. Right to a Healthy Environment 1.- Everyone has the right to live in a healthy environment and to have access to basic public services." The lack of resources does not justify the non-compliance with the duties of public administrations in providing this basic service. (CONSTITUTIONAL CHAMBER, resolutions 2003-04654 and 2004-007779).

For its part, as is well recognized by both the Attorney General's Office and the representative of AyA in their reports, in the international field, the recognition of water as a human right and as a necessary pre-condition for all our human rights is also predominant. It is held that without equitable access to a minimum requirement of potable water, other established rights—such as the right to an adequate standard of living for health and well-being, as well as other civil and political rights—would be unattainable. In November 2002, the United Nations Committee on Economic, Social and Cultural Rights affirmed that access to adequate amounts of clean water for domestic and personal use is a fundamental human right of every person. Likewise, in General Comment No. 15 on the fulfillment of Articles 11 and 12 of the International Covenant on Economic, Social and Cultural Rights, the Committee noted that "the human right to water is indispensable for leading a life in human dignity. It is a prerequisite for the realization of other human rights." It is also emphasized that the States parties to the International Covenant have the duty to progressively realize, without any discrimination, the right to water, which entitles everyone to enjoy sufficient, physically accessible, safe, and acceptable water for domestic and personal use.

For its part, several international conferences have been held, among which the United Nations Water Conference held in Mar del Plata in 1977 stands out, which recognized that all peoples have the right to access to potable water to meet their basic needs.

Also, the Declaration on the Right to Development, adopted by the UN General Assembly in 1986, includes a commitment by States to ensure equality of opportunity for all to enjoy basic resources.

The concept of meeting basic water needs was further strengthened during the 1992 Earth Summit in Rio de Janeiro. In Agenda 21, governments agreed that "in developing and using water resources, priority must be given to meeting basic needs and conserving ecosystems. Likewise, in the Plan of Implementation adopted at the Johannesburg Summit in 2002, governments committed to "employ all policy instruments, including regulation, monitoring… and cost recovery of water services," without the objectives of cost recovery becoming a barrier to poor people's access to clean water. There are also dozens of international instruments that directly and indirectly deal with water as a human right of all persons and peoples, such that it is not only a matter that by its nature tends toward nationalization, but also toward the internationalization of its use and enjoyment." IV.- FUNDAMENTAL RIGHT TO THE PROPER FUNCTIONING OF PUBLIC SERVICES. Our political constitution implicitly enshrines the fundamental right of citizens (administrados) to the proper and efficient functioning of public services, that is, that they be provided with high quality standards, which has as its necessary corollary the obligation of public administrations to provide them in a continuous, regular, expeditious (célere), effective, and efficient manner. This latter obligation derives from the systematic relationship of several constitutional precepts, such as Article 140, subsection 8, which imposes on the Executive Branch the duty to "Monitor the proper functioning of administrative services and dependencies," Article 139, subsection 4), as it incorporates the concept of "proper conduct of Government," and Article 191 to the extent that it incorporates the principle of "efficiency of the administration." This atypical or unnamed individual guarantee is accentuated in the case of essential public services such as the supply of drinking water. (See in this regard judgment number 2003-11222 of 17:48 hrs. of September 30, 2003).

V.- SPECIFIC CASE.- From the report rendered by the respondent authorities under the solemnity of oath, with timely warning of the consequences provided for in Article 44 of the Ley de la Jurisdicción Constitucional, it is accredited that the aqueduct of Paraíso de Cartago is administered by the Municipal Corporation of that locality. On the other hand, from the evidence contained in the record, it is accredited that there has been a problem with the regular supply of drinking water service. Certainly, the respondent authorities explained that the water shortage problem is specifically due to the works being carried out in that community by the Costa Rica–Canada foundation for the construction of a sewage line (canalizador de aguas negras) and a municipal aqueduct system, as a result of which the company performing the works has broken the main drinking water pipe on several occasions and the service has been interrupted. Likewise, in a meeting held on August 6, two thousand ten, attended by the person in charge of the aqueduct, the Municipal Mayor, members of the community of Llanos de Santa Lucía, representatives of the Costa Rica-Canada Foundation, the deficiencies in the quality and quantity of water supplying that district were disclosed, reaching the agreement that the project representatives would be responsible for informing the residents of the need to boil water for human consumption during the construction process, anticipating unexpected breaks in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, deficiencies already existed in the water supply, and lately it has worsened. The foregoing demonstrates that a series of deficiencies in the quantity of water received by the residents of the community of Llanos de Santa Lucía have existed for some time, without the authorities of the Municipality of Paraíso – administrator of the aqueduct – having taken concrete actions to seek a comprehensive solution to this problem, which has been aggravated by the start of construction works to improve the aqueduct of that community, which is why, with respect to that extreme, the remedy (recurso) must be granted.

VI.- On the other hand, the petitioners (recurrentes) allege that they have problems with the potability of the little water they receive, which is why on August 6, two thousand ten, they filed a complaint before the Área Rectora de Salud in question, where they provided a study from the Laboratorio Clínico de Cartago Saenz Blanco, which determined that the water sample does not meet the potability requirements established, from a bacteriological point of view, by International Public Health Organizations. In this regard, the authorities of the Instituto Costarricense de Acueductos y Alcantarillado reported under oath that, in accordance with the microbiological analyses conducted on the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five, to July 31, two thousand ten, the result for fecal coliforms/100ML was negative. In this sense, by official communication SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Dirección de Plantas Potabilizadoras GAM informed the person in charge of the aqueduct in question that the water treatment plant (planta potabilizadora) supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. Furthermore, said official communication indicates that on August 11, two thousand ten, an inspection was carried out in the community of Llano de Santa Lucía where it was identified that, according to the magnitude of the observed works and earthworks (movimientos de tierra) being carried out on the water distribution pipes, multiple risk factors or probable causes in the distribution network that can contaminate the drinking water can be identified, such as: exposed pipes without protection; lack of rigid joint (without the use of chemical glue) between pipes and accessories; contact of pipes with: black water, grey water, rainwater; continuous presence of water leaks and pipe breaks; decrease in pipe pressure. As for the analysis conducted by Laboratorio Clínico Sáenz Blanco of the sample taken by Mrs. Torres Brenes, and assuming that the sample collection and analysis procedures were performed correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the works currently being carried out on the aqueduct of the community of Llanos de Santa Lucía and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados. The foregoing demonstrates that the water received by the petitioners could be unfit for human consumption and therefore does not meet the potability criteria established by the Reglamento para la calidad del agua potable, Decreto No. 32327-S, facts that are attributable to the administrator of the aqueduct, that is, the Municipality of Paraíso, which is responsible for providing a quality public service where the water is potable. Finally, although it is true that the Municipality of Paraíso is supplying the residents of the community in question by means of a 10,000-gallon water tanker truck that arrives daily, this is a temporary measure, while the works for the construction of the water line (canalizador de agua) and a municipal aqueduct system are completed, which must be finished within a reasonable time. Thus, the appropriate course is to grant the present remedy (recurso) for violation of the right to health, against the authorities of the Municipality of Paraíso, with the consequences detailed in the operative part of this judgment.

Por tanto:

The remedy (recurso) is GRANTED. Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or whoever holds those positions in their stead, are ordered to IMMEDIATELY adopt the necessary measures and execute the pertinent actions to correct the problems and guarantee the residents of the community of Llanos de Santa Lucía de Paraíso de Cartago a continuous and quality supply, so that the water is potable. The respondents are warned that, based on the provisions of Article 71 of the Ley de la Jurisdicción Constitucional, a prison sentence of three months to two years, or a fine of twenty to sixty days, shall be imposed on anyone who receives an order that must be complied with or enforced, issued in an amparo remedy (recurso de amparo), and does not comply with it or enforce it, provided the crime is not more severely punished. As for the Instituto Costarricense de Acueductos y Alcantarillados and the Ministerio de Salud, the remedy is dismissed. The Municipality of Paraíso is ordered to pay the costs, damages, and losses caused by the facts serving as the basis for this declaration, which shall be liquidated in the execution of the judgment of the administrative litigation (contencioso administrativo). This resolution SHALL BE NOTIFIED PERSONALLY to Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and to Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or to whoever holds those positions in their stead. LET IT BE COMMUNICATED.- Gilbert Armijo S. Presidente a.i.

Ernesto Jinesta L. Fernando Cruz C. Fernando Castillo V. Víctor Ardón A. Doris Arias M. José Paulino Hernández G.

That on August 6, two thousand ten, the petitioner together with another group of neighbors filed a complaint before the Health Governing Area (Área Rectora de Salud) of Paraíso, where they provided a study from the Sáenz Blanco Clinical Laboratory in Cartago and also reported the low quantity of water reaching their homes. That said complaint was addressed on August 9 last, and official letter No. CE-ARSP-Y-0315-2010 of August 12, two thousand ten, was prepared and sent to the petitioner Torres Brenes. That to date the protected party has not picked it up, although she has already been notified by telephone. They clarify that the existing sewer system (alcantarillado) in part of that sector is being replaced with a new one, such that the part being removed is being substituted, and the inconvenience that may be caused to the neighbors is minimal, given that the sanitary fixtures such as sinks, bathrooms, and toilets continue to operate within the homes. That a permanent measure was adopted whereby a municipal official together with one from the construction company coordinate the closing of the valves to cause the least harm to the neighbors of the place. That the destruction of pipes does not exist, because what is being done is that the company substitutes the old pipe for a new one. That in some public roads, channels are being installed to conduct stormwater, as well as the new sanitary sewer system (alcantarillado sanitario), and that subsequently some of the streets will be paved and sidewalks will be built, according to the tender that was awarded. That regarding the order issued by the Chamber to install a public fountain (fuente pública), it is unnecessary given that the Municipality of Paraíso is supplying the affected neighbors by means of a 10,000-gallon water tanker truck that arrives daily. They request that the appeal filed be dismissed.

**4.-** Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso de Cartago, reports under oath (folio 102) that the water supplying the community of Llanos de Santa Lucía comes from the water treatment plant (planta de tratamiento) located in Cartago and administered by the Costa Rican Institute of Aqueducts and Sewers (Instituto Costarricense de Acueductos y Alcantarillados). That among the factors for the lack of potable water in said community, mention can be made of: reduction of the flow rate due to the effect of the El Niño phenomenon, entry by the Costa Rica Canada Foundation for the development of improvement works in the community of Llanos de Santa Lucía. Irrational use of water, in sectors where metering service is not provided, and external factors such as, for example, service suspensions due to corrective and preventive maintenance work by the Costa Rican Institute of Aqueducts and Sewers. That the Costa Rica Canada Foundation was selected by the Ministry of Housing and the BANHVI to execute an integral improvement project for the health conditions of the community of Llano de Santa Lucía. That the works have been carried out for three months and provide for the construction of a blackwater channel, a municipal aqueduct system, sidewalks, and the paving of the main roads where the project is developed, as well as the installation of new, domiciliary potable water metering systems in each of the occupational units where the project is being developed. That during the execution of the project works, the breaking of pipes has occurred, which has caused sediments and blackwater to enter them. That the pipe breakages have occurred on some consecutive days, so the system does not recover in its entirety. That to address said problem, a Municipal Commission was formed, which is comprised of three council members, neighbors, and the Mayor. That a series of adjustments have been made to the valves of the community's aqueduct system, which has improved considerably and, in others, the time of shortage has been reduced. That by official letter AMPEXT-ENC-11-2010, Ing. Adrián Solís Navarro, resident of the company Navarro, was requested to provide a 2,000-gallon tanker truck for the purpose of supplying water to the community at times when the pipe is broken by the works being carried out and the service must be suspended for considerable periods. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía and representatives of the Costa Rica–Canada Foundation, where the deficiencies in the quality and quantity of water supplying that district were made known, and an agreement was reached that the project representatives would inform the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected pipe ruptures that could contaminate the water. That by official letter ALCEXT-245-2010 of August 17, two thousand ten, the Municipal Mayor requested the Executive President of the Costa Rican Electricity Institute (Instituto Costarricense de Electricidad): 1. The expansion of the potable water concession for the Orosi Project that supplies the community of Llanos de San Lucía, providing an increase of 10 liters per second to meet the growing demand caused by the population increase. 3. The installation of an ultrasonic flow meter in the supply line of the water treatment plant located on the south side of the Technological Institute of Costa Rica to control the liquid supplied to the Municipality of Paraíso. 4. To provide technical support to the Municipal Aqueduct Department of Paraíso allowing for the expansion of technical knowledge, tools, and instruments to substantially improve the distribution system in the district of Llano de Santa Lucía. Requests that the appeal filed be dismissed.

**5.-** In the proceedings followed, the legal prescriptions have been observed.

Justice **Hernández Gutiérrez** writes the opinion; and, **Considering:** **I.- PURPOSE OF THE APPEAL.** The appellants, neighbors of the community of Llanos de Santa Lucía in Paraíso de Cartago, claim that for months they have had problems with the supply of water they receive, as well as with the water's potability, and that to date the respondent authorities have not provided a solution to the problem, despite the multiple complaints they have filed, an action that violates the provisions of articles 21 and 50 of the Political Constitution.

**II.- PROVEN FACTS.** Deemed as duly demonstrated for the decision of this matter are the following facts:

a. The appellants are neighbors of Villa Llanos, located in Santa Lucía of the canton of Paraíso de Cartago (filing brief).

b. By official letter CE-ARSP-0269-2010 of July 20, two thousand ten, the Director of the Health Governing Area (Área Rectora de Salud) of Paraíso requested the person in charge of the Municipal Aqueduct of Paraíso to urgently address the complaint of a lack of water for human consumption at the school of Llanos de Santa Lucía (folio 65).

c. Through official letter AMPEXT-ENC-10-2010 of July 21, two thousand ten, the Aqueduct Department of the Municipality of Paraíso informed the Director of the Governing Area that the supply problem occurred because the construction company developing the project disconnected the service connections of said Institution and did not reconnect them. That that day an inspection was carried out and it was determined that the water service at the school is at 50%; That the development of the project in the community of Llanos de Santa Lucía consists of a series of improvements that will affect the municipal aqueduct system, so the respective personnel will be assigned to attend to any emergency (folio 66).

d. By official letter AMPEXT-ENC-11-2010 of July 21, two thousand ten, the person in charge of the Municipal Aqueduct requested Ing. Solís Salazar of Constructora Navarro that, due to the problems of potable water supply to the neighbors of the community of Llanos de Santa Lucía, the following be carried out: 1. Rental of a 2,000-gallon tanker truck by the company he represents, during the period the project will be executed, which may be resupplied from the municipal aqueduct system of Paraíso, and the personnel of the Aqueduct Department will be responsible for distribution to the affected sectors. In addition, he requested greater speed in the repairs and that the Aqueduct Department will be responsible for the handling of the valves and supervision of the works carried out on the potable water supply system (folios 63 and 64).

e. Through official letter AMPEXT-47-2010 of July 8, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Governing Area that the problem of water shortage is specifically due to the works being carried out in that community by the Costa Rica–Canada Foundation for the installation of pipes for blackwater, so on several occasions the company performing the work has broken the main potable water pipe; however, the recovery time for the supply system takes some time. That personnel from the Institution are maintained where the works are carried out to resolve any type of situation (folios 61 and 63) f. By official letter AMPEXT-49-2010 of July 23, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Health Governing Area (Área Rectora de Salud) of Paraíso that, due to the works carried out in said community by the company Navarro, a valve was damaged, which caused an interruption of the supply in that sector and in the community of Llanos de Santa Lucía in general. The problem was solved the previous day (folio 67).

g. That in accordance with the microbiological analyses carried out by AyA in the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five, to July 31, two thousand ten, the result for fecal coliforms/100ML was negative (folio 39).

h. That on August 3, two thousand ten, the Sáenz Blanco Clinical Laboratory of Cartago performed a bacteriological analysis of tap water at the request of Mrs. Cristina Torres Brenes, which determined that the water sample does not meet the potability requirements that, from the bacteriological point of view, are established by International Public Health Organizations (folio 07).

i. That on August 6, two thousand ten, the petitioner Torres Brenes filed a complaint before the Health Governing Area in question, where she provided the abovementioned clinical laboratory study (report at folio 54).

j. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía, representatives of the Costa Rica Canada Foundation, and the person in charge of the Aqueduct, where the deficiencies in the quality and quantity of water supplying the district were made known, reaching the agreement that the project representatives would be in charge of informing the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected ruptures in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project there were already deficiencies in the water supply, and it has lately become more acute (folio 79).

k. Through official letter SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Directorate of Water Treatment Plants (Plantas Potabilizadoras) GAM informed the person in charge of the Aqueduct in question that the water treatment plant (planta potabilizadora) supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Potable Water Quality Regulations (Reglamento de Calidad de Agua Potable), Executive Decree No. 32327-S. The National Water Laboratory performs strict quality control over the water treatment process (potabilización) that takes place at the Cartago water treatment plant. That on August 11, two thousand ten, an inspection was carried out in the community of Llano de Santa Lucía where it was identified that, in accordance with the magnitude of the works and earthworks (movimientos de tierra) observed being performed on the water distribution pipes, multiple risk factors or probable causes can be identified in the distribution network that can contaminate the potable water, such as: exposed pipes without protection; lack of rigid joints (without use of chemical glue) between pipes and fittings; contact of pipes with blackwater, greywater, and stormwater; continuous presence of water leaks and pipe ruptures; decrease in pipe pressure. Regarding the analysis performed by the Sáenz Blanco Clinical Laboratory of the sample taken by Mrs. Torres Brenes, and in the event that the sample collection and analysis procedures were carried out correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the works currently being performed on the aqueduct of the community of Llanos de Santa Lucía and not due to responsibility of the Costa Rican Institute of Aqueducts and Sewers (Instituto Costarricense de Acueductos y Alcantarillados) (folios 51 and 52).

l. By official letter SGC-2010-1553 of August 26, two thousand ten, the General Manager of the Costa Rican Institute of Aqueducts and Sewers requested the Mayor of the Municipality of Paraíso that, by virtue of the fact that the Municipal Corporation he represents is the one providing the service in the community of Villa de Llanos, it must comply with what was ordered by the Constitutional Chamber regarding the installation of a public fountain (fuente pública) (folios 40 and 41).

m. That the Municipality of Paraíso is supplying the affected neighbors by means of a 10,000-gallon water tanker truck that arrives daily (report at folio 55).

**III.- RIGHT OF ACCESS TO POTABLE WATER.** In reiterated resolutions, this Chamber has recognized a fundamental right to potable water, thus it was provided in judgment number 2006-05606, of fifteen hours twenty-one minutes on April 26, two thousand six, the following:

"VII.- Access to potable water as a human right. In addition to the foregoing, and perhaps the most relevant aspect in this matter, is the nature and function of water for human life. It is not necessary to detail here an explanation about the evident and notorious reality that without water there can be no life, nor quality of life, and that therefore, with or without a nationalization law, by its very essence, this issue is not and cannot be a territorial or local issue. The Chamber itself, in its constitutional jurisprudence, has stated that access to potable water is a fundamental human right, in that it constitutes an integral part of the content of the right to health and life. (CONSTITUTIONAL CHAMBER, judgments numbers 534-96, 2728-91, 3891-93, 1108-96, 2002-06157 2002-10776; 2004-1923). This same line has been maintained in judgments 2003-04654 and 2004-07779, which, as relevant, state:

'V.- The Chamber recognizes, as part of Constitutional Law, a fundamental right to potable water, derived from the fundamental rights to health, life, the environment, food, and decent housing, among others, as has also been recognized in international instruments on Human Rights applicable in Costa Rica: thus, it explicitly appears in the Convention on the Elimination of All Forms of Discrimination against Women (art. 14) and the Convention on the Rights of the Child (art. 24); furthermore, it is enunciated in the Cairo International Conference on Population and Development (principle 2), and it is declared in numerous others of International Humanitarian Law. In our Inter-American System of Human Rights, the country is particularly obligated in this matter by the provisions of article 11.1 of the Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights (“Protocol of San Salvador” of 1988), which provides that: “Article 11. Right to a healthy environment 1.- Everyone shall have the right to live in a healthy environment and to have access to basic public services.” The lack of resources does not justify the non-fulfillment of the duties of public administrations in the provision of this basic service. (CONSTITUTIONAL CHAMBER, resolutions 2003-04654 and 2004-007779).

For its part, as well recognized by both the Procuracy and the representative of AyA in their reports, in the international field the recognition of water as a human right and as a necessary pre-condition for all our human rights is also predominant. It is maintained that without equitable access to a minimum requirement of potable water, other established rights would be unattainable—such as the right to an adequate standard of living for health and well-being, as well as other civil and political rights. In November 2002, the United Nations Committee on Economic, Social and Cultural Rights affirmed that access to adequate quantities of clean water for domestic and personal use is a fundamental human right of every person. Likewise, in General Comment No. 15 on the fulfillment of articles 11 and 12 of the International Covenant on Economic, Social and Cultural Rights, the Committee noted that "the human right to water is indispensable for leading a life in human dignity. It is a prerequisite for the realization of other human rights." It is also emphasized that the States parties to the International Covenant have the duty to progressively realize, without any discrimination, the right to water, which entitles everyone to enjoy sufficient, physically accessible, safe and acceptable water for domestic and personal use.

In turn, several international conferences have been held, among which the United Nations Water Conference held in Mar del Plata in 1977 stands out, which recognized that all peoples have the right to access to potable water to satisfy their basic needs. Also, the Declaration on the Right to Development, adopted by the UN General Assembly in 1986, includes a commitment by States to ensure equality of opportunity for all to enjoy basic resources.

The concept of satisfying basic water needs was further strengthened during the 1992 Earth Summit in Rio de Janeiro.

In Agenda 21, governments agreed that "when developing and using water resources, priority must be given to the satisfaction of basic needs and the conservation of ecosystems. Likewise, in the Implementation Plan adopted at the Johannesburg Summit in 2002, governments committed to 'employ all policy instruments, including regulation, monitoring..... and cost recovery of water services,' without cost recovery objectives becoming a barrier to poor people's access to clean water. There are also dozens of international instruments that directly and indirectly concern water as a human right of all persons and peoples, such that it is not only a topic that by its nature tends toward nationalization, but also toward the internationalization of its use and exploitation." **IV.- FUNDAMENTAL RIGHT TO THE PROPER FUNCTIONING OF PUBLIC SERVICES.** Our political constitution implicitly enshrines the fundamental right of the administered to the proper and efficient functioning of public services, that is, that they be provided with high standards of quality, which has as its necessary corollary the obligation of public administrations to provide them in a continuous, regular, swift, effective, and efficient manner. This latter obligation derives from the systematic relationship of several constitutional precepts, such as Article 140, subsection 8, which imposes on the Executive Branch the duty to "Monitor the proper functioning of administrative services and agencies," Article 139, subsection 4), in that it incorporates the concept of "good running of the Government," and Article 191 insofar as it incorporates the principle of "efficiency of the administration." This atypical or unnamed individual guarantee is accentuated in the case of essential public services such as the supply of potable water. *(See in this regard judgment number 2003-11222 of 17:48 hrs. of September 30, 2003).* **V.- SPECIFIC CASE.-** From the report rendered by the respondent authorities given under the solemnity of oath, with timely warning of the consequences provided for in Article 44 of the Law of Constitutional Jurisdiction, it is certified that the aqueduct of Paraíso de Cartago is administered by the Municipal Corporation of that locality. On the other hand, from the evidence on file, it is certified that there has been a problem with the regular supply of potable water service. Certainly, the respondent authorities explained that the water shortage problem is specifically due to the work being carried out in that community by the Costa Rica-Canada foundation for the construction of a sewage pipe and a municipal aqueduct system, so that on several occasions the company carrying out the work has broken the potable water main pipe and the service has been interrupted. Likewise, in a meeting held on August 6, two thousand ten, in which the person in charge of the aqueduct, the Municipal Mayor, members of the community of Llanos de Santa Lucía, representatives of the Costa Rica-Canada Foundation were present, the deficiencies in the quality and quantity of water supplying that district were made known, reaching the agreement that the project representatives will be responsible for informing the inhabitants of the need to boil water for human consumption during the time the construction process lasts, foreseeing unexpected breaks in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, deficiencies already existed in the water supply, and lately it has worsened. The foregoing demonstrates that a series of deficiencies have existed for some time in the quantity of water received by the residents of the community of Llanos de Santa Lucía, without the authorities of the Municipality of Paraíso –administrator of the aqueduct– having taken concrete actions to seek a comprehensive solution to that problem, which has been aggravated by the start of construction of the works to improve the aqueduct of that community, reason for which regarding that point the appeal must be granted.

**VI.-** On the other hand, the appellants claim that they have problems with the potability of the little water they receive, for which reason on August 6, two thousand ten, they filed a complaint before the relevant Governing Health Area where they provided a study from the Clinical Laboratory of Cartago Saenz Blanco, which determined that the water sample does not meet the potability requirements that, from a bacteriological point of view, are established by International Public Health Organizations. In this regard, the authorities of the Instituto Costarricense de Acueductos y Alcantarillado reported under oath that according to the microbiological analyses carried out on the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five to July 31, two thousand ten, the result for fecal coliforms/100ML was negative. In this sense, by official letter SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Directorate of GAM Purification Plants informed the person in charge of the aqueduct in question that the purification plant supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. Furthermore, said official letter indicates that on August 11, two thousand ten, an inspection was carried out in the community of Llano de Santa Lucía where it was identified that, according to the magnitude of the observed work and earthworks (movimientos de tierra) being carried out on the water distribution pipes, multiple risk factors or probable causes can be identified in the distribution network that could contaminate the potable water, such as: pipes exposed without protection; lack of rigid joint (without use of chemical glue) between pipes and accessories; contact of pipes with sewage, greywater, and rainwater; continuous presence of water leaks and pipe breaks; decrease in pipe pressure. Regarding the analysis carried out by the Clinical Laboratory Sáenz Blanco of the sample taken by Mrs. Torres Brenes, and if the sample collection and analysis procedures were performed correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the work currently being carried out on the aqueduct of the community of Llanos de Santa Lucía and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados. The foregoing demonstrates that the water the appellants receive could be unfit for human consumption and therefore does not meet the potability criteria established by the Reglamento para la calidad del agua potable, Decreto No. 32327-S, facts that are attributable to the administrator of the aqueduct, that is, the Municipality of Paraíso, which is responsible for providing a quality public service where the water is potable. Finally, while it is true that the Municipality of Paraíso is supplying the residents of the community in question by means of a 10,000-gallon water tanker truck that arrives daily, that is a temporary measure, while the works for the construction of the water pipeline and a municipal aqueduct system are concluded, which must be completed within a reasonable timeframe. As things stand, it is appropriate to grant this appeal for violation of the right to health, against the authorities of the Municipality of Paraíso, with the consequences detailed in the operative part of this judgment.

**Por tanto:** It is declared WITH MERITS the appeal. Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or whoever holds those positions in their stead, are ordered to IMMEDIATELY adopt the necessary measures and execute the pertinent actions so that the problems are corrected and the residents of the community of Llanos de Santa Lucía of Paraíso de Cartago are guaranteed a continuous and quality supply, so that the water is potable. The respondents are warned that based on the provisions of Article 71 of the Law of Constitutional Jurisdiction, imprisonment of three months to two years, or a fine of twenty to sixty days, shall be imposed on anyone who receives an order that must be complied with or enforced, issued in an amparo appeal, and does not comply with or enforce it, provided that the crime is not more severely punished. Regarding the Instituto Costarricense de Acueductos y Alcantarillados and the Ministry of Health, the appeal is declared without merit. The Municipality of Paraíso is ordered to pay the costs, damages, and losses caused by the facts serving as a basis for this declaration, which shall be settled in the execution of the judgment of the contentious-administrative proceeding.

Notify this resolution to Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and to Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or to whomever occupies those positions, IN PERSON. LET IT BE KNOWN.- Gilbert Armijo S.

Presidente a.i.

Ernesto Jinesta L.

Fernando Cruz C.

Fernando Castillo V.

Víctor Ardón A.

Doris Arias M.

José Paulino Hernández G.

The lack of resources does not justify the failure of public administrations to fulfill their duties in the provision of this basic service. (SALA CONSTITUCIONAL, resolutions 2003-04654 and 2004-007779).

For its part, as both the Procuraduría and the AyA representative rightly acknowledge in their reports, the recognition of water as a human right and as a necessary precondition for all our human rights is also predominant in the international sphere. It is held that without equitable access to a minimum requirement of drinking water, other established rights would be unattainable – such as the right to an adequate standard of living for health and well-being, as well as other civil and political rights. In November 2002, the United Nations Committee on Economic, Social and Cultural Rights affirmed that access to adequate amounts of clean water for domestic and personal use is a fundamental human right of every person. Likewise, in General Comment No. 15 on the fulfillment of articles 11 and 12 of the International Covenant on Economic, Social and Cultural Rights, the Committee noted that "the human right to water is indispensable for leading a life in human dignity. It is a prerequisite for the realization of other human rights." It is also emphasized that the States parties to the International Covenant have the duty to progressively fulfill, without any discrimination, the right to water, which entitles everyone to enjoy sufficient, physically accessible, safe, and acceptable water for domestic and personal use.

Furthermore, several international conferences have been held, among which the United Nations Water Conference held in Mar del Plata in 1977 stands out, which recognized that all peoples have the right to access drinking water to satisfy their basic needs. Also, the Declaration on the Right to Development, adopted by the UN General Assembly in 1986, includes a commitment by States to ensure equal opportunity for all to enjoy basic resources.

The concept of satisfying basic water needs was further strengthened during the 1992 Earth Summit in Río de Janeiro. In Agenda 21, governments agreed that "in developing and using water resources, priority has to be given to the satisfaction of basic needs and the safeguarding of ecosystems." Similarly, in the Plan of Implementation adopted at the Johannesburg Summit in 2002, governments committed to "use all policy instruments, including regulation, monitoring..... and cost recovery of water services," without cost recovery objectives becoming a barrier to poor people's access to clean water. Likewise, there are dozens of international instruments that directly and indirectly deal with water as a human right of all persons and peoples, such that it is not only an issue that by its nature tends toward nationalization, but also toward the internationalization of its use and exploitation.” **IV.- FUNDAMENTAL RIGHT TO THE PROPER FUNCTIONING OF PUBLIC SERVICES.** Our political constitution implicitly enshrines the fundamental right of the administered to the proper and efficient functioning of public services, that is, that they be provided with high quality standards, which has as its necessary corollary the obligation of public administrations to provide them in a continuous, regular, expeditious, effective, and efficient manner. This latter obligation derives from the systematic relationship of several constitutional precepts, such as Article 140, subsection 8, which imposes on the Executive Branch the duty to “Oversee the proper functioning of administrative services and dependencies,” Article 139, subsection 4), insofar as it incorporates the concept of “proper conduct of the Government,” and Article 191 to the extent that it incorporates the principle of “efficiency of the administration.” This atypical or unnamed individual guarantee is accentuated in the case of essential public services such as the supply of drinking water. *(See in this regard judgment number 2003-11222 of 17:48 hrs. of September 30, 2003).* **V.- SPECIFIC CASE.-** From the report rendered by the respondent authorities given under the solemnity of an oath, with timely warning of the consequences provided for in Article 44 of the Ley de la Jurisdicción Constitucional, it is proven that the aqueduct of Paraíso de Cartago is administered by the Municipal Corporation of that locality. On the other hand, from the evidence on file, it is proven that there has been a problem with the regular supply of drinking water service. Certainly, the respondent authorities explained that the water shortage problem is specifically due to the works being carried out in that community by the Costa Rica–Canada foundation for the construction of a sewage pipe and a municipal aqueduct system, which has resulted in the company performing the works repeatedly breaking the main drinking water pipe and interrupting the service. Likewise, in a meeting held on August 6, two thousand ten, attended by the aqueduct manager, the Municipal Mayor, members of the community of Llanos de Santa Lucía, and representatives of the Costa Rica-Canada Foundation, the deficiencies in the quality and quantity of water supplying that district were disclosed, reaching an agreement that the project representatives would be responsible for informing inhabitants of the need to boil water for human consumption during the time the construction process lasts, foreseeing unexpected ruptures in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, deficiencies in the water (agua) supply already existed, and these have lately worsened. The foregoing demonstrates that a series of deficiencies in the quantity of water received by the residents of the community of Llanos de Santa Lucía have existed for some time, without the authorities of the Municipality (Municipalidad) of Paraíso –administrator of the aqueduct– having taken concrete actions to seek a comprehensive solution to this problem, which has been aggravated by the start of construction works to improve the aqueduct of that community, which is why, regarding that point, the appeal must be granted.

**VI.-** On the other hand, the petitioners argue that they have problems with the potability of the little water they receive, which is why on August 6, two thousand ten, they filed a complaint before the relevant Área Rectora de Salud, providing a study from the Laboratorio Clínico de Cartago Saenz Blanco, which determined that the water sample does not meet the potability requirements established by International Public Health Organizations from a bacteriological standpoint. In this regard, the authorities of the Instituto Costarricense de Acueductos y Alcantarillado reported under oath that, in accordance with the microbiological analyses carried out on the aqueduct of Llanos de Santa Lucía operated by the Municipality (Municipalidad) of Paraíso from January 1, two thousand five, to July 31, two thousand ten, the result for fecal coliforms/100ML was negative. In this sense, by official communication SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Directorate (Dirección) of Potabilizing Plants GAM informed the manager of the aqueduct in question that the potabilization plant supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. Additionally, the official communication indicates that on August 11, two thousand ten, an inspection was carried out in the Llano de Santa Lucía community where it was identified that, given the magnitude of the observed earthworks (movimientos de tierra) and work being carried out on the water distribution pipes, multiple risk factors or probable causes in the distribution network can be identified that may contaminate the drinking water, such as: exposed pipes without protection; lack of rigid connection (without use of chemical glue) between pipes and accessories; contact of pipes with black, gray, and rainwater; continuous presence of water leaks and pipe ruptures; decrease in pipe pressure. Regarding the analysis performed by the Laboratorio Clínico Sáenz Blanco on the sample taken by Mrs. Torres Brenes, and in the event that the sample collection and analysis procedures were carried out correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the works currently being carried out on the aqueduct of the community of Llanos de Santa Lucía, and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados. The foregoing highlights that the water the petitioners receive may be unfit for human consumption and therefore does not meet the potability criteria set forth in the Reglamento para la calidad del agua potable, Decreto No. 32327-S, facts that are attributable to the aqueduct administrator, that is, the Municipality (Municipalidad) of Paraíso, which is responsible for providing a quality public service where the water is potable. Finally, while it is true that the Municipality (Municipalidad) of Paraíso is supplying the residents of the community in question by means of a 10,000-gallon water tanker truck that arrives daily, that is a temporary measure, pending the completion of the works for the construction of a water channel and a municipal aqueduct system, which must be completed within a reasonable timeframe. As it stands, the appropriate course is to grant this appeal for violation of the right to health, against the authorities of the Municipality (Municipalidad) of Paraíso, with the consequences detailed in the operative part of this judgment.” That, according to the results contained in said official communication, the responsibility for the health problem that could arise for the residents of Villas del Llano in Santa Lucía de Paraíso is due to operational and administrative problems of the aqueduct managed by the Municipality, and that the water coming from the Treatment Plant is entirely suitable for human consumption and meets quality parameters, according to the permanent monitoring carried out by the National Water Laboratory. That report SUB-G-GSGAM-UPD-DPP-2010-69 determines that the problem occurring in the water supply in the Community of Villa del Llano in Santa Lucía de Paraíso de Cartago is due to problems in the aqueduct distribution system operated by the Municipality; the pipeline is completely damaged and in some areas collapsed, fully exposed and with cracks, which causes the liquid reaching the users of that service to arrive contaminated. That a serious problem exists in the pipeline that is unrelated to the quality and quantity of water derived from the Treatment Plant managed by the institution, which has a monitoring program for the quality of water supplied by Municipal Aqueducts and the E.S.P.H.S.A., a program in which the Municipality of Paraíso is included. That according to this program, two analyses are conducted per year for each component of the evaluated aqueducts, so that analyses are performed on tanks, wells, springs (fuentes), and intakes, the results of which are sent to the operator with a series of recommendations that are considered necessary to follow to reduce the risk and vulnerability of the systems. That Article 10 of the General Drinking Water Law clearly establishes the responsibility of the aqueduct, whether managed by AyA or by a Municipality. That the Constitutive Law of AyA, like the Financial Law of the Republic and Public Budgets, prevents it from making investments in systems not managed by the institution. That it is the obligation of every operator of an aqueduct system to have a Water Quality Program, in accordance with the provisions of the Regulation for Drinking Water Quality, Executive Decree No. 32327-S. That by official communication SGG-2010-1553, instructions were issued to the Municipality of Paraíso so that it immediately proceeded to install a public fountain (fuente pública), as ordered by the Constitutional Chamber. Requests that the appeal filed be dismissed.

3.- María Luisa Ávila Agüero reports under oath, in her capacity as Minister of Health (folio 53), and states that according to what was reported in official communication No. DAJ-UGJ-M-1641-2010 of August 25, two thousand ten, signed by the Director of the Rector Health Area of Paraíso, it is true that a water shortage has traditionally occurred in said community. That the quality has always been good according to the laboratory reports provided by the Municipality of Paraíso. That for the past two months, the Costa Rica-Canada Foundation has been carrying out infrastructure works in the area, with an approximate cost of three billion colones, which includes the installation of sanitary sewer systems, drinking water pipes, a wastewater treatment plant, and others, so the pipes have been broken and the water valves supplying certain sectors are closed, resulting in the discomfort of some residents. That on August 6, two thousand ten, the petitioner together with another group of residents filed a complaint before the Rector Health Area of Paraíso, where they provided a study from the Sáenz Blanco Clinical Laboratory in Cartago and also reported the small quantity of water reaching their homes. That said complaint was addressed on August 9 last, and official communication No. CE-ARSP-Y-0315-2010 of August 12, two thousand ten, was prepared and sent to the petitioner Torres Brenes. That to date, the protected party has not gone to pick it up, although she was already notified by phone. They clarify that the existing sewer system in part of that sector is being replaced with a new one, such that the part being removed is being substituted, and the inconvenience that may be caused to residents is minimal, given that sanitary implements such as sinks, bathrooms, and toilets continue to operate within the homes. That it was adopted as a permanent measure that a municipal official together with one from the construction company coordinate the closing of the valves to cause the least harm to the local residents. That the destruction of pipelines does not exist, as what is happening is that the company is replacing the old pipeline with new ones. That on some public roads, channels are being installed to conduct stormwater, as well as the new sanitary sewer system, and that subsequently, some of the streets will be paved and sidewalks will be built, according to the tender (licitación) that was awarded. That regarding the order issued by the Chamber to install a public fountain (fuente pública), it is unnecessary given that the Municipality of Paraíso is supplying the affected residents by means of a 10,000-gallon water tanker truck that arrives daily. Requests that the appeal filed be dismissed.

4.- Damaris Solano Castillo reports under oath, in her capacity as President of the Municipal Council of Paraíso de Cartago (folio 102), that the water supplying the community of Llanos de Santa Lucía comes from the treatment plant located in Cartago and managed by the Instituto Costarricense de Acueductos y Alcantarillados. That among the factors for the lack of drinking water in said community, mention can be made of: reduction of flow due to the effect of the El Niño phenomenon, entry of the Costa Rica Canada Foundation for the development of improvement works in the community of Llanos de Santa Lucía. Irrational use of water, in sectors where metering service is not provided, and external factors such as service suspensions due to corrective and preventive maintenance work by the Instituto Costarricense de Acueductos y Alcantarillados. That the Costa Rica Canada Foundation was selected by the Ministry of Housing and BANHVI to execute a project for the comprehensive improvement of health conditions in the community of Llano de Santa Lucía. That the works have been carried out for three months and envision the construction of a blackwater channel, a municipal aqueduct system, sidewalks, and the paving of the main roads where the project is being developed, as well as the installation of new residential drinking water metering systems in each of the occupational units where the project is developed. That in the execution of the project works, pipe ruptures have occurred, which has caused sediment and blackwater to enter them. That the pipe ruptures have occurred on some consecutive days, so the system does not fully recover. That to address this problem, a Municipal Commission was formed, which is composed of three council members (regidores), residents, and the Mayor. That a series of regulations have been made to the valves of the community's aqueduct system, which has improved considerably, and in others the shortage time has been reduced. That by official communication AMPEXT-ENC-11-2010, Ing. Adrián Solís Navarro, resident of the company Navarro, was requested to provide a 2,000-gallon tanker truck, in order to supply water to the community at times when the pipeline is broken by the works being carried out and the service must be suspended for considerable periods. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía, representatives of the Costa Rica-Canada Foundation, where the deficiencies in the quality and quantity of water supplying that district were made known, and an agreement was reached that the project representatives would inform the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected pipe ruptures that could contaminate the water. That by official communication ALCEXT-245-2010 of August 17, two thousand ten, the Municipal Mayor requested the Executive President of the Instituto Costarricense de Electricidad: 1. The expansion of the drinking water concession from the Orosi Project serving the community of Llanos de San Lucía, providing an increase of 10 liters per second to meet the growing demand caused by population increase. 3. The installation of an ultrasonic flow meter in the conveyance system of the treatment plant located on the south side of the Instituto Tecnológico de Costa Rica to control the liquid supplied to the Municipality of Paraíso. 4. To provide technical support to the Municipal Aqueduct Department of Paraíso to expand technical knowledge, tools, and instruments to substantially improve the distribution system in the district of Llano de Santa Lucía. Requests that the appeal filed be dismissed.

5.- In the proceedings followed, the legal prescriptions have been observed.

Drafted by Judge Hernández Gutiérrez; and,

Considering:

I.- PURPOSE OF THE APPEAL. The appellants, residents of the community of Llanos de Santa Lucía de Paraíso de Cartago, argue that for months they have had problems with the supply of water they receive, as well as with the potability of the water, without the respondent authorities having provided a solution to the problem to date, despite the multiple complaints they have filed, an action that violates the provisions of Articles 21 and 50 of the Political Constitution.

II.- PROVEN FACTS. Of importance for the decision of this matter, the following facts are deemed duly demonstrated:

a. The appellants are residents of Villa Llanos, located in Santa Lucía of the canton of Paraíso de Cartago (filing brief).

b. By official communication CE-ARSP-0269-2010 of July 20, two thousand ten, the Director of the Rector Health Area of Paraíso requested the person in charge of the Municipal Aqueduct of Paraíso to urgently address the complaint of lack of water for human consumption at the school of Llanos de Santa Lucía (folio 65).

c. Through official communication AMPEXT-ENC-10-2010 of July 21, two thousand ten, the Aqueduct Department of the Municipality of Paraíso informed the Director of the Rector Area that the supply problem occurred because the construction company developing the project disconnected the service connections (previstas) of said Institution and did not reconnect them. That on that day an inspection was carried out and it was determined that the water service at the school was at 50%; That the development of the project in the community of Llanos de Santa Lucía consists of a series of improvements that will affect the municipal aqueduct system, so the respective personnel will be assigned to attend to any emergency (folio 66).

d. By official communication AMPEXT-ENC-11-2010 of July 21, two thousand ten, the person in charge of the Municipal Aqueduct requested Ing. Solís Salazar of Constructora Navarro that, due to the drinking water supply problems for the residents of the community of Llanos de Santa Lucía, to proceed with: 1. Rental of a 2,000-gallon tanker truck by its represented party, during the period the project is being executed; it may be resupplied from the municipal aqueduct system of Paraíso, and the Aqueduct Department personnel will be responsible for distribution to the affected sectors. Additionally, he requested greater speed in repairs and that the Aqueduct Department would be responsible for handling the valves and supervising the works carried out on the drinking water supply system (folios 63 and 64).

e. Through official communication AMPEXT-47-2010 of July 8, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Rector Area that the water shortage problem is specifically due to the works being carried out in that community by the Costa Rica-Canada Foundation for the installation of blackwater pipes, so that on several occasions the company performing the work has broken the main drinking water pipeline; however, the recovery time for the supply system takes some time. That Institution personnel are kept where the works are being carried out to solve any type of situation (folios 61 and 63).

f. By official communication AMPEXT-49-2010 of July 23, two thousand ten, the person in charge of the Municipal Aqueduct informed the Director of the Rector Health Area of Paraíso that due to the works being carried out in said community by the company Navarro, a valve was damaged, which caused an interruption of the supply in that sector and in the community of Llanos de Santa Lucía in General. The problem was solved the previous day (folio 67).

g. That in accordance with the microbiological analyses carried out by AyA on the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five, to July 31, two thousand ten, the result for fecal coliforms/100ML was negative (folio 39).

h. That on August 3, two thousand ten, the Cartago Clinical Laboratory Saenz Blanco performed a bacteriological analysis of tap water at the request of Mrs. Cristina Torres Brenes, which determined that the water sample does not meet the potability requirements established from a bacteriological standpoint by International Public Health Organizations (folio 07).

i. That on August 6, two thousand ten, the appellant Torres Brenes filed a complaint before the Rector Health Area in question where she provided the study from the aforementioned clinical laboratory (report on folio 54).

j. That on August 6, two thousand ten, a meeting was held with members of the community of Llanos de Santa Lucía, representatives of the Costa Rica Canada Foundation, the Person in Charge of the Aqueduct, where the deficiencies in the quality and quantity of water supplying the district were made known, reaching the agreement that the project representatives would be responsible for informing the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected ruptures in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, deficiencies already existed in the water supply, and lately it has worsened (folio 79).

k. Through official communication SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Directorate of GAM Potabilization Plants informed the Person in Charge of the Aqueduct in question that the potabilization plant supplying the Municipalities of Cartago and Paraíso meets the parameters established in the Drinking Water Quality Regulation, Decree No. 32327-S. The National Water Laboratory carries out strict quality control over the potabilization process taking place at the Cartago potabilization plant. That on August 11, two thousand ten, an inspection was conducted in the Llano de Santa Lucía community, where it was identified that, according to the magnitude of the works and earthworks (movimientos de tierra) observed that are being carried out on the water distribution pipes, multiple risk factors or probable causes in the distribution network that can contaminate the drinking water can be identified, such as: exposed pipes without protection; lack of rigid joint (without use of chemical glue) between pipes and accessories; contact of pipes with: blackwater, greywater, stormwater; continuous presence of water leaks and pipe ruptures; decrease in pipe pressure. Regarding the analysis performed by the Sáenz Blanco Clinical Laboratory of the sample taken by Mrs. Torres Brenes, and in the event that the sampling and analysis procedures had been performed correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the works currently being carried out on the aqueduct of the community of Llanos de Santa Lucía, and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados (folios 51 and 52).

l. By official communication SGC-2010-1553 of August 26, two thousand ten, the General Manager of the Instituto Costarricense de Acueductos Alcantarillados requested the Mayor of the Municipality of Paraíso that, by virtue of the fact that the Municipal Corporation he represents is the one providing service in the community of Villa de Llanos, it must comply with what was ordered by the Constitutional Chamber regarding the installation of a public fountain (fuente pública) (folios 40 and 41).

m. That the Municipality of Paraíso is supplying the affected residents by means of a 10,000-gallon water tanker truck that arrives daily (report on folio 55).

III.- RIGHT OF ACCESS TO DRINKING WATER. In repeated resolutions, this Chamber has recognized a fundamental right to drinking water; thus, in judgment number 2006-05606, of fifteen hours twenty-one minutes on April 26, two thousand six, the following was provided:

"VII.-Access to drinking water as a human right. In addition to what has been noted, and perhaps the most relevant aspect on this topic, is the nature and function of water for human life. It is not necessary to detail here an explanation about the evident and notorious reality that without water there can be no life, nor quality of life, and that therefore, with or without a nationalization law, by its very essence, this topic is not and cannot be a territorial or local topic. The Chamber itself, in its constitutional jurisprudence, has stated that access to drinking water is a fundamental human right, insofar as it is configured as an integral part of the right to health and life. (CONSTITUTIONAL CHAMBER, judgments numbers 534-96, 2728-91, 3891-93, 1108-96, 2002-06157 2002-10776; 2004-1923). This same line has been maintained in judgments 2003-04654 and 2004-07779, which, in what is of interest, state:

"V.- The Chamber recognizes, as part of Constitutional Law, a fundamental right to drinking water, derived from the fundamental rights to health, life, a healthy environment, food, and decent housing, among others, as has also been recognized in international Human Rights instruments applicable in Costa Rica: thus, it appears explicitly in the Convention on the Elimination of All Forms of Discrimination against Women (art. 14) and the Convention on the Rights of the Child (art.

24); furthermore, it is enunciated in the Cairo International Conference on Population and Development (principle 2), and it is declared in numerous other instruments of International Humanitarian Law. In our Inter-American Human Rights System, the country is particularly obligated in this matter by the provisions of Article 11.1 of the Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights ("Protocol of San Salvador" of 1988), which provides that: "Article 11. Right to a healthy environment 1.- Everyone shall have the right to live in a healthy environment and to have access to basic public services." The lack of resources does not justify the failure of public administrations to fulfill their duties in the provision of this basic service. (CONSTITUTIONAL CHAMBER, resolutions 2003-04654 and 2004-007779).

For its part, as both the Procuraduría and the AyA representative rightly acknowledge in their reports, in the international field, the recognition of water as a human right and as a necessary precondition for all our human rights is also majority. It is argued that without equitable access to a minimum requirement of drinking water, other established rights would be unattainable—such as the right to an adequate standard of living for health and well-being, as well as other civil and political rights. In November 2002, the United Nations Committee on Economic, Social and Cultural Rights affirmed that access to adequate amounts of clean water for domestic and personal use is a fundamental human right of every person. Likewise, in General Comment No. 15 on the fulfillment of articles 11 and 12 of the International Covenant on Economic, Social and Cultural Rights, the Committee noted that "the human right to water is indispensable for leading a life in human dignity. It is a prerequisite for the realization of other human rights." It is also emphasized that the States parties to the International Covenant have the duty to progressively realize, without any discrimination, the right to water, which entitles everyone to enjoy sufficient, physically accessible, safe, and acceptable water for domestic and personal use.

Furthermore, several international conferences have been held, among which the United Nations Water Conference held in Mar del Plata in 1977 stands out, which recognized that all peoples have the right to access drinking water to meet their basic needs. Also, the Declaration on the Right to Development, adopted by the UN General Assembly in 1986, includes a commitment by States to ensure equal opportunities for all to enjoy basic resources.

The concept of meeting basic water needs was further strengthened during the 1992 Earth Summit in Rio de Janeiro. In Agenda 21, governments agreed that "in developing and using water resources, priority should be given to meeting basic needs and conserving ecosystems." Similarly, in the Plan of Implementation adopted at the Johannesburg Summit in 2002, governments committed to "employ all policy instruments, including regulation, monitoring..... and cost recovery of water services," without the cost recovery objectives becoming a barrier to poor people's access to clean water. There are also dozens of international instruments that directly and indirectly relate to water as a human right of all persons and peoples, such that it is not only an issue that by its nature tends towards nationalization, but also towards the internationalization of its use and exploitation.

IV.- FUNDAMENTAL RIGHT TO THE PROPER FUNCTIONING OF PUBLIC SERVICES. Our political constitution implicitly enshrines the fundamental right of the administered to the proper and efficient functioning of public services, that is, that they be provided with high quality standards, which has as a necessary corollary the obligation of public administrations to provide them continuously, regularly, speedily, effectively, and efficiently. This latter obligation is derived from the systematic relationship of several constitutional precepts, such as Article 140, subsection 8, which imposes on the Executive Branch the duty to "Oversee the proper functioning of the administrative services and dependencies," Article 139, subsection 4), as it incorporates the concept of "good governance of the Government," and Article 191 to the extent that it incorporates the principle of "efficiency of the administration." This atypical or unnamed individual guarantee is accentuated in the case of essential public services such as the supply of drinking water. (See in this regard judgment number 2003-11222 of 17:48 hrs. of September 30, 2003).

V.- SPECIFIC CASE.- From the report issued by the respondent authorities given under the solemnity of an oath, with timely warning of the consequences provided for in Article 44 of the Ley de la Jurisdicción Constitucional, it is certified that the aqueduct of Paraíso de Cartago is administered by the Municipal Corporation of that locality. On the other hand, from the evidence in the case file, it is certified that there has been a problem with the regular supply of drinking water service. Indeed, the respondent authorities explained that the water shortage problem is specifically due to the works being developed in that community by the Costa Rica–Canada foundation for the construction of a black-water pipeline and a municipal aqueduct system, which has caused the company performing the works to break the main drinking water pipe on several occasions, and the service has been interrupted. Likewise, in a meeting held on August 6, two thousand ten, attended by the aqueduct manager, the Municipal Mayor, members of the community of Llanos de Santa Lucía, and representatives of the Costa Rica-Canada Foundation, the deficiencies in the quality and quantity of water supplying that district were made known, reaching an agreement that the project representatives would be responsible for informing the inhabitants of the need to boil water for human consumption during the time the construction process lasts, anticipating unexpected ruptures in the pipes that could contaminate the water. Regarding the quantity of water, it was determined that prior to the project, there were already deficiencies in the water supply, and lately it has worsened. The foregoing shows that a series of deficiencies in the quantity of water received by the residents of the community of Llanos de Santa Lucía have existed for some time, without the authorities of the Municipality of Paraíso –administrator of the aqueduct– having taken concrete actions to find a comprehensive solution to this problem, which has been aggravated by the start of the construction of the works to improve the aqueduct of that community, for which reason the appeal must be granted in this regard.

VI.- On the other hand, the appellants allege that they have problems with the potability of the little water they receive, for which reason on August 6, two thousand ten, they filed a complaint before the relevant Área Rectora de Salud where they provided a study from the Laboratorio Clínico de Cartago Saenz Blanco, which determined that the water sample does not meet the potability requirements that, from a bacteriological standpoint, are established by the International Public Health Organizations. In this regard, the authorities of the Instituto Costarricense de Acueductos y Alcantarillados reported under oath that according to the microbiological analyses carried out on the aqueduct of Llanos de Santa Lucía operated by the Municipality of Paraíso from January 1, two thousand five to July 31, two thousand ten, the result for fecal coliforms/100ML was negative. In this sense, by official communication SUB-G-GSGAM-UPD-DPP-2010-69 of August 16, two thousand ten, the Dirección de Plantas Potabilizadoras GAM informed the manager of the aqueduct in question that the water treatment plant supplying the Municipalities of Cartago and Paraíso complies with the parameters established in the Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. Furthermore, the said official communication indicates that on August 11, two thousand ten, an inspection was carried out in the Llano de Santa Lucía community where it was identified that, according to the magnitude of the observed works and earthworks (movimientos de tierra) being carried out on the water distribution pipes, multiple risk factors or probable causes can be identified in the distribution network that can contaminate the drinking water, such as: exposed pipes without protection; lack of rigid union (without the use of chemical glue) between the pipes and accessories; contact of pipes with: black-water, graywater, rainwater; continuous presence of water leaks and pipe ruptures; decrease in pipe pressure. Regarding the analysis carried out by the Laboratorio Clínico Sáenz Blanco of the sample taken by Mrs. Torres Brenes, and in the event that the sampling and analysis procedures were carried out correctly, it is perfectly possible to obtain a result of water unfit for human consumption, but as a consequence of the operational management and the works currently being carried out on the aqueduct of the community of Llanos de Santa Lucía and not due to the responsibility of the Instituto Costarricense de Acueductos y Alcantarillados. The foregoing reveals that the water received by the appellants could be unfit for human consumption and therefore does not meet the potability criteria established by the Reglamento para la calidad del agua potable, Decreto No. 32327-S, facts that are attributable to the administrator of the aqueduct, that is, the Municipality of Paraíso, which is responsible for providing a quality public service where the water is potable. Finally, while it is true that the Municipality of Paraíso is supplying the residents of the community in question by means of a 10,000-gallon water tanker truck that arrives daily, this is a temporary measure, while the works for the construction of the water pipeline and a municipal aqueduct system are completed, which should be finished within a reasonable timeframe. This being the case, it is appropriate to grant this appeal for violation of the right to health, against the authorities of the Municipality of Paraíso, with the consequences detailed in the operative part of this judgment.

Therefore:

The appeal is declared WITH MERIT. Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or whoever occupies those positions in their stead, are ordered to IMMEDIATELY adopt the necessary measures and execute the pertinent actions to correct the problems and guarantee the residents of the community of Llanos de Santa Lucía de Paraíso de Cartago a continuous and quality supply, so that the water is potable. The respondents are warned that based on the provisions of Article 71 of the Ley de la Jurisdicción Constitucional, imprisonment of three months to two years, or a fine of twenty to sixty days, shall be imposed on whoever receives an order that they must comply with or enforce, issued in an amparo appeal, and does not comply with it or enforce it, provided that the offense is not more severely punished. Regarding the Instituto Costarricense de Acueductos y Alcantarillados and the Ministry of Health, the appeal is declared without merit. The Municipality of Paraíso is condemned to pay the costs, damages, and losses caused by the facts that serve as the basis for this declaration, which shall be settled in the execution of the judgment of the administrative contentious jurisdiction. Notify this resolution to Marvin Solano Zúñiga, in his capacity as Municipal Mayor, and to Damaris Solano Castillo, in her capacity as President of the Municipal Council of Paraíso, or to whoever occupies those positions in their stead, PERSONALLY. LET IT BE COMMUNICATED.-

Res. Nº 2010015676 SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE JUSTICIA. San José, a las diecisiete horas y siete minutos del veintiuno de setiembre del dos mil diez.

Recurso de amparo interpuesto por CYNTHIA CALDERÓN AGUILAR, cédula de identidad 0303840677, CRISTINA TORRES BRENES, cédula de identidad 0108250210, GABRIELA TORRES BRENES, cédula de identidad 0502980080 y JUAN EVELIO DURÁN PORTUGUÉS, cédula de identidad 0303340497, contra el ALCALDE Y EL PRESIDENTE DEL CONCEJO MUNICIPAL, AMBOS DE LA MUNICIPALIDAD DE PARAÍSO, EL PRESIDENTE EJECUTIVO DEL INSTITUTO COSTARRICENSE DE ACUEDUCTOS Y ALCANTARILLADOS Y LA MINISTRA DE SALUD.

Resultando:

1.- Por escrito recibido en la Secretaría de la Sala a las diez horas diez minutos del 20 de agosto de dos mil diez, los recurrentes interponen recurso de amparo contra la Municipalidad de Paraíso de Cartago, el Instituto Costarricense de Acueductos y Alcantarillados y el Ministerio de Salud y manifiesta que son vecinos de Villa Llanos, ubicada en Santa Lucía del cantón de Paraíso de Cartago. Refieren que desde hace varios meses comenzaron a sufrir de escasez de agua y, desde hace 2 semanas, carecen por completo del preciado líquido; aunque rara vez, cuando tienen acceso a una ínfima cantidad, éste se encuentra contaminado. Ante la gravedad de tal amenaza para la salud de los habitantes de su comunidad, en varias oportunidades han acudido ante los recurridos, en busca de una solución a su problema y una explicación sobre lo acontecido. De sus cuestionamientos, lo único que se les ha dado son pretextos y excusas y no soluciones concretas. Aducen que su situación se ha visto agravada por las acciones de la empresa constructora de nombre Urbanizadora Navarro de Cartago S.A., la cual ha destruido gran cantidad de la infraestructura del acueducto y del alcantarillado del sitio; además que, ha destrozado las calles de su localidad, lo que impide además la circulación de automotores en la zona. Indican que por su cuenta han tomado muestras de agua, las que llevaron a analizar a un laboratorio autorizado, lo que permitió demostrar que el líquido está contaminado y presenta hasta 280 veces más del valor límite permitido por las entidades internacionales. Advierten que los resultados del estudio fueron llevados los días 5 y 6 de agosto a la Municipalidad y al Ministerio recurridos; empero, lo que se les dijo fue que el agua de esa comunidad era suministrada por el Instituto Costarricense de Acueductos y Alcantarillados. Con ocasión de ello, presentaron un memorial rubricado por 57 vecinos ante la Municipalidad y el Instituto recurridos, cuyo único resultado fue la emisión del oficio número AMPEXT-ENC-12-2010 por parte de la Municipalidad, nota que fue dirigida al Instituto Costarricense de Acueductos y Alcantarillados. Con base en lo dicho y, pese a que hasta interpusieron una queja ante la Defensoría de los Habitantes, su situación no se ha resuelto. Por lo expuesto, estiman lesionados sus derechos fundamentales. Solicitan los recurrentes que se declare con lugar el recurso.

2.- Informa bajo juramento Oscar Núñez Calvo en su calidad de Presidente Ejecutivo del Instituto Costarricense de Acueductos y Alcantarillados (folio 29), que no le consta que los amparados no reciben el servicio de agua potable de forme debida, en virtud de que la Institución no es operador del sistema de acueducto de Paraíso de Cartago. Que la Municipalidad de Paraíso de Cartago es la Administradora del acueducto y es la responsable de las condiciones en que se brinda el servicio y los problemas de sus usuarios. Que de acuerdo con los estudios realizados por el Laboratorio Nacional lo que consta es que el agua que sale de la planta potabilizadora de Cartago que es de donde se provee ese líquido a los recurrentes, es totalmente potable. Que el 11 de agosto de dos mil diez, el Ing. Oscar Ramírez, responsable de las plantas de tratamiento del Área Metropolitana del AyA, realizó una inspección en la que se constató que se han dañado gravemente las tuberías de distribución, las cuales son administradas por la Municipalidad de Paraíso. Lo anterior, no solo produce contaminación, sino la reducción de la cantidad del líquido suministrado por cuanto por las fugas se pierde gran cantidad de éste. Que los trabajos realizados por la propia Municipalidad como por la empresa Navarro de Cartago S.A. por encargo de la Fundación Costa Rica Canadá, han dañando gravemente el sistema de acueducto administrado y operado por esa Corporación Municipal. Que en el oficio SUB-G-GSGAMUPD-DPP-2010-63, el Ing Jaime Astúa indica: “En el sitio y de acuerdo con la magnitud de los trabajos y movimientos de tierra observados que se están realizando sobre las vías públicas, en las cuales se encuentran las tuberías de distribución de agua, se puede identificar claramente factores de riesgo o causas probables en la red de distribución que pueden contaminar el agua potable, dentro de las que se destaca: tuberías entre las tuberías y accesorios; uso temporal de tubería de 12 mm para distribución de varios servicios “tubería madre”; contactos de tubería con aguas: negras, grises, pluviales: presencia continua de fugas de agua y ruptura de tuberías; disminución de la presión en la tuberías. Que es perfectamente posible obtener un resultado de agua no apta para el consumo humano, como consecuencia de la gestión operativa y trabajos que se realizan actualmente en el acueducto municipal de la comunidad de Llanos de Santa Lucía. Que el 10 de agosto pasado recibieron una nota por parte del Ing. Jaime Astúa, motivo por el cual el 11 de agosto de dos mil diez procedieron a realizar una inspección cuyos resultados se le entregaron a la Municipalidad por medio del oficio SUB-G-GSGAM-UPD-DPP-2010-69. Que de acuerdo a los resultado contenido en dicho oficio la responsabilidad por le problema de salud que se podría presentar a los vecinos de Villas del Llano de Santa Lucía de Paraíso obedece a problemas de operación y administración del acueducto administrado por la Municipalidad y que el agua que proviene de la Planta de Tratamiento es totalmente apta para el consumo humano y cumple con los parámetros de calidad, según el control permanente que lleva a cabo el Laboratorio Nacional de Aguas. Que el informe SUB-G-GSGAM-UPD-DPP-2010-69 determina que el problema que se presenta en el abastecimiento de agua en la Comunidad de Villa del Llano de Santa Lucía de Paraíso de Cartago, es por problemas en el sistema de distribución de acueducto que opera la Municipalidad, la tubería se ve totalmente dañada y en algunas zonas colapsada, totalmente expuesta y con fisuras, lo que provoca que el líquido que llega a los usuarios de ese servicio llegue contaminado. Que se presenta una problemática grave en la tubería que no tiene que ver con la calidad y cantidad de agua que se deriva de la Planta de Tratamiento que administra la institución, la cual cuenta con un programa de vigilancia de la calidad del agua suministrada por Acueductos Municipales y la E.S.P.H.S.A., programa dentro de la cual se encuentra incluida la Municipalidad de Paraíso. Que conforme a ese programa se realizan dos análisis por año en cada componente de los acueductos evaluados, de manera que se hacen análisis en los tanques, pozos, fuentes, tomas, cuyo resultado es remitido al operador con una serie de recomendaciones que se consideren de necesario acatamiento para reducir el riesgo y la vulnerabilidad de los sistemas. Que el artículo 10 de la Ley General de Agua Potable establece claramente la responsabilidad del acueducto sea administrado por el AyA o por una Municipalidad. Que la Ley Constitutiva del AyA como la Ley Financiera de la República y de Presupuestos Públicos le impide realizar inversiones en sistemas no administrados por la institución. Que es obligación de todo operador de un sistema de acueducto, contar con un Programa de Calidad de Agua, de acuerdo con lo ordenado en el Reglamento para la Calidad del Agua Potable, Decreto Ejecutivo No. 32327-S. Que por oficio SGG-2010-1553 se giró instrucciones a la Municipalidad de Paraíso a fin de que de forma inmediata procediera a colocar una fuente pública, tal y como lo ha ordenado la Sala Constitucional. Solicita que se desestime el recurso planteado.

3.- Informa bajo juramento María Luisa Ávila Agüero, en su condición de Ministra de Salud (folio 53), y manifiesta que de acuerdo con lo informado en el oficio No. DAJ-UGJ-M-1641-2010 del 25 de agosto de dos mil diez, suscrito por la Directora del Área Rectora de Salud de Paraíso, es cierto que tradicionalmente en dicha comunidad se presentan un faltante de agua. Que la calidad siempre ha sido bueno de acuerdo con los informes de laboratorio que aporta la Municipalidad de Paraíso. Que desde hace dos meses, la Fundación Costa Rica –Canadá esta realizando obras de infraestructura en el lugar, con un costa aproximado de tres mil millones de colones, que incluye la instalación de alcantarillado sanitario, tuberías de agua potable, planta de tratamiento para aguas residuales, y otros, por lo que las tuberías se han roto y se cierran las válvulas de agua que abastecen a ciertos sectores, lo que ha dado como resultado la incomodidad de algunos vecinos. Que el 6 de agosto de dos mil diez, la recurrente junto con otro grupo de vecinos presentó una denuncia ante el Área Rectora de Salud de Paraíso, donde aportaron un estudio del Laboratorio Clínico Sáenz Blanco en Cartago y además denunciaron la poca cantidad de agua que les llega a sus hogares. Que dicha denuncia fue atendida el 9 de agosto pasado y se confeccionó el oficio No. CE-ARSP-Y-0315-2010 del 12 de agosto de dos mil diez, remitido a la recurrente Torres Brenes. Que a la fecha la amparada no ha pasado a retirarlo, aunque ya se le avisó telefónicamente. Aclaran que el alcantarillado existente en parte de ese sector se esta remplazando por uno nuevo de modo tal que la parte que se va quitando se va sustituyendo y las molestías que puede causarse a los vecinos es mínima, dado que los implementos sanitarios como pilas, baños y servicios sanitarios siguen operando dentro de las viviendas. Que se adoptó como medida permanente que un funcionario municipal junto con otro de la empresa constructora coordinen el cierre de las válvulas y se cause el menor daño a los vecinos del lugar. Que la destrucción de tuberías no existe, pues lo que se hace es que la empresa sustituye la tubería antigua por otra nueva. Que en algunas vías públicas se están instalando canales para conducir aguas pluviales, así como el nuevo alcantarillado sanitario y que posterior a ello algunas de las calles se pavimentarán y se construirán aceras, de acuerdo con la licitación que se adjudicó. Que respecto a la orden emitida por la Sala a fin de que se instalara una fuente pública, la misma resulta innecesaria dado que la Municipalidad de Paraíso esta abasteciendo a los vecinos afectados por medio de un camión cisterna de 10.000 galones de agua que llegan diariamente. Solicita que se desestime el recurso planteado.

4.- Informa bajo juramento Damaris Solano Castillo, en su condición de Presidente del Concejo Municipal de Paraíso de Cartago (folio 102), que el agua que abastece a la comunidad de Llanos de Santa Lucía proviene de la planta de tratamiento ubicada en Cartago y administrada por el Instituto Costarricense de Acueductos y Alcantarillados. Que entre los factores de falta de agua potable en dicha comunidad se puede hacer mención a: reducción del caudal por efecto del fenómeno del niño, ingreso por parte de la Fundación Costa Rica Canadá para el desarrollo de trabajos de mejoramiento en la comunidad de Llanos de Santa Lucía. Uso irracional del agua, en sectores donde no se brinda el servicio de medición y factores externos como por ejemplo suspensiones del servicio por trabajos de mantenimiento correctivo y preventivo por parte del Instituto Costarricense de Acueductos y Alcantarillados. Que la Fundación Costa Rica Canadá fue seleccionada por el Ministerio de la Vivienda y el BANHVI para ejecutar un proyecto de mejoramiento integral de las condiciones de salud de la comunidad de Llano de Santa Lucía. Que los trabajos se realizan desde hace tres meses y prevén la construcción de un canalizador de aguas negras, de un sistema de acueducto municipal, de aceras y el asfaltado de las principales vías donde se desarrolla el proyecto, así como la instalación de nuevos sistemas de medición de agua potable, domiciliares en cada una de las unidades ocupacionales donde se desarrolla el proyecto. Que en la ejecución de las obras del proyecto se ha dado la ruptura de las tuberías, lo que ha provocado que a la misma ingresen sedimentos y aguas negras. Que las rupturas de las tuberías se han dado en algunos días consecutivos, por lo que el sistema no se recupera en su totalidad. Que para afrontar dicha problemática se formó una Comisión Municipal, la cual se encuentra conformada por tres regidores, vecinos y por el Alcalde. Que se ha realizado una serie de regulaciones en las válvulas del sistema del acueducto de la comunidad, el cual ha mejorado considerablemente y en otros se ha reducido el tiempo de faltante. Que por oficio AMPEXT-ENC-11-2010 se solicitó al Ing. Adrián Solís Navarro, residente de la empresa Navarro un camión cisterna de 2000 galones, con el fin de abastecedor a la comunidad de agua en momento en que la tubería sea quebrada por los trabajos que se realizan y se deba suspender el servicio durante lapsos de tiempo considerables. Que el 6 de agosto de dos mil diez, se llevó a cabo una reunión con miembros de la comunidad de Llanos de Santa Lucía, representantes de la Fundación Costa Rica –Canadá, en donde se dio a conocer las deficiencias en la calidad y cantidad del agua que abastece ese distrito y se llegó al acuerdo de que los representantes del proyecto comunicarán a los habitantes de la necesidad de hervir el agua para el consumo humano durante el tiempo que dure el proceso de construcción, previendo rupturas inesperadas de la tubería que pudieran contaminar el agua. Que por oficio ALCEXT-245-2010 del 17 de agosto de dos mil diez, el Alcalde Municipal solicitó al Presidente Ejecutivo del Instituto Costarricense de Electricidad: 1. La ampliación de la concesión de agua potable del Proyecto Orosi que abastece a la comunidad de Llanos de San Lucía, suministrando un incrementos de 10 litros por segundo para atender la creciente demanda originada por el aumento poblacional. 3. La instalación de un medidor de caudal ultrasónico en el sistema de conducción de la planta de tratamiento que se ubica al costa sur del Instituto Tecnológico de Costa Rica para controlar el líquido que se suministra a la Municipalidad de Paraíso. 4. Brindar aporto técnico al Departamento de Acueducto Municipal de Paraíso que permita ampliar conocimientos técnicos, herramientas e instrumentos para mejorara de manera sustancial el sistema de distribución en el distrito de Llano de Santa Lucía. Solicita que se desestime el recurso planteado 5.- En los procedimientos seguidos se ha observado las prescripciones legales.

Redacta el Magistrado Hernández Gutiérrez; y,

Considerando:

I.- OBJETO DEL RECURSO. Los recurrentes, vecinos de la comunidad de Llanos de Santa Lucía de Paraíso de Cartago aducen que desde hace meses tienen problemas con el abastecimiento del suministro de agua que reciben, así como con la potabilidad del agua, sin que a la fecha las autoridades recurridas le hayan brindado una solución al problema, a pesar de las múltiples denuncias que han interpuesto, actuación que vulnera lo dispuesto en los artículo 21 y 50 de la Constitución Política.

II.- HECHOS PROBADOS. De importancia para la decisión de este asunto, se estiman como debidamente demostrados los siguientes hechos:

a. Los recurrente son vecinos de Villa Llanos, ubicada en Santa Lucía del cantón de Paraíso de Cartago (escrito de interposición).

b. Por oficio CE-ARSP-0269-2010 del 20 de julio de dos mil diez, la Directora del Área Rectora de Salud de Paraíso solicitó al encargado del Acueducto Municipal de Paraíso atender de manera urgente la denuncia de faltante de agua para consumo humano en la escuela de Llanos de Santa Lucía (folio 65).

c. Mediante oficio AMPEXT-ENC-10-2010 del 21 de julio de dos mil diez, el Departamento del Acueducto de la Municipalidad de Paraíso comunicó a la Directora del Área Rectora que el problema de abastecimiento se dio ya que la empresa constructora que desarrolla el proyectó desconectó las previstas de dicha Institución y no las reconectó. Que ese día se realizó una inspección y se determinó que el servicio de agua en la escuela se encuentra en un 50%; Que el desarrollo del proyecto en la comunidad de Llanos de Santa Lucía consta de una serie de mejoras que afectarán el sistema del acueducto municipal, por lo que se destinará el personal respectivo para la atención de cualquier emergencia (folio 66).

d. Por oficio AMPEXT-ENC-11-2010 del 21 de julio de dos mil diez, el encargado del Acueducto Municipal solicitó al Ing. Solís Salazar de la Constructora Navarro que por los problemas de abastecimiento de agua potable a los vecinos de la comunidad de Llanos de Santa Lucía se proceda a: 1. Alquiler de un camión cisterna de 2000 galones por parte de su representada, durante el período que se ejecutará el proyecto, el mismo podrá ser reabastecido del sistema del acueducto municipal de Paraíso y el personal del Departamento del Acueducto será responsable del reparto a los sectores afectados. Además, le solicitó mayor celeridad en las reparaciones y que el Departamento del Acueducto será el responsable de la manipulación de las válvulas y supervisión de los trabajos que se realicen en el sistema de abastecimiento de agua potable (folios 63 y 64).

e. Mediante oficio AMPEXT-47-2010 del 8 de julio de dos mil diez, el encargado del Acueducto Municipal le informó a la Directora del Área Rectora que el problema del faltante de agua se debe específicamente a los trabajos que se desarrollan en esa comunidad por la Fundación Costa Rica –Canadá para la instalación de tuberías para aguas negras, por lo que en varias ocasiones la empresa que realiza el trabajo ha quebrado la tubería madre del agua potable, sin embargo, el tiempo de recuperación del sistema de abastecimiento toma cierto tiempo. Que se mantiene personal de la Institución donde se realizan los trabajos para solucionar cualquier tipo de situación (folios 61 y 63) f. Por oficio AMPEXT-49-2010 del 23 de julio de dos mil diez, el encargado del Acueducto Municipal le comunicó a la Directora del Área Rectora de Salud de Paraíso que por los trabajos que se realizan en dicha comunidad por parte de la empresa Navarro se dañó una válvula, lo que provocó una interrupción del abastecimiento en dicha sector y en la comunidad de Llanos de Santa Lucía en General. El problema fue solucionado el día de anterior (folio 67).

g. Que de conformidad con los análisis microbiológicos efectuados por el AyA en el acueducto de los Llanos de Santa Lucía operado por la Municipalidad de Paraíso del 1 de enero de dos mil cinco al 31 de julio de dos mil diez, el resultado de coniformes/100ML fecales fue negativo (folio 39).

h. Que el 3 de agosto de dos mil diez, el Laboratorio Clínico de Cartago Saenz Blanco realizó un análisis bacteriológico del agua de cañería a solicitud de la señora Cristina Torres Brenes, el cual determinó que la muestra de agua no llena los requisitos de potabilidad que desde el punto de vista bacteriológico, establecen los Organismos Internacionales de Salud Pública (folio 07).

i. Que el 6 de agosto de dos mil diez, la recurrente Torres Brenes presentó una denuncia ante el Área Rectora de Salud en cuestión donde aportó el estudio del laboratorio clínico supra-citado (informe a folio 54).

j. Que el 6 de agosto de dos mil diez, se llevó a cabo una reunión con miembros de la comunidad de Llanos de Santa Lucía, representantes de la Fundación Costa Rica Canadá, el Encargado del Acueducto, donde se dio a conocer las deficiencias en la calidad y cantidad del agua que abastece el distrito, llegando al acuerdo a que los representantes del proyecto se encargarán de comunicar a los habitantes la necesidad de hervir el agua para el consumo humano durante el tiempo que dure el proceso de construcción, previendo rupturas inesperadas en las tuberías que podrían contaminar el agua. En lo referente a la cantidad de agua se determinó que previo al proyecto ya existían deficiencias en el suministro del agua, y últimamente se ha agudizado (folio 79).

k. Mediante oficio SUB-G-GSGAM-UPD-DPP-2010-69 del 16 de agosto de dos mil diez, la Dirección de Plantas Potabilizadoras GAM le comunicó al Encargado del Acueducto en cuestión que la planta potabilizadora que abastece a las Municipalidades de Cartago y Paraíso cumple con los parámetros establecidos en el Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. El Laboratorio Nacional de Aguas realiza un estricto control de calidad sobre el proceso de potabilización que tiene lugar en la planta potabilizadora de Cartago. Que el 11 de agosto de dos mil diez se realizó una inspección en la comunidad Llano de Santa Lucía en donde se identificó que de acuerdo con la magnitud de los trabajos y movimientos de tierra observados que se están realizando en las tuberías de distribución de agua, se puede identificar múltiples factores de riesgo o causas probables en la red de distribución que puede contaminar el agua potable, como: tuberías expuestas sin protección; falta de unión rígida (sin uso de pegamento químico) entre las tuberías y accesorios; contacto de tuberías con aguas: negras, grises, pluviales; presencia continua de fugas de agua y ruptura de tuberías; disminución de la presión de las tuberías. En cuanto al análisis realizado por el Laboratorio Clínico Sáenz Blanco de la muestra tomado por la Sra. Torres Brenes y en caso de que se hubiera realizado correctamente los procedimientos de toma de muestra y análisis, es perfectamente posible obtener un resultado de agua no apta para consumo humano, pero como consecuencia de la gestión operativa y los trabajos que se realiza actualmente en el acueducto de la comunidad de Llanos de Santa Lucía y no por responsabilidad del Instituto Costarricense de Acueductos y Alcantarillados (folios 51 y 52).

l. Por oficio SGC-2010-1553 del 26 de agosto de dos mil diez, el Sugerente General del Instituto Costarricense de Acueductos Alcantarillados solicitó al Alcalde de la Municipalidad de Paraíso que en virtud de que la Corporación Municipal que representa es la que brinda el servicio en la comunidad de Villa de Llanos, debe cumplir con lo ordenado por la Sala Constitucional respecto a la instalación de una fuente pública (folios 40 y 41).

m. Que la Municipalidad de Paraíso esta abasteciendo a los vecinos afectados por medio de un camión cisterna de 10.000 galones de agua que llegan diariamente (informe a folio 55).

III.- DERECHO DE ACCESO AL AGUA POTABLE. En reiteradas resoluciones esta Sala ha reconocido un derecho fundamental al agua potable, así se dispuso en la sentencia número 2006-05606, de las quince horas veintiún minutos 26 de abril de dos mil seis, lo siguiente:

“VII.-El acceso al agua potable como derecho humano. Adicionalmente a lo señalado, y talvez el aspecto más relevante en este tema, lo constituye la naturaleza y función del agua para la vida humana. No es necesario detallar aquí una explicación sobre la realidad evidente y notoria de que sin agua no puede haber vida, ni calidad de vida, y que por lo tanto, con ley o sin ley de nacionalización, por su propia esencia, este tema, no es ni puede ser un tema territorial o local. La propia Sala en su jurisprudencia constitucional ha dicho que el acceso al agua potable es un derecho humano fundamental, en cuanto se configura como un integrante del contenido del derecho a la salud y a la vida. (SALA CONSTITUCIONAL, sentencias números 534-96, 2728-91, 3891-93, 1108-96, 2002-06157 2002-10776; 2004-1923). Esta misma línea se ha mantenido en las sentencias 2003-04654 y 2004-07779, que en lo que interesa señalan:

“V.- La Sala reconoce, como parte del Derecho de la Constitución, un derecho fundamental al agua potable, derivado de los derechos fundamentales a la salud, la vida, al medio ambiente, a la alimentación y la vivienda digna, entre otros, tal como ha sido reconocido también en instrumentos internacionales sobre Derechos Humanos aplicables en Costa Rica: así, figura explícitamente en la Convención sobre la Eliminación de todas las formas de discriminación contra la mujer (art. 14) y la Convención sobre los Derechos del Niño (art. 24); además, se enuncia en la Conferencia Internacional sobre Población y el Desarrollo de El Cairo (principio 2), y se declara en otros numerosos del Derecho Internacional Humanitario. En nuestro Sistema Interamericano de Derechos Humanos, el país se encuentra particularmente obligado en esta materia por lo dispuesto en el artículo 11.1 del Protocolo Adicional a la Convención Americana sobre Derechos en Materia de Derechos Económicos, Sociales y Culturales (“Protocolo de San Salvador” de 1988), el cual dispone que: “Artículo 11. Derecho a un medio ambiente sano 1.-Toda persona tiene derecho a vivir en un medio ambiente sano y a contar con servicios públicos básicos”. La carencia de recursos no justifica el incumplimiento de los cometidos de las administraciones públicas en la prestación de este servicio básico. (SALA CONSTITUCIONAL, resoluciones 2003-04654 y 2004-007779).

Por su parte, como bien lo reconocen tanto la Procuraduría como el representante del AyA en sus informes, en el campo internacional también es mayoritario el reconocimiento del agua como derecho humano y como una pre-condición necesaria para todos nuestros derechos humanos. Se sostiene que sin el acceso equitativo a un requerimiento mínimo de agua potable, serían inalcanzables otros derechos establecidos -como el derecho a un nivel de vida adecuado para la salud y para el bienestar, así como de otros derechos civiles y políticos. En noviembre del 2002, el Comité de Derechos Económicos, Sociales y Culturales de las Naciones Unidas afirmó que el acceso a cantidades adecuadas de agua limpia para uso doméstico y personal es un derecho humano fundamental de toda persona. Asimismo en el Comentario General No. 15 sobre el cumplimiento de los artículos 11 y 12 del Pacto Internacional de Derechos Económicos, Sociales y Culturales, el Comité hizo notar que "el derecho humano al agua es indispensable para llevar una vida en dignidad humana. Es un pre-requisito para la realización de otros derechos humanos". Se enfatiza también que los Estados miembros del Pacto Internacional tienen el deber de cumplir de manera progresiva, sin discriminación alguna, el derecho al agua, el cual da derecho a todos a gozar de agua suficiente, físicamente accesible, segura y aceptable para uso doméstico y personal.

Por su parte se han dado varias conferencias internacionales entre las que destaca la Conferencia de las Naciones Unidas sobre el Agua llevada a cabo en Mar de Plata en 1977 que reconoció que todos los pueblos tienen derecho al acceso a agua potable para satisfacer sus necesidades básicas. También, la Declaración sobre el Derecho al Desarrollo, adoptada por la Asamblea General de la ONU, de 1986 incluye un compromiso por parte de los Estados de asegurar la igualdad de oportunidades para todos para disfrutar de los recursos básicos.

El concepto de satisfacer las necesidades básicas de agua se fortaleció más durante la Cumbre de la Tierra de 1992 en Río de Janeiro. En la Agenda 21, los gobiernos acordaron que "al desarrollar y usar los recursos hídricos, debe darse prioridad a la satisfacción de las necesidades básicas y a la conservación de los ecosistemas. De igual forma, en el Plan de Implementación adoptado en la Cumbre de Johannesburgo en el 2002, los gobiernos se comprometieron a "emplear todos los instrumentos de políticas, incluyendo la regulación, el monitoreo..... y la recuperación de costos de los servicios de agua," sin que los objetivos de recuperación de costos se conviertan en una barrera para el acceso de la gente pobre al agua limpia. Asimismo existen decenas de instrumentos internacionales que directa e indirectamente tienen que ver con el agua como un derecho humano de todas las personas y pueblos, de tal forma que no sólo es un tema que por su naturaleza tiende a la nacionalización, sino a la internacionalización de su uso y aprovechamiento”.

IV.- DERECHO FUNDAMENTAL AL BUEN FUNCIONAMIENTO DE LOS SERVICIOS PÚBLICOS. Nuestra constitución política recoge, implícitamente, el derecho fundamental de los administrados al buen y eficiente funcionamiento de los servicios públicos, esto es, que sean prestados con elevados estándares de calidad, el cual tiene como correlato necesario la obligación de las administraciones públicas de prestarlos de forma continua, regular, célere, eficaz y eficiente. Esta última obligación se desprende de la relación sistemática de varios preceptos constitucionales, tales como el 140, inciso 8, el cual le impone al Poder Ejecutivo el deber de “Vigilar el buen funcionamiento de los servicios y dependencias administrativas”, el 139, inciso 4), en cuanto incorpora el concepto de “buena marcha del Gobierno” y el 191 en la medida que incorpora el principio de “eficiencia de la administración”. Esa garantía individual atípica o innominada se acentúa en tratándose de servicios públicos esenciales como el abastecimiento de agua potable. (Ver en este sentido la sentencia número 2003-11222 de las 17:48 hrs. del 30 de septiembre de 2003).

V.- CASO CONCRETO.- Del informe rendido por las autoridades recurridas dado bajo la solemnidad del juramento, con oportuno apercibimiento de las consecuencias previstas en el artículo 44 de la Ley de la Jurisdicción Constitucional, se acredita que el acueducto de Paraíso de Cartago es administrado por la Corporación Municipal de esa localidad. Por otra parte de las pruebas que constan en autos se acredita que ha existido un problema con el abastecimiento regular del servicio de agua potable. Ciertamente, las autoridades recurridas trabajos que se desarrollan en esa comunidad por la fundación Costa Rica –Canadá para la construcción de una canalizador de aguas negras y de un sistema de acueducto municipal por lo que en varias ocasiones la empresa que realiza los trabajos ha quebrado la tubería madre del agua potable y se ha visto interrumpido el servicio. Asimismo, en reunión realizada el 6 de agosto de dos mil diez en la que estuvo presente el encargado del acueducto, el Alcalde Municipal, miembros de la comunidad de Llanos de Santa Lucía, representantes de la Fundación Costa Rica- Canadá, se dieron a conocer las deficiencias en la calidad y cantidad del agua que abastece ese distrito, llegando al acuerdo a que los representantes del proyecto se encargarán de comunicar a los habitantes la necesidad de hervir el agua para el consumo humano durante el tiempo que dure el proceso de construcción, previendo rupturas inesperadas en las tuberías que podrían contaminar el agua. En lo referente a la cantidad de agua se determinó que previo al proyecto ya existían deficiencias en el suministro del agua, y últimamente se ha agudizado. Lo anterior, evidencia que se han presentado desde hace tiempo una serie de deficiencias en la cantidad de agua que reciben los vecinos de la comunidad de Llanos de Santa Lucía, sin que las autoridades de la Municipalidad de Paraíso –administradora del acueducto- hayan llevado acciones concretas para buscar una solución integral a ese problema, el cual se ha agravado con el inicio de la construcción de las obras para mejorar el acueducto de esa comunidad, motivo por el cual en cuanto a ese extremo el recurso debe ser estimado.

VI.- Por otra parte los recurrentes aducen que tienen problemas con la potabilidad de la poca agua que reciben, motivo por el cual el 6 de agosto de dos mil diez, presentaron un denuncia ante el Área Rectora de Salud en cuestión donde aportaron un estudio del Laboratorio Clínico de Cartago Saenz Blanco, el cual determinó que la muestra de agua no llena los requisitos de potabilidad que desde el punto de vista bacteriológico, establecen los Organismos Internacionales de Salud Pública. Al respecto, las autoridades del Instituto Costarricense de Acueductos y Alcantarillado informaron bajo juramento que de conformidad con los análisis microbiológicos se efectuaron en el acueducto de los Llanos de Santa Lucía operado por la Municipalidad de Paraíso del 1 de enero de dos mil cinco al 31 de julio de dos mil diez, el resultado de coniformes/100ML fecales fue negativo. En este sentido, por oficio SUB-G-GSGAM-UPD-DPP-2010-69 del 16 de agosto de dos mil diez, la Dirección de Plantas Potabilizadoras GAM le comunicó al encargado del Acueducto en cuestión que la planta potabilizadora que abastece a las Municipalidades de Cartago y Paraíso cumple con los parámetros establecidos en el Reglamento de Calidad de Agua Potable, Decreto No. 32327-S. Además, en dicho oficio se indica que el 11 de agosto de dos mil diez, se realizó una inspección en la comunidad Llano de Santa Lucía en donde se identificó que de acuerdo con la magnitud de los trabajos y movimientos de tierra observados que se están realizando en las tuberías de distribución de agua, se puede identificar múltiples factores de riesgo o causas probables en la red de distribución que puede contaminar el agua potable, como: tuberías expuestas sin protección; falta de unión rígida (sin uso de pegamento químico) entre las tuberías y accesorios; contacto de tuberías con aguas: negras, grises, pluviales; presencia continua de fugas de agua y ruptura de tuberías; disminución de la presión de las tuberías. En cuanto al análisis realizados por el Laboratorio Clínico Sáenz Blanco de la muestra tomado por la Sra. Torres Brenes y en caso de que se hubiera realizado correctamente los procedimientos de toma de muestra y análisis, es perfectamente posible obtener un resultado de agua no apta para consumo humano, pero como consecuencia de la gestión operativa y los trabajos que se realiza actualmente en el acueducto de la comunidad de Llanos de Santa Lucía y no por responsabilidad del Instituto Costarricense de Acueductos y Alcantarillados. Lo anterior, pone en evidencia que el agua que reciben los recurrentes podría ser no apta para el consumo humano y por tanto no cumple con los criterios de potabilidad que dispone el Reglamento para la calidad del agua potable, Decreto No. 32327-S, hechos que son imputables al administrador del acueducto, es decir, a la Municipalidad de Paraíso a quién la corresponde brindar un servicio público de calidad donde el agua sea potable. Por último, si bien es cierto que la Municipalidad de Paraíso esta abasteciendo a los vecinos de las comunidad en cuestión por medio de un camión cisterna de 10.000 galones de agua que llegan diariamente, eso es un medida temporal, mientras se concluyen las obras para la construcción de canalizador de agua y de un sistema de acueducto municipal, las cuales se deberán de estar concluidas en un plazo razonable. Así las cosas, lo procedente es acoger el presente recurso por violación al derecho a la salud, contra las autoridades de la Municipalidad de Paraíso, con las consecuencias que se detallan en la parte dispositiva de esta sentencia.

Por tanto:

Se declara CON LUGAR el recurso. Se ordena a Marvin Solano Zúñiga, en su condición de Alcalde Municipal y a Damaris Solano Castillo en su calidad de Presidente del Concejo Municipal de Paraíso, o a quiénes en su lugar ocupen esos cargos que de INMEDIATO adopten las medidas necesarias y ejecuten las acciones pertinentes a fin de que se corrijan los problemas y se garantice a los vecinos de la comunidad de Llanos de Santa Lucía de Paraíso de Cartago un suministro continuo y de calidad, a fin de que el agua sea potable. Se les advierte a los recurridos que con base en 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. En cuanto al Instituto Costarricense de Acueductos y Alcantarillados y el Ministerio de Salud se declara sin lugar el recurso. Se condena a la Municipalidad de Paraíso, 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. Notifíquese esta resolución a Marvin Solano Zúñiga, en su condición de Alcalde Municipal y a Damaris Solano Castillo en su calidad de Presidente del Concejo Municipal de Paraíso, o a quiénes en su lugar ocupen esos cargos, EN FORMA PERSONAL. COMUNÍQUESE.- Gilbert Armijo S.

Presidente a.i.

Ernesto Jinesta L.

Fernando Cruz C.

Fernando Castillo V.

Víctor Ardón A.

Doris Arias M.

José Paulino Hernández G.