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Res. 02374-2020 Sala Constitucional · Sala Constitucional · 07/02/2020
OutcomeResultado
The Chamber ordered coordinated measures to eliminate the environmental and public-health risks at Los Pinos Landfill, a final decision by the Environmental Administrative Tribunal, and answers to the requests pending before the municipality and SETENA, but denied the claim concerning the petition already answered by the Ministry of Health.La Sala ordenó medidas coordinadas para eliminar el riesgo ambiental y sanitario del Relleno Los Pinos, una resolución final del Tribunal Ambiental Administrativo y respuesta a las solicitudes pendientes ante la Municipalidad y SETENA, pero rechazó el extremo relativo a la petición ya contestada por el Ministerio de Salud.
SummaryResumen
The Constitutional Chamber partially granted the amparo because of the uncontrolled and irregular activity at Los Pinos Sanitary Landfill, where accumulated solid waste and leachate posed risks to the environment and public health. Finding violations of the rights protected by Articles 21 and 50 of the Constitution, it ordered the Ministry of Health, the Municipality of Cartago, and SETENA to act jointly and in coordination. Within one month, they were required to issue the appropriate health orders and other measures, ensure effective compliance, and report monthly to the Chamber until the landfill matter was finally resolved. The Environmental Administrative Tribunal was also ordered to issue a final decision in its administrative proceeding within two months. Because the municipal council and SETENA had failed to answer pending information requests, the Chamber found a violation of the Article 27 right to petition and receive a prompt response and gave them five days to reply. It denied relief concerning the request submitted to the Ministry of Health because that request had been answered.La Sala Constitucional declaró parcialmente con lugar el amparo por la actividad descontrolada e irregular del Relleno Sanitario Los Pinos, cuyos desechos sólidos y lixiviados representaban un riesgo para el ambiente y la salud pública. Consideró infringidos los derechos protegidos por los artículos 21 y 50 de la Constitución y ordenó al Ministerio de Salud, la Municipalidad de Cartago y SETENA actuar conjunta y coordinadamente para dictar, en un mes, las órdenes sanitarias y demás medidas necesarias, fiscalizar su cumplimiento e informar mensualmente a la Sala mientras se resolviera definitivamente el caso. Asimismo, ordenó al Tribunal Ambiental Administrativo emitir en dos meses la resolución final del procedimiento administrativo. Por violación del derecho de petición y pronta respuesta del artículo 27 constitucional, dispuso que el Concejo Municipal de Cartago y SETENA contestaran en cinco días las solicitudes de información pendientes. Rechazó el amparo respecto de la solicitud dirigida al Ministerio de Salud, que sí había sido atendida.
Key excerptExtracto clave
XVI.—Conclusion. In view of the foregoing, and given that the reported uncontrolled and irregular activity persists—as one of the applicants also alleges in subsequent submissions—the appeal is granted for infringement of the rights protected by Articles 21 and 50 of the Constitution. The municipal and health authorities and SETENA are ordered to issue, jointly and in coordination, the measures appropriate to address the reported problem, whether health orders or any other similar measures intended to eliminate the risk that the accumulation of solid waste on the property identified by the applicants poses to the environment and public health, and to regulate the waste-receiving activity occurring there. The Environmental Administrative Tribunal is ordered to diligently conduct the administrative proceeding, with full respect for the parties’ guarantees and rights but without losing sight of the exceptional nature of the legally protected interests—the environment and public health—adopting the measures permitted by law and reporting its decision to this Chamber. Finally, the appeal is denied regarding the request submitted by applicant [Name 001] to the Ministry of Health, while the constitutional proceeding is granted concerning the requests he submitted to the respondent local government and SETENA, due to their failure to observe the right to petition and receive a prompt response. The appeal is partially granted for infringement of the rights protected by Articles 21, 27, and 50 of the Political Constitution. The following is ordered: (1) Daniel Salas Peraza, as Minister of Health; Rolando Rodríguez Brenes and Teresita Cubero Maroto, respectively as mayor and president of the Council of the Municipality of Cartago; and Cynthia Barzuna Gutiérrez, as secretary general of the National Environmental Technical Secretariat, or whoever holds those offices, shall jointly and in coordination issue, within one month, the health orders and other appropriate measures to remedy the problem reported by the applicants, ensure their effective enforcement, and report monthly to this Chamber on the measures taken until the Los Pinos Sanitary Landfill matter is finally resolved. (2) Marice Navarro Montoya, as president of the Environmental Administrative Tribunal, or whoever holds that office, shall issue the final decision in the administrative proceeding within two months after notice of this judgment and transmit that decision to this Chamber. (3) Teresita Cubero Maroto, as president of the Council of the Municipality of Cartago, and Cynthia Barzuna Gutiérrez, as secretary general of the National Environmental Technical Secretariat, or whoever holds those offices, shall answer within five days after notice of this judgment the requests submitted by applicant [Name 001] on March 6 and 8, 2019.XVI.- Conclusión. En merito de lo expuesto y siendo que persiste la descontrolada e irregular actividad denunciada, pues incluso así lo alega uno de los recurrentes en gestiones posteriores, se declara con lugar el recurso por infracción a los derechos tutelados en los artículos 21 y 50 Constitucional, ordenando a las autoridades municipales, sanitarias y de Setena que deberán emitir de manera conjunta y coordinada los actos que corresponda en atención a la problemática acusada, sean órdenes sanitarias o cualquier otro acto de naturaleza similar tendente a eliminar el riesgo que para el ambiente y la salud pública representa la acumulación de desechos sólidos en el inmueble denunciado por los amparados, así como regular la actividad de acopio que allí se presenta; y al Tribunal Ambiental Administrativo instruir diligentemente el procedimiento administrativo con pleno respeto a las garantías y derechos de las partes pero sin perder de vista la excepcionalidad del bien jurídico tutelado (el medio ambiente y la salud pública), adoptando para ello las medidas que proceda y que el ordenamiento permite; debiendo informar a esta Sala sobre lo resuelto. Por último, se desestima el recurso en cuanto a la gestión presentada por el recurrente [Nombre 001] ante el Ministerio de Salud, mientras que se declara con lugar el proceso constitucional en lo referente a las solicitudes que interpuso en el gobierno local accionado y Setena, por inobservancia al derecho de petición y pronta respuesta. Se declara parcialmente con lugar el recurso, por infracción a los derechos tutelados en los artículos 21, 27 y 50 de la Constitución Política. Se ordena lo siguiente: 1) a Daniel Salas Peraza, en su condición de ministro de Salud, a Rolando Rodríguez Brenes y a Teresita Cubero Maroto, respectivamente, en su condición de alcalde y de presidenta del Concejo, ambos de la Municipalidad de Cartago y a Cynthia Barzuna Gutiérrez, en su condición de secretaria general de la Secretaría Técnica Nacional Ambiental, o a quienes en sus lugares ocupen esos cargos, emitir de manera conjunta y coordinada, dentro del plazo de un mes, las órdenes sanitarias y los demás actos que corresponda, a fin de solventar la problemática denunciada por los recurrentes, así como velar por el efectivo cumplimiento de éstos, debiendo informar a esta Sala cada mes sobre lo actuado en tanto se resuelva definitivamente el caso del Relleno Sanitario Los Pinos. 2) a Marice Navarro Montoya, en su condición de presidenta del Tribunal Ambiental Administrativo o a quien en su lugar ocupe ese cargo, emitir, dentro del plazo de dos meses, contado a partir de la notificación de esta sentencia, la resolución final del procedimiento administrativo y remitir a esta Sala ese pronunciamiento. 3) a Teresita Cubero Maroto, en su condición de presidenta del Concejo de la Municipalidad de Cartago y a Cynthia Barzuna Gutiérrez, en su condición de secretaria general de la Secretaría Técnica Nacional Ambiental, o a quienes en su lugar ocupen esos cargos, que en el plazo de cinco días, contado a partir de la notificación de esta sentencia, le contesten al amparado [Nombre 001] las gestiones que presentó el 06 y 08 de marzo de 2019.
Pull quotesCitas destacadas
"La licencia de la viabilidad ambiental es un requisito para la obtención de los posteriores permisos de construcción y funcionamiento de un relleno sanitario."
"Environmental viability approval is a prerequisite for obtaining the subsequent permits to construct and operate a sanitary landfill."
Informe de SETENA
"La licencia de la viabilidad ambiental es un requisito para la obtención de los posteriores permisos de construcción y funcionamiento de un relleno sanitario."
Informe de SETENA
"La Administración siempre está obligada a comunicarle a la persona solicitante las causas de la demora en pronunciarse."
"The Administration is always required to inform the requesting person of the reasons for any delay in issuing a response."
Consideración sobre el derecho de petición
"La Administración siempre está obligada a comunicarle a la persona solicitante las causas de la demora en pronunciarse."
Consideración sobre el derecho de petición
"En asuntos ambientales, es criterio del suscrito, que si ya ha habido intervención de la Administración Pública, su conocimiento y resolución corresponde a la jurisdicción contenciosa administrativa."
"In environmental matters, it is the undersigned justice’s view that, when the Public Administration has already intervened, jurisdiction to hear and decide the matter lies with the administrative courts."
Nota del magistrado Salazar Alvarado
"En asuntos ambientales, es criterio del suscrito, que si ya ha habido intervención de la Administración Pública, su conocimiento y resolución corresponde a la jurisdicción contenciosa administrativa."
Nota del magistrado Salazar Alvarado
"No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política)."
"Nevertheless, I do examine the merits when other rights of persons affected by the source of pollution are at stake, including health, quality of life, and the right to enjoy a healthy environment free from pollution under Article 50 of the Political Constitution."
Nota del magistrado Salazar Alvarado
"No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política)."
Nota del magistrado Salazar Alvarado
Full documentDocumento completo
*190051990007CO* CONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at nine thirty hours on the seventh of February, two thousand twenty.
Applications for amparo relief (recursos de amparo) filed by [Nombre 001], of legal age, married, identity card No. [Valor 001], and [Nombre 002], a senior citizen, divorced, identity card No. [Valor 002], against the Mayor and the President of the Council, both of the Municipalidad de Cartago, the Secretary General of the Secretaría Técnica Nacional Ambiental, the Minister of Health, the Regional Director of the Central Eastern Health Governing Office of the Ministry of Health, and the President of the Tribunal Ambiental Administrativo.
Findings:
He considers that there is an evident failure to act and make decisions on the one hand, and complicity on the part of the administrative bodies that are likewise competent to oversee the activity. In light of all the foregoing, he considers his fundamental rights to have been violated. He requests that the petition be granted, with all attendant consequences.
“1. ... the Los Pinos dump is located in the community of Navarro, in the district of Dulce Nombre de Cartago, and receives solid waste from the municipalities of El Guarco, Paraíso and Oreamuno; despite openly knowing the precarious conditions under which that dump operates, those municipalities have taken no action to prevent its continued operation, thereby creating major sources of environmental pollution. He adds that although the dump’s useful life has expired, the operating site has continued to expand without environmental feasibility (viabilidad ambiental). He states that waste is deposited at the top of the dump, such that leachate (lixiviados) also flows freely toward the portion of the dump located on land belonging to the Municipality [sic] of Cartago. This is despite the absence of conclusive studies scientifically demonstrating that the dump still has the capacity to receive that quantity of waste.” “3.
The Municipalidad de Cartago, the Dirección Regional de Salud de Cartago and the Secretaría Técnica Nacional Ambiental have failed to oversee the activity carried out at the Los Pinos dump, because from outside the dump it is possible to see leachate flowing down the slopes toward the Agua Caliente and Navarro rivers, whose waters flow into the Cachí dam, causing environmental harm not only at the site where this waste is deposited [sic], but also to downstream residents who, in one way or another, work along the banks of these rivers and at that dam.” It is not true that SETENA conducts no oversight, understood in terms of the function of this Secretaría, which includes the monitoring phase (Fase de Seguimiento) within the environmental impact assessment process (Evaluación de Impacto Ambiental); that function differs from the authority held by the Ministerio de Salud over sanitary landfills (Rellenos Sanitarios) under specific regulations.
In this regard, SETENA processes applications for environmental feasibility in accordance with Article 17 of Ley Orgánica del Ambiente 7554. An environmental feasibility license (licencia de la viabilidad ambiental) is a requirement for subsequently obtaining permits to construct and operate a sanitary landfill; therefore, neither operation of the sanitary landfill nor operation of the Wastewater Treatment Plant (Planta de Tratamiento de Aguas Residuales, PTAR) falls entirely within the authority of this Secretaría, since both are subject to the specifications and regulations of the Ministerio de Salud. SETENA verifies the measures established in the Management Plan (Plan de Gestión) to mitigate the environmental impacts caused by the construction and operation of the sanitary landfill.
The allegation is not true because, as part of the project’s environmental monitoring (Seguimiento Ambiental), SETENA recently conducted a field inspection on 9 de octubre de 2018, for which an inspection report was prepared and appears at folios 1723 through 1727 of volume VI. That field inspection identified a series of possible environmental violations; consequently, from the time of the inspection to the present, this Secretaría has been investigating the facts, as well as a series of possible inconsistencies between what was observed and what appears in the expediente.
Fact 2: “Subsequently, on 8 de marzo de 2019, he submitted a new request for information to the Secretaría Técnica Nacional Ambiental, asking to be informed of the following… Nevertheless, despite the time that has elapsed, he has not received the requested information either.” Partially true. The record contains only the request dated 8 de marzo del 2019, under consecutive number 01996-ASA, because the statement that a new request was submitted to SETENA appears to imply that another request remains pending, which is not true. With respect to its handling, this Secretaría responded to Mr. [Nombre 001] by official letter (oficio) SETENA-DT-ASA-0398-2019 (notified 3 de abril del 2019), which appears in the administrative expediente, volume VI, folios 1752 through 1753. Regarding Mr. [Nombre 009]’s specific questions, the aforementioned official letter states:
“As reflected in the administrative expediente, the submission bearing consecutive number 01996-ASA consists of a large number of questions (24), which, due to their complexity and the type of information requested, this Secretaría cannot answer immediately. For that reason, you are advised through this official letter that, from the time the Departamento de Auditoría y Seguimiento Ambiental received your request to the present, we have been gathering the information you requested. In addition, it is important to mention that some of the requested information either does not fall within the authority of this Secretaría or is not contained in the expediente; accordingly, it will be requested from the relevant institution or institutions or persons. It is clarified that, with knowledge of the expediente number, location and project name, any inhabitant of the Republic has access to the information contained in each administrative expediente, which may be obtained or requested from the institutional archive, where copies of the documents of interest may be requested...” Fact No. 4:
“…He emphasizes that, since the useful life of the dump in question had expired, the company WPP decided to expand the dump onto adjacent land that it purchased, without technical studies or environmental feasibility, with the aggravating circumstance that the Dirección Regional de Salud de Cartago rushed to grant a permit allowing operations to continue at the site without technical studies supporting the continuation of those operations. He adds that the cells and treatment plant are located within the dump, while the work area is outside that property, without a plant for treating leachate, a cell that makes the soil impermeable, or a pipeline network leading to a treatment plant.” According to administrative expediente [Valor 007]-SETENA, the Municipalidad de Cartago applied to the Ministerio de Salud for an extension; this was confirmed by both WPP and Ministerio de Salud officials during the inspection of 9 de octubre de 2018. However, the SETENA expediente contains no record that the Ministerio de Salud, the Municipality or the developer informed this Secretaría that the extension had been granted or provided it with any other technical element relevant to SETENA.
Regarding the possible expansion of the project, as well as other areas near the project area, an alert concerning that situation has been received. Accordingly, the matter is undergoing an investigation and a review of the entire administrative expediente held by SETENA, the gathering of evidence, and the analysis of plans in order to determine the matters cited above.
In addition, it is important to mention that SETENA has authority only over work performed or to be performed within the area of the evaluated project or within the area granted environmental feasibility. Work performed at sites, in areas, or under plans that do not correspond to the previously evaluated project area falls within the authority of the Tribunal Ambiental Administrativo, which will determine whether environmental damage exists.
Furthermore, through official letter SETENA-SG-1575-2018, folios 1662-1664, volume V, and in accordance with Resolution N° 1955-2016-SETENA, this Secretaría determined that: “the project has carried out work in areas that lack environmental feasibility and, therefore, it is appropriate to file a complaint with the Tribunal Ambiental Administrativo so that it may oversee the work performed (…).” FACT No. 5: “Moreover, the technical closure (cierre técnico) of the site, which should have closed on 12 de junio de 2018, has not even begun.” In this regard, it is reported that the digital database of this Secretaría contains no registered project named “Vertedero Navarro” matching the expediente number indicated. Vertedero Navarro existed physically but not in SETENA’s records; however, its closure was what was undertaken at the time when the environmental license (VLA) was granted for the project under expediente [Valor 007] -SETENA, named Cierre Técnico del Vertedero Navarro y Construcción del Relleno Sanitario Los Pinos. It is therefore clarified that, in the matter before us, what was submitted to SETENA, granted a VLA, and remains in an environmental management phase (Gestión ambiental) is a sanitary landfill, not a dump, as has been repeatedly stated.
In addition, it is indicated that, pursuant to Ley Orgánica del Ambiente, ley No. 7554, Article 21, and D.E. 31849-MINAE-SALUD-MOPT-MAG-MEIC, Reglamento General sobre los procedimientos de Evaluación de Impacto Ambiental (EIA), dated 28 de junio del 2004, Article 90, technical closure constitutes a final act of the project’s construction or operational stage (or both), through which the project developer demonstrates to SETENA that the environmental commitments (compromisos ambientales) have been fulfilled. In the matter before us, the project named Cierre Técnico del Vertedero Navarro y Construcción del Relleno Sanitario Los Pinos, administrative expediente [Valor 007], is an active expediente with a valid VLA and is currently in operation or in the environmental management phase.
Stated differently and by way of conclusion, the project at issue, which is a sanitary landfill and not a dump, is not subject to technical closure because, by its nature, it is in an environmental management phase that may extend for up to 15 years after it ceases receiving waste. Once that stage or period has ended, provided that the project has fulfilled all environmental commitments undertaken during both the environmental assessment and monitoring processes, it may apply to SETENA for technical closure of the project. Still in connection with the foregoing, it is important to clarify that SETENA’s technical closure is very different from the Ministerio de Salud’s technical closure and from any other process at the municipal level.
Fact 6.
“Moreover, the angles of the slopes (taludes) and the amount of liquid contained in the accumulated mass are critical to ensuring stability and preventing or mitigating the risks of landslides and avalanches reaching surrounding areas, since they do not fall within the parameters required by the Sanitary Landfill Regulations (Reglamento de Rellenos Sanitarios), especially because the slopes were sealed with soil, which contravenes the applicable legal provisions.” Regarding the slopes of the cells (celdas) and the characteristics that they have and must have under the regulations currently in force and applicable, as a result of the field inspection conducted on October 9, 2018, this Secretariat is reviewing both the case file and the observations made in the field. As part of that process, SETENA will, in due course, request a specific technical opinion from the entity responsible for overseeing the Landfill’s operation, the Ministry of Health, as well as from the project Developer.
Upon completion of that process, this Secretariat, acting within the scope of its authority, will request whatever action is technically and legally appropriate. Fact 7. “Furthermore, because the methane gas generated is not treated, the community is harmed.” Regarding gas emissions (emanaciones de gas), consistent with the observations made during the field inspection of October 9, 2018, the Sanitary Landfill has a series of vents (chimeneas), most of which were operating or lit and burning methane gas. This was identified as the procedure for treating that gas and therefore should not cause any significant adverse effects on any community. Moreover, it is important for the petitioner to clarify the specific treatment to which he refers, since, according to both the observations made and the information in the case file, that gas is in fact treated by means of the lit vents installed in several areas of the landfill.
Likewise, there is no evidence in the case file that the community is being adversely affected by emissions specifically from this gas; this must be demonstrated before this Secretariat so that it may proceed as technically and legally appropriate. Fact 8. “Furthermore, because the dumping site has only one pretreatment lagoon, these ‘liquid mixtures’ flow directly into a river near the site.” In this regard, it should be clarified that what the petitioner mentions is leachate (lixiviados), which is transported to a Wastewater Treatment Plant (Planta de tratamiento de Aguas Residuales, PTAR) that appears to operate adequately for the amount of leachate produced by the sanitary landfill. It is important to clarify once again that the operation of both the Landfill and the PTAR falls within the authority of the Ministry of Health. Moreover, it is clarified that there is no facility of the type the petitioner describes as a “pretreatment lagoon,” but rather a PTAR, which reduces the pollutant load (carga de contaminantes) to the minimum range required for discharge (desfogue) into a natural water source; responsibility for both monitoring that pollutant load and its discharge rests with the developer and the Ministry of Health.
The discharge, moreover, is approved by another authority, the Water Directorate of MINAE. Fact 9. “He believes that there is an evident failure to act and make decisions, on the one hand, and complicity on the part of the administrative bodies that are likewise competent to oversee the activity.” Within the scope of its technical and legal authority, this Secretariat has conducted an environmental monitoring (seguimiento ambiental) process for the project. It should be noted, however, that because of the project’s characteristics, its age, the complexity of its technical and environmental implications, and the involvement of multiple government institutions in its management, resolving and improving the matter before us has taken somewhat longer than expected….” It requests that the appeal be denied.
Its purpose is to prevent and avoid harm to health and the environment, especially from contamination of bodies of water, soils, and the atmosphere, and to protect the population by preventing the spread of arthropods, carrion birds, and rodents, which are harmful agents to health. (…). p) Useful Life of the Sanitary Landfill (Vida Útil del Relleno Sanitario): Estimated period of time required to completely fill all cells (celdas) with waste, including their final configuration in accordance with the design criteria contained in the respective design report and the other requirements established in these regulations.” (Emphasis not in the original). The sole purpose of quoting the three preceding concepts verbatim is to allow them to be understood comprehensively and harmoniously; that is, to ensure that they are considered together rather than separately or independently. Accordingly, having completed the foregoing exercise, it is appropriate to discuss several key aspects of the three definitions just quoted.
First, with respect to the concept of “Cell,” it is absolutely clear that it refers to the essential component of a sanitary landfill (relleno sanitario), since it is its most basic structure, specifically intended for the deposit of ordinary solid waste (residuos sólidos ordinarios), together with the cover material (material de cobertura) used and the corresponding compaction (compactación) of that mixture. In other words, the cells are where the sanitary-landfill technique for the proper management of ordinary solid waste produced by a given population is put into practice. Second, continuing with the concept of “Sanitary Landfill,” this confirms what was just stated in the preceding two paragraphs, namely, that sanitary-landfill cells constitute the core of their operation. In other words, cells are a sine qua non requirement for the development of a sanitary landfill. Finally, the concept of “Useful Life” is crucial to the matter under discussion here, since it refers to the period during which a sanitary landfill must remain in operation.
From the definition of the useful life of a sanitary landfill, it can initially be seen that it is closely linked to the concept of landfill cells. The relationship is so direct and determinative that the useful life of a sanitary landfill is nothing more than the time it takes for all the landfill’s cells to be used. In other words, the rate at which the cells are filled with ordinary solid waste and compaction material (material compactador) will determine the length of a sanitary landfill’s useful life. The definition of useful life also shows that it is, to some extent, subject to the estimates presented in the preliminary designs. That is, a sanitary landfill is designed by taking into account the number of cells it will have and their volumetric capacity (capacidad volumétrica), and those data are then used to estimate how long it will take to fill all the cells completely. This last point is key: a sanitary landfill is designed and operated on the premise that all of its constructed cells will be filled completely.
Failure to do so jeopardizes the achievement of the proposed environmental objectives and the landfill’s proper operation, because if its full capacity is not used, the calculations and projections made during the design stage—which contemplate the use of 100% of the cells—would change as a result of modifying the operating parameters. Likewise, based once again on the definition of “Useful Life,” it is clear that the Reglamento Sobre Rellenos Sanitarios requires a sanitary-landfill project to be used at 100% capacity, and not at a lower percentage. Thus, closing a sanitary landfill before it reaches 100% would be openly contrary to those regulations. To further emphasize the preceding point, it is appropriate to examine other sections of those regulations showing that they require and contemplate that sanitary landfills be operated by making use of the landfill’s entire projected useful life and using 100% of its cells.
For example, Article 12 of the regulations in question states: “For the processing of construction plans (planos constructivos), the provisions of Decreto Ejecutivo Nº 36550-MP-MIVAH-S-MEIC ‘Reglamento Para El Trámite De Revisión De Los Planos Para La Construcción,’ published in the Official Gazette ‘La Gaceta’ on 17 de junio de 2011, must be complied with. The design report (memoria de diseño) and the operation and maintenance manual (manual de operación y mantenimiento) must be submitted together with the construction plans. (…) b. The design report for a sanitary landfill must contain the following: (…) 3. Estimate of volumetric capacity. 4. Estimate of the landfill’s useful life. (…). c. The operation and maintenance manual for a sanitary landfill must contain the following: (…). 3. Progress schedule in relation to its useful life.” (Emphasis not in the original). The quoted portions of Article 12 provide a broader and more complete understanding of the great significance that elements such as volumetric capacity (directly related to the individual capacity of the landfill’s cells) and useful life have for the design of a project of this nature.
As can be seen from the article just quoted, all information related to these two elements (volumetric capacity and useful life) is required as part of the process for developing a sanitary landfill. It was on the basis of the calculations duly submitted that the Ministerio de Salud granted the landfill its sanitary operating permit (permiso sanitario de funcionamiento), and that permit has continued to be extended through the latest date granted in the year 2023. Therefore, those calculations, which logically assumed that the landfill would be filled to its maximum capacity, must be honored. In view of the foregoing, irrespective of the petitioner’s complaints against the respondent authorities, what we wish to make clear—and respectfully request that this Chamber consider—is that the Los Pinos sanitary landfill is a single project that uses both public property and private property. That design was imposed by the bidding specifications (cartel de licitación) for the procurement process through which we were retained, and it arose from the fact that, many years ago, the public property was nothing more than a dump that had to be converted, and additional contiguous land (the private property) was essential in order to accomplish that purpose.
Accordingly, the problems with the landfill’s operation began when the Municipalidad refused to continue receiving waste on the property it owns, thereby affecting the project’s original calculations and designs; and, worse still, after it drilled several boreholes without any type of permit or authorization and without informing anyone beforehand. It is no coincidence that the date on which the amparo proceeding (recurso de amparo) was filed is virtually the same as the date on which the Municipalidad drilled those boreholes. We hereby inform this Chamber of all the foregoing, expressly requesting that we henceforth be recognized as interested third parties (terceras interesadas) and notified of every decision issued. We likewise request that this proceeding be linked in the Poder Judicial’s online case-management system to the user corresponding to corporate identification number 3-101-155289 (of WPP Continental de Costa Rica S.A.)”.
Furthermore, an interlocutory precautionary measure (medida cautelar intraprocesal) was filed within the merits proceeding (proceso de conocimiento), in which judgment N°1097-2019-T was issued at sixteen hours and fifteen minutes on veintiséis de junio del año dos mil diecinueve, the operative portion of which states: “POR TANTO. Both requests for precautionary measures filed by WPP CONTINENTAL DE COSTA RICA S.A. AND WPP CORICLEAN LOS PINOS WASTE DISPOSAL S.A. against the MUNICIPALIDAD DE CARTAGO are REJECTED. NOTICE SHALL BE SERVED.- Licda. Fabiola Mata Montenegro. Judge. FMATA”.
· It is hereby clarified that the status of the merits proceeding has changed since the report submitted on 18 de junio del año 2019, because the main case file is now awaiting the preliminary hearing (audiencia preliminar), which was scheduled for thirteen hours and thirty minutes on catorce de agosto del año dos mil diecinueve. CONCLUSION: I hereby submit the requested supplemental report as instructed.”
The documents state as follows: “Cartago, 03 de Mayo del 2019. CE-URS-0213-2019. Dr. Oscar Bermúdez García. Regional Director. Región Central Este. SUBJECT: Response to the request made in Expediente 19-005199-0007-CO of the Sala Constitucional, Los Pinos sanitary landfill (relleno sanitario) case. Dear Doctor: In this regard, I report solely on item 3 requested of this Ministry, concerning the material used to cover the waste, the impact on the community from possible methane gas emissions, and whether the leachate (lixiviados) is being adequately treated. The site inspection was conducted in the company of Eng. Franklin Obregón Zamora, an employee of Empresa WPP Continental de Costa Rica, who granted permission to enter the sanitary landfill project. Also accompanied by Lic. Fiorella Aragón Leandro, an employee of the Área Rectora de Salud de Cartago, the following was verified: a- The cover material was observed piled near the project’s operating area, and its characteristics comply with point f, article 20, chapter IV of the Reglamento de Rellenos Sanitarios; photographs are attached as evidence. b- Regarding possible methane gas emissions, this Ministry currently lacks the instruments necessary to perform such monitoring, assuming such emissions exist, since the reference is to possible emissions. c- No leachate spills were observed at the toes of the slopes or on the access roads in the lower areas of the sanitary landfill.” Another pleading (libelo) also states as follows: “In view of the decision issued by the Sala Constitucional De La Corte Suprema De Justicia on veintiséis de abril del dos mil diecinueve at catorce horas y cuarenta minutos, a timely and proper response is hereby provided in the same order in which the questions were raised by the petitioner: Regarding item 3), requesting that the appropriate measures be taken to conduct an inspection of the aforementioned sanitary landfill and determine whether appropriate fill material is being used to cover the waste, whether the community is being affected by possible methane gas emissions, and whether the leachate is being adequately treated.
In this regard, an on-site inspection was coordinated, as recorded in Official Letter N° CEURS-0213-2019, dated 03 de mayo del 2019, which is attached in order to respond to and comply with the present requirement. (See folio (folio) 00001, front). Through that inspection, the following was confirmed: a) The cover material was observed piled near the project’s operating area, and its characteristics comply with point f, article 20, chapter IV of the Reglamento de Rellenos Sanitarios; photographs are attached as evidence. b) Regarding possible methane gas emissions, this Ministry currently lacks the instruments necessary to perform such monitoring. c) No leachate spills are evident at the toes of the slopes or on the access roads in the lower areas of the sanitary landfill.” A document is attached stating as follows: “Subject: Inspection of the Relleno Sanitario Los Pinos in response to the Sala Constitucional de La Corte Suprema de Justicia, expediente 19-0051990007-CO.
In response to the aforementioned matter, an inspection was conducted at the Relleno Sanitario Los Pinos, located in Cartago, cantón Central, distrito Dulce Nombre, on 11 de junio del 2019 at 9:00 am. The visit was conducted by officials Ing. Jesús Zamora and lng. Nelson Artavia of the Unidad de Rectoría de la Salud, and MSC. Fiorella Aragón Leandro of the Área Rectora de Salud de Cartago.
BACKGROUND • On 08 de julio de 2019, a constitutional rights action (recurso de amparo), expediente 19-005199-0007-CO, was received, requesting clarification of the following information within five days: ‘an inspection be conducted at the sanitary landfill to determine whether appropriate fill material is being used to cover the waste, whether the community is being affected by possible methane gas emissions, and whether the leachate is being adequately treated, as legally and regulatorily established in this regard. (...) In addition, the requested information must be specified separately with respect to the landfill located on the municipal property and the landfill operating on the private property; that is, it must be provided specifically for each sector individually.’ • Through report CE-URS-021 3-2019, prepared by Arq. Rafael Solano Quirós in response to the aforementioned expediente 19-005199-0007-CO, the three matters described in the constitutional rights action were addressed, establishing that this situation had already been handled in the first instance on 03 de mayo de 2019, when requested by the Sala Constitucional.
SITUATION FOUND Upon arriving as officials of the Ministerio de Salud, we were received by Ing. Franklin Obregón Zamora, an employee of WPP Continental de Costa Rica responsible for site operations, who accompanied us at all times throughout the complete tour of the landfill facilities. All facilities and systems used for the proper management of waste materials were inspected. At the request of the management of the Región Central Este, important operational matters were examined both in the WPP area and in the area owned by the Municipalidad de Cartago. Those matters concern:
• Fill material used to cover the waste.
• Possible impact from methane gas emissions.
• Verification of leachate treatment.
It should be noted that, due to contractual conditions, the area belonging to the Municipalidad de Cartago has not been used for a period exceeding 12 months. The company has therefore limited itself to performing minor maintenance work on that land, leaving only the area owned by the private company in operation. Accordingly, this is the only area currently in operation (Photographs #1. #2. #3 and #4).
Area of WPP Continental de Costa Rica.
• Fill material used to cover the waste.
Ing. Obregón stated that the process of receiving, spreading, and compacting the waste material is performed from Monday through Saturday. Once the weekly work period ends (on Saturdays), a layer of organic and clay soil is applied, which is free of stones and organic material. This cover material is piled in a specific area within the property, at a usage rate of 200 m3 per week. This material comes from donors in the surrounding area and is inspected by Ing. Obregón to verify compliance with the required physical conditions before it is received. A brown clay material was observed that is easy to handle under controlled moist conditions. (Photographs #5). This material complies with the provisions of the Reglamento sobre Rellenos Sanitarios N° 38928-S, chapter IV, article 20, subsection f), concerning coverage of the material.
Furthermore, during nighttime hours on weekdays (Monday through Saturday), a high-density polyethylene mesh (sarán) is installed, which has the characteristic of maintaining 20% shade over the covered area. This material is removed every morning when operations begin and replaced once receipt of material at the sanitary landfill closes. This material does not comply with the provisions of the Reglamento sobre Rellenos Sanitarios N° 38928-S, chapter IV, article 20, subsection f), concerning coverage of the material because, due to its low permeability rating, it does not isolate the waste in a manner that prevents emissions of biogas (biogás) and odors or the entry of rainwater into the working cell (celda de trabajo). (Photographs #6).
• Possible impact from methane gas emissions.
The methane gas generated by the piled material is channeled to vents (chimeneas) located at various points throughout all the cells, including both the inactive areas and the cell currently in use. It was observed that all the vents were burning this gas. Upon approaching them, a slight methane gas odor was detected, which is inherent in the processing and disposal of fill materials. It is important to note that at no time were methane gas odors detected outside the sanitary landfill, in the truck-washing area, or in the company’s administrative offices located on the northeastern side of the property. (Photographs #8).
• Verification of leachate treatment.
Proper management was observed through channeling and collection systems monitored by inspection chambers (cajas de registro), both for the cells in use and for the closed cells. The collected liquids subsequently pass to the treatment plant located on the property of the Municipalidad de Cartago. (Photographs #10. #11 and #12). Proper separation between the stormwater channels and the internal leachate conduits was observed, as was ongoing maintenance.
Based on the semiannual operational reports (reportes operacionales) and physicochemical laboratory analyses (análisis físico-químicos de laboratorio) submitted by the company, the most recent dated 14 de febrero of this year, compliance with all discharge parameters (parámetros de vertido) established by decreto N° 33601 is demonstrated. The company has assigned a full-time operator responsible for routine measurements, maintenance, collection and disposal of the sludge (lodos) generated, and completion of the logbook (bitácora), as established by the Reglamento de vertido y Reuso de Aguas Residuales. The system was observed to be operating properly, with no noticeable foul odors, spills, or structural problems in the tanks. Municipalidad de Cartago Area. • Fill material (material de relleno) used to cover the waste. As previously mentioned, the Municipalidad de Cartago properties remain out of operation and are not receiving new waste materials; accordingly, the site has been inactive for more than 12 months.
According to Ing. Obregón, when work on these cells (celdas) was completed, the respective layers of clay soil were placed to cover the materials received as of that date, with an intermediate cover (cobertura intermedia) 30 cm thick (Photographs #7). When the operating process was discontinued, without the capacity of the cells having been filled and the receipt of materials having been completed, the corresponding work required for compliance with the Reglamento sobre Rellenos Sanitarios N" 38928-S, chapter IV, article 20, subsections g) and i), was not performed. Those provisions establish, respectively, a hydraulic conductivity coefficient (coeficiente de conductividad hidráulica) of no more than 10-4 cm/s and a 60 cm-thick impermeable soil cover, with another 20 cm layer of topsoil having a slope of no less than 2% on the upper surface. Furthermore, because continuous maintenance is not provided, exposed waste material and vegetation are present.
The vegetation is developing its own roots, which are liable to penetrate the area containing waste material placed in the cells, affect slope stability (estabilidad de los taludes), and invade the stormwater systems (sistemas pluviales); consequently, the requirements of the Reglamento sobre Rellenos Sanitarios N° 38928-S, chapter IV, article 20, subsection j), are not met. - Possible impact from methane gas emissions (emanaciones de gas metano). The methane gas generated by the piled material is channeled to vents (chimeneas) located at different points throughout all the cells, both in the inactive areas and in the cell currently in use. It was confirmed that all the vents are burning this gas. Upon approaching them, a slight methane gas odor was detected, as is inherent in the processing and disposal of the fill materials. It is important to note that at no time were methane gas odors detected outside the sanitary landfill (relleno sanitario), in the truck-washing area, or in the company’s administrative offices located on the northeastern side of the property.
Because the cells have not received material for a longer period, a smaller amount of methane gas can be seen being released into the atmosphere than from the active cells on WPP’s property. (Photographs #9). • Verification of leachate treatment (tratamiento de los lixiviados). Appropriate management was observed through channeling and collection systems, monitored by inspection boxes (cajas de registro) for control purposes, for both the cells in use and the closed cells. The collected liquids subsequently pass to the treatment plant located on the Municipalidad de Cartago property (Photographs #10, #11 and #12). Adequate separation of the stormwater channels and internal leachate conduits was observed, as was ongoing maintenance. Based on the semiannual operational reports and physicochemical laboratory analyses submitted by WPP, the most recent dated 14 de febrero of this year, compliance with all discharge parameters established by decreto N° 33601 is demonstrated.
WPP has assigned a full-time operator responsible for routine measurements, maintenance, collection and disposal of the sludge generated, and completion of the logbook, as established by the Reglamento de Vertido y Reuso de Aguas Residuales. The system was observed to be operating properly, with no noticeable foul odors, spills, or structural problems in the tanks. LEGAL BASIS. (…) CONCLUSIONS. 1. The material used by WPP as cover at the end of the week in the cells located on its property complies with decreto N° 38924; however, the material used daily, consisting of 20% sarán mesh (sarán al 20%) used as cover during the night, does not comply with article 20, subsection f), of the Reglamento de Rellenos Sanitarios. 2. The property owned by the Municipalidad de Cartago shows a lack of maintenance and work on the cell covers; consequently, it does not comply with article 20, subsections g), i), and j), of the Reglamento de Rellenos Sanitarios. 3.
The methane gas generated in all cells of the sanitary landfill, including those on WPP’s property and those on the Municipalidad de Cartago property, is being captured through piping and burned in vents located throughout the site. Accordingly, during the inspection conducted, no impact on neighboring communities from methane gas emissions was found. Additionally, as of this date, no complaints concerning this type of impact have been filed with Área Rectora de Cartago; on the municipal property and on WPP’s property, they are being properly conveyed to the same wastewater treatment plant (planta de tratamiento de aguas residuales), located on municipal property. The wastewater treatment plant is operating adequately and is subject to daily maintenance and monitoring by WPP; based on the operational reports, it complies with all discharge parameters established under the legislation in force.
RECOMMENDATIONS. 1. Inform Sala Constitucional of the results of the sanitary inspection (inspección sanitaria) conducted on jueves 11 de julio and of the professional opinion set forth in this technical report. 2. Área Rectora de Salud Cartago should issue a sanitary order (orden sanitaria) to WPP requiring it, within 5 business days and on a permanent basis, to use daily cover material that complies with article 20, subsection f), of the Reglamento sobre Rellenos Sanitarios, decreto ejecutivo N°38928-S”.
It states that, in the case of the Los Pinos Sanitary Landfill (Relleno Sanitario Los Pinos), “the last study conducted on that matter was in 2015”… This is not true, since technical report N° CE-URS-0430-2018 dated July 12, 2018, and technical report N° CE-ARSC-R-0096-2019 dated January 29, 2019, document the reviews and approvals of the project plans through the CFIA digital platform; in addition, the record shows that the proper operation of the Los Pinos Sanitary Landfill has continued to be monitored, including on recent dates…” It adds that: “… Accordingly, this Ministerial Office considers that the appellant’s allegations are inconsistent with the technical reports and the repeated visits made by the Local Health Authority to the sanitary landfill. It should be noted that the Sanitary Landfill is located on two adjoining properties, one belonging to the Municipalidad de Cartago and the other to WPP Continental Costa Rica S.A., which entered into a contract for the operation and final disposal (disposición final) of waste.
A treatment plant was built to serve the entire landfill, including both properties. The precise conflict at issue is that the Municipalidad de Cartago does not allow the company in question to enter and carry out maintenance work and final waste disposal in the portion of the landfill located on the Municipality’s registered property, whereas the Health Authority has found no health-related problems on the aforementioned company’s property. Consequently, we will take the appropriate measures, and it has been demonstrated that the appellant’s allegations are inconsistent with reality. On the contrary, there appears to be a civil dispute between the Municipalidad de Cartago and WPF Continental Costa Rica S.A., which currently manages final waste disposal in the city of Cartago; this dispute will have to be heard before other authorities and not before the Ministerio de Salud. THIRD: As may be seen from the report at issue, with regard to the matter giving rise to this constitutional protection appeal (Recurso de Amparo), there appears to be a civil disagreement between the Municipalidad de Cartago and the companies WPP Continental de Costa Rica S.A. and WPF Coriclean Los Pinos Waste Disponsal S.A., which should not be resolved through administrative proceedings (Instancia Administrativa), but rather by the ordinary courts, since the Ministerio de Salud is responsible solely for safeguarding the protection and health of the population throughout the National Territory; moreover, the allegations have not been substantiated.” It requests that the appeal be denied.
Before ruling on the merits of the Motion for Absolute Nullity of the Proceedings and Recusal of Officials (Incidente de Nulidad Absoluta de las Actuaciones y Recusación de Funcionarios), the public officials of this Tribunal, Licda. María Julia Alvarado Rojas and Máster Gabriela Nájera Ocampo, are instructed not to process the case file in question or issue the corresponding report until a decision is issued ruling on the merits of the arguments submitted by the party.” Appearing at folios 154 and 155 of the administrative case file. TWELFTH: The certification issued by the Alcalde de Cartago, appearing at folios 156 through 171 of the administrative case file, states: “I supplement the complaint that I filed in these proceedings by indicating that the Tribunal Contencioso Administrativo y Civil de Hacienda ruled against the precautionary measure (medida cautelar) sought by the holder of the health permit, namely, WPP CONTINENTAL DE COSTA RICA, as evidenced by the certification of decision No. 646-2018-T, issued at 13:05 hours on 19 de noviembre del 2018 (...)”.
Attached are a certification of the legal entity identification number (cédula jurídica) of the Municipalidad de Cartago, as well as a certification from the Tribunal Contencioso Administrativo y Civil de Hacienda of decision No. 646-2018-T, issued at 13:05 hours on 19 de noviembre del 2018. THIRTEENTH: By resolution number 1363-18-TAA, issued at ten hours and fifty minutes on doce de diciembre del año dos mil dieciocho, this Office ruled as follows: “(...) FIRST: By virtue of the provisions set forth in the Recitals (Considerandos) of this Resolution, and under the terms established therein, the ‘motion for absolute nullity of proceedings and recusal of officials’ received by this Tribunal on 14 de noviembre de 2018, appearing at folios 104 through 106 of the case file, is declared inadmissible. SECOND: The Tribunal officials M.Sc. Gabriela Nájera Ocampo and Licda. María Julia Alvarado Rojas are authorized to resume participation in this case if required by any member of this Tribunal’s Judiciary; Oficio N° 707-18-TAA shall cease to have effect, and they may proceed to provide the report concerning the inspection in which they participated in the performance of their duties at the Tribunal.
THIRD: Under the terms set forth in the Tenth Recital (Considerando Décimo) of this Resolution, the request for a new inspection with the participation of the Judiciary is denied for the time being, without prejudice to any subsequent determination by this Office. (...)”. The foregoing appears at folios 172 through 202 of the case file in question. FOURTEENTH: Official letter TAA-DT-004-19, signed by Msc. Gabriela Nájera Ocampo, an official of this Judiciary, states as follows: “(...) CONCLUSIONS: An inspection was conducted both at the site formerly used as a Dump and at the Relleno Sanitario Los Pinos. Officials of WPP Continental de Costa Rica S.A. stated that, since 12 de junio, the date on which the contract with the Municipalidad de Cartago ended, no maintenance work has been performed at the site, except at the Leachate Treatment Plant. With respect to the Dump, dispersed solid waste without any type of cover was present both on the slopes where the solid waste had been deposited and along the edge of the access road.
No stormwater drainage ditches (cunetas para pluviales) or other similar system were observed that would convey the water to a site for final disposal. It was not possible to verify the origin of the water discharging from a white PVC pipe on a slope near the entrance to the Dump. There are 2 ponds (formed with black plastic) outside the Dump property; one of them contained accumulated brown-colored water. However, the reason why those ponds were constructed, the quality and type of water stored there, and its final disposal are unknown. It is unknown whether these Dump slopes have adequate stability and the slope percentage specified by the Reglamento de Rellenos Sanitarios for this type of project (30%), a matter to be assessed by the Ministerio de Salud as the competent institution. With respect to the gas-venting chimneys (chimeneas para evacuación de gases) at the Dump, not all of them were operating at the time of the inspection.
A downspout (bajante) made of black plastic was observed at the Dump, with dark-brown water flowing through it and an odor characteristic of leachate (lixiviados). Near the downspout and the inspection chamber (caja de registro) into which the water from the downspout flowed, an accumulation of uncovered waste was observed, a situation witnessed by WPP official Sr. Franklin Obregón Zamora. According to WPP company officials, there are 10 leachate collection wells on that property, from which the leachate is conveyed to the treatment plant. The collection wells observed had no covers and contained a relatively low flow of what was presumed to be leachate. In some areas along the sides of the access road at the Dump, the presence of what is presumed to be leachate was observed, which could indicate that it is not being conveyed efficiently to the treatment plant; however, this must be verified by the competent institutions.
There is a second water downspout made of black plastic, which was dry at the time of the inspection. In its final section, an accumulation of uncovered waste and water that appeared to be leachate was observed directly on the ground. The treatment plant apparently receives the leachate generated both at the Dump and at the Relleno Sanitario Los Pinos. It consists of a series of units whose effluent is conveyed through a PVC pipe to Río Agua Caliente, located at an approximate distance of 100 m. According to the treatment plant logbook (Bitácora), routine sampling is performed, while the effluent quality is sampled every 6 months in accordance with the frequency established in the Reglamento de Vertido y Reúso de Aguas Residuales. According to the officials of the Área Rectora de Salud de Cartago, a government compliance test (control estatal) of the effluent was performed on 6 de febrero of the current year, and its results and the measures taken could be sent to the TAA.
At the site where the first water downspout was observed, a clogged leachate collector was found leaking leachate at its base (on the slope), causing the leachate to flow over the ground until reaching the stormwater downspout; it should be noted that, in this instance, the untreated leachate was infiltrating into the ground, and some of it was reaching a stormwater downspout (this was confirmed by WPP official Sr Franklin Obregón Zamora). Along the Dump slope where the first downspout was located and up to the main entrance to the Dump property, uncovered waste was observed, as well as accumulated water and bubbling in the ground. Officials of the Municipalidad de Cartago did not participate in the inspection conducted at the Relleno Sanitario Los Pinos, at the direction of Sra. Olga Marta Arias. The Relleno Sanitario has security at its entrance, an area for weighing the trucks entering to deposit waste, and an area for washing those trucks.
At the working face (frente de trabajo), collection trucks were depositing solid waste, and that waste was being spread throughout the disposal area. WPP company officials did not know the number of the cell in which the waste is currently being deposited. The deposition of black bags containing waste, rubble, and red-colored red-colored bags (characteristic of bioinfectious waste (residuos bioinfecciosos)) was observed, for an approximate daily total of 300 toneladas. It was stated that responsibility for controlling the receipt of waste contained in red bags lies with the healthcare facilities, which must autoclave their waste and subsequently send it to the Relleno Sanitario. Chimneys were observed around the cell currently in use, but not all were operating at the time of the inspection. Uncovered solid waste was observed outside the working face. Leachate collection points were observed; the leachate is conveyed through pipes from those collection points to the treatment plant observed on the land belonging to the Municipalidad de Cartago.
According to WPP officials, that treatment plant is used because the entire area constitutes a single project; however, this is a matter that must be analyzed by SETENA as the competent institution. Near the leachate collection site and at the base of the cell where the working face is located, possible leachate was observed on the ground. (...)”. The foregoing appears at folios 203 through 214 of the case file in question. FIFTEENTH: Having summarized the documentation contained in administrative case file number [Valor 005], this Honorable Sala Constitucional will be able to ascertain that the reported case is at the preliminary investigation stage (investigación preliminar); that is, we are analyzing the technical and legal documents comprising the administrative case file in order to determine the substantive truth of the facts (articulo 214 LGAP). Although it is true that, during this phase, the Tribunal may take the corresponding actions without having to notify the respondent (denunciado), it must be made clear that, in the present proceeding, the respondent has entered an appearance (apersonado), has been notified of every action taken by the Tribunal, and has received responses to the motions filed by him.” It requests that the appeal be denied.
It alleges that, under the terms of the contract, the deadline for that company to deliver the landfill to the municipality expired on 12 de junio del 2018. However, it asserts that this did not occur, since waste continues to be deposited at the dump (botadero). It maintains that, for this reason, on 20 de junio de 2018, the Mayor of Cartago filed an environmental complaint with the Tribunal Ambiental Administrativo against the companies WPP Continental de Costa Rica S.A. and WPP Coriclean Los Pinos Waste Disposal S.A., the Área Rectora de Salud de Cartago, and the project’s environmental manager (Regente Ambiental) (…). In this regard, it must be made clear that the project submitted to and evaluated by SETENA is the one processed under administrative file No. [Valor 007]-SETENA, entitled Cierre Técnico del Vertedero Navarro y Construcción del Relleno Sanitario Los Pinos; accordingly, it should be noted that, in the matter at hand, what was submitted to SETENA, granted environmental feasibility and an environmental license (Viabilidad Licencia Ambiental), and remains in the environmental management phase (Gestión Ambiental), is a sanitary landfill (relleno sanitario), not a disposal site (vertedero).
With this understanding, pursuant to the Ley Orgánica del Ambiente, ley No. 7554, Artículo 21, and D.E. 31849-MINAE-SALUD-MOPT-MAG-MEIC, Reglamento General sobre los procedimientos de Evaluación de Impacto Ambiental (EIA), artículo 90, technical closure (cierre técnico) before SETENA—distinct from technical closure before the Ministerio de Salud and from any other proceeding at the municipal level—constitutes a final action for the project’s construction or operational stage, or both, through which the project developer demonstrates to SETENA that the environmental commitments (compromisos ambientales) have been fulfilled. In the case of the challenged project, administrative file [Valor 007]-SETENA is active, and the project is currently in operation or in the environmental management phase. Accordingly, the project at issue is not subject to technical closure because, given its characteristics, it is in an environmental management phase that may extend for up to 15 years after it ceases accepting waste.
Once that stage or period has ended, provided that all environmental commitments undertaken during both the environmental assessment (evaluación ambiental) and monitoring (seguimiento) have been fulfilled, technical closure of the project may be requested from SETENA, which will then assess whether those environmental commitments have been fulfilled and whether approval of the project’s technical closure is feasible. It is therefore concluded that this Secretariat lacks jurisdiction over technical closure by the Ministerio de Salud. Nevertheless, for SETENA to approve the technical closure within its jurisdiction, the developer must first fulfill all environmental commitments undertaken during the environmental assessment process and monitoring; in the case of sanitary landfills, this includes not only the operational or waste-receiving phase, but also the operational-closure phase, the post-closure phase, and the environmental restoration (recuperación ambiental) of the landfill area.
In the case of administrative file No. [Valor 007]-SETENA, after the project’s operational closure—which the Ministerio de Salud should already have carried out upon expiration of the project’s useful life—the sanitary landfill has an additional period of up to 15 years. For these reasons, it must be emphasized once again that, before SETENA, the Los Pinos sanitary landfill is not in the technical-closure phase and will not be until all environmental commitments undertaken have been fulfilled. 6. Sixth fact: It states: “…It insists that a landfill of this type creates risks of various kinds and therefore requires plans, designs, approvals, and inspections to prevent the risks of landslides and avalanches. It notes that, in the case of the ‘relleno sanitario Los Pinos,’ the most recent study conducted concerning that issue was in 2015. It states that, through resolución No. 432-2003-SETENA, the Secretaría Técnica Nacional Ambiental reviewed the Proyecto Cierre Técnico del Vertedero Navarro y Construcción del Relleno Sanitario Los Pinos, which submitted for assessment the closure of an activity that had neither operating permits nor a previously approved environmental impact study (estudio de impacto ambiental).
It argues that, for this reason, the Comisión Plenaria de la SETENA ruled on technical report No. PREIA-095-2003 concerning the analysis of the project’s environmental impact study and determined that its environmental feasibility (viabilidad ambiental) would be conditional upon compliance with a series of guidelines. It states that there has been a clear failure to comply with the environmental feasibility granted for the technical closure, since foreseeable parameters for predicting and preventing potential environmental damage were established therein; consequently, the developer’s failure to fulfill these commitments, which was known to the respondent authorities, renders them responsible for the resulting environmental damage. It considers that, through their actions and omissions, the respondents have directly violated the fundamental right to a healthy and ecologically balanced environment (…)”.
With respect to these allegations, this Honorable Chamber is advised that, as part of the environmental auditing and monitoring (Auditoría y Seguimiento Ambiental) activities that this Secretariat is required to perform, inspections of the project area (Área de Proyecto) have in fact been conducted. Recently, on 9 de octubre del pasado 2018, this Secretariat inspected the site while accompanying the Tribunal Ambiental Administrativo. As a result of that inspection, SETENA is currently conducting an investigation and analyzing both the administrative file and the field observations to determine whether any new environmental violations (incumplimientos ambientales) exist as of this date. As part of the investigation, it was determined that, in due course, a specific technical opinion would be requested from the entity responsible for overseeing the landfill’s operation, namely the Ministerio de Salud, and that the project developer would also be asked to provide a series of clarifications and supplementary information.
Upon completion of that process, this Secretariat will, within the scope of its authority, request whatever is technically and legally appropriate. The aforementioned report No. SETENA-DT-ASA-760-2019 likewise reiterates that: “(…) for SETENA, technical closure cannot be carried out until all environmental commitments undertaken during the environmental assessment process and monitoring have been fulfilled. · The matter of sanitary landfills includes not only the operational or waste-receiving phase, but also the operational-closure phase, the post-closure phase, and the environmental restoration of the landfill area. · In the matter at hand, following operational closure of the project upon expiration of its useful life, the sanitary landfill has an additional period of up to 15 years. For these reasons, it must be emphasized once again that, before SETENA, the Los Pinos sanitary landfill is not in SETENA’s technical-closure phase and will not be until all environmental commitments undertaken have been fulfilled.
(…)”. Third: Conclusions Based on the foregoing considerations, this Secretariat requests that the allegations made against it be dismissed, given that all administrative acts (actos administrativos) issued in administrative file [Valor 007]-SETENA have been carried out in observance of due process (debido proceso), diligently, and within the institution’s capabilities. Accordingly, SETENA has acted diligently in the matter at issue here, seeking to ensure that the Secretariat proceeds promptly, in accordance with the law and the due process governing the Administration, and as legally and technically appropriate, by conducting the required investigation; all for the purpose of obtaining a clear picture of the project’s status, providing accurate responses to the governed parties (administrados), and coordinating among institutions, if necessary, the appropriate measures to be taken during the process to ensure compliance with the current legislation applicable to the project.
Fourth: Consolidation of proceedings (Acumulación de procesos). Given that expediente No. 19-005299-007-CO, in which [Nombre 001] brings an action against the Municipalidad de Cartago concerning the same matter, is pending before the Honorable Chamber, the Chamber is respectfully requested to consider the possibility of consolidating these proceedings.” It requests that the action be dismissed.
Justice Chacón Jiménez drafts the opinion; and,
Whereas:
I.Regarding the interested third parties (terceras personas interesadas). Pursuant to Article 34, second paragraph, of the Ley de la Jurisdicción Constitucional, Ileana María González Paniagua and Olga Marta Arias Rivas, respectively, in their capacity as representatives of WPP Continental de Costa Rica S.A. and WPP Coriclean Los Pinos Waste Disposal S.A., companies retained to operate Relleno Sanitario Los Pinos, are deemed interested third parties in these proceedings.
II.Subject matter of the amparo action (recurso). The petitioners allege that the Municipalidad del Cartago, the Dirección Regional de Salud de Cartago, and SETENA have failed to oversee the activity carried out at the Los Pinos dump, located in the community of Navarro in the district of Dulce Nombre de Cartago, which receives solid waste from the municipalities of El Guarco, Paraíso, and Oreamuno, among others, because, despite openly knowing the precarious conditions under which it operates, they have taken no action to prevent its continued operation, thereby creating major sources of environmental pollution. They state that, although the dump’s useful life has expired, the operating site has continued to expand without environmental approval (viabilidad ambiental). They assert that waste is deposited at the top of the dump, such that leachate (lixiviados) also flows freely toward the portion of the dump located on land belonging to the Municipalidad de Cartago.
Petitioner [Nombre 001] also alleges a failure to respond to the requests he submitted to the Concejo de Cartago, the Regional de Cartago del Ministerio de Salud, and SETENA. The petitioners request that the respondents be ordered to immediately suspend the entry of waste into the landfill (relleno sanitario). They further request that the technical closure works (obras de cierre técnico) be performed and completed within a mandatory time limit. They also request that Operating Health Permit (Permiso Sanitario de Funcionamiento) No. 3212-2019 be annulled because, according to their allegation, it was granted without a supporting technical study.
III.Proven facts (hechos probados). For purposes of deciding this matter, the following facts are deemed duly established, either because they have been proven or because the respondents failed to address them as ordered in the initial ruling (auto inicial):
Regarding the requests submitted by petitioner [Nombre 001] to the Concejo de la Municipalidad de Cartago, the Área Rectora de Salud de Cartago del Ministerio de Salud, and SETENA.
The request filed with the Concejo de Cartago.
On 06 de marzo de 2019, petitioner [Nombre 001] asked the Concejo de Cartago to provide him with the following information: “(…) 1. On what date did the Vertedero de Navarro begin operations, the place where this Municipality deposited its solid waste for many years? 2. Which municipalities still deposit solid waste from their cantons there? 3. How many tons does that dump still receive? 4. When did the technical closure of that location begin, and how long is it expected to take to complete the works? 5. Does this municipality have plans for those works? 6. Did this Municipality authorize the commencement of the technical closure works, and on the basis of which studies did it authorize them? 7. Do you have information about the waste deposited at that location and its compaction parameters? 8. Do you have plans for the leachate drainage system? 9. Do you know the amount of leachate generated daily by this dump? 10.
Have you authorized the company operating that site to construct a leachate treatment plant? 11. Has this Municipality authorized the operating company to use a purported leachate treatment plant belonging to this Municipality and located at the site; if so, please provide a copy of that agreement? 12. Does this Municipality have measurements of the slopes (taludes) of that dump? 13. What studies does this Municipality have concerning methane gas at that location? 14.- Does this location have stormwater channels (canales pluviales)? 15.- Does this site have the material necessary to cover the waste every day, as stipulated by the Reglamentos de rellenos sanitarios? 16.- What type of material is used to cover the waste daily, given that the reglamento de rellenos sanitarios specifies the quality of material that must be used for that purpose? 17. Is there any contract for thermal closure works; when did it begin and when must it be completed? 18.
Do you have progress reports for those works? 19. Has this Municipalidad de Cartago authorized any permit for the expansion of this dump, and has any municipal approval (visado municipal) been granted for this expansion? 20. From where is the cover material being brought, and, if it comes from the same site, did you grant that authorization? 21. Does this expansion have SETENA approval? If so, I request a copy of that authorization. 22. Was the place from which the material is being brought previously an undeveloped area with green spaces? 23. Authorization of any material-extraction work requires SETENA studies; do you have those studies? If so, I request that a copy be provided to me, and the undersigned will bear the cost thereof. 24. Does this Municipality have STUDIES CHARACTERIZING THE LEACHATE AND GROUNDWATER OF VERTEDERO DE LOS PINOS, (NAVARRO)? If so, I respectfully request that copies of those from the last 3 months be provided to me. 25.
Do you have slope-stability studies, given that it is known that once the waste settles, the slopes begin to shift? 26. What is being done with the gas-emission system? 27. Are there design plans for the post-closure works (obras de post-cierre) once the technical closure works have been completed? 28. Do you know whether the new cells being constructed have the studies and approval of municipal officials, the Ministerio de Salud, or SETENA itself? 29. Do you know whether geomembrane (geomembrana) is being installed in these new cells, as required by the Reglamento de Rellenos Sanitarios (…)” (document provided by the petitioner).
1.2. The request submitted to the Ministerio de Salud.
On 07 de marzo de 2019, petitioner [Nombre 001] asked the Rectoría de Salud de Cartago del Ministerio de Salud to provide him with the following information: “(…)1.- Has the Ministerio de Salud granted operating approval? 2. Do you have the plans for the works being carried out at that location and the technical studies? 3. On the basis of what technical criteria did the Ministerio de Salud de Cartago grant the permit? 4. Do you have the operational reports for that dump concerning leachate, groundwater, slope movements, etc.? 5. If so, I request copies of the STUDIES CHARACTERIZING THE LEACHATE AND GROUNDWATER OF VERTEDERO DE LOS PINOS, (NAVARRO), for the last 3 months. 6. Which municipalities still deposit solid waste from their cantons there? 7. How many tons does that dump still receive? 8. Did the Ministerio de Salud de Cartago authorize the commencement of the technical closure works, and on the basis of which studies did it authorize them? 9.
Do you have information about the waste deposited at that location and its compaction parameters? 10. Do you have plans for the leachate drainage system? 11. Do you know the amount of leachate generated daily by this dump and where it is deposited? 12. Have you authorized the company operating that site to construct a leachate treatment plant? 13. Has the Ministerio de Salud de Cartago authorized the company operating that dump to use a purported leachate treatment plant belonging to the Municipalidad de Cartago and located at the site; if so, do you have a copy of that agreement? 14. Does the Ministerio de Salud have measurements of the slopes of that dump? 15. What studies does the Ministerio de Salud have concerning methane gas at that location? 16. Does this location have stormwater channels? 17. Does this site have the material necessary to cover the waste every day, as stipulated by the Reglamento de rellenos sanitarios, and who supervises this? 18.
What type of material is used to cover the waste daily, given that the reglamento de rellenos sanitarios specifies the quality of material that must be used for that purpose? 19. Has the Ministerio de Salud de Cartago authorized any permit for the expansion of this dump? 20. Does this expansion have SETENA approval? If so, I request a copy of that authorization. 21. From where is the cover material being brought, and, if it comes from the same site, did you grant that authorization? 22. Was the place from which the material is being brought previously an undeveloped area with green spaces? 23. Authorization of any material-extraction work requires SETENA studies; do you have those studies? If so, I request that a copy be provided to me, and the undersigned will bear the cost of those copies. 24. Are there design plans for the post-closure works once the technical closure works have been completed? (…)” (document provided by the petitioner).
By official letter (oficio) No. CE-ARSC-0614-2019, dated 05 de abril de 2019, Andrea Morales Fiesler, director of the Área Rectora de Salud de Cartago, informed the appellant [Nombre 001] as follows: “I hereby extend cordial greetings and, in response to your request, inform you that, pursuant to Articles 1 and 2 of the Ley General de Salud, it is an essential function of the State to safeguard the health of the population, as it is a matter of public interest protected through the Ministerio de Salud. As the governing authority, acting through its three management levels, it has conducted inspections at the Relleno Sanitario Los Pinos and has regulated its activities to ensure compliance with technical and legal requirements, based on current legislation such as Decreto No. 38928-S Reglamento sobre Rellenos Sanitarios. The landfill does have a sanitary operating permit (Permiso Sanitario de Funcionamiento), because it meets the documentary requirements established in Decreto No. 39472-S Reglamento General para Autorizaciones y Permisos Sanitarios de Funcionamiento Otorgados por el Ministerio de Salud, and on-site verification has confirmed compliance with administrative acts and optimal physical and sanitary conditions.
The development of the landfill project is supported by plans approved through the digital project-processing platform of the Colegio Federado de Ingenieros y Arquitectos (CFIA), which were reviewed by the Dirección Regional de Rectoría de la Salud Central Este del Ministerio de Salud. The plans include the leachate conveyance system (sistema de conducción de lixiviados) and technical closure works (obras de cierre técnico), among other aspects, as stipulated in the Reglamento sobre Rellenos Sanitarios. The landfill has had a leachate treatment system since the project began; its effluent is discharged into the rio Agua Caliente, and it operates properly, as verified through inspections and the review of wastewater operating reports (reportes operacionales de aguas residuales), which show the results for physical and chemical parameters and are prepared using the format established in Anexo 2 of Decreto N° 33601 Reglamento de Vertido y Reuso de Aguas Residuales.
Likewise, the Ministerio de Salud reviews the landfill’s operating reports, which refer to the types and quantities of waste, as well as the results from the monitoring wells (pozos de monitoreo). The treatment plant was authorized several years ago, when the process of converting the dump into a sanitary landfill began; no new system has currently been built. Regarding item 13 of your letter, I wish to inform you that the Ministerio de Salud is neither one of the parties that owns the land nor a party to the contractual matter governing the use of the landfill’s properties and assets. Furthermore, any studies and authorizations issued by another institution, such as the Secretaria Técnica Nacional Ambiental (SETENA), must be requested directly from that entity, as it prepared and issued them. Nevertheless, I must state that the Ministerio de Salud, as the regulatory authority, has requested the relevant documentation for the PSF pursuant to the Reglamento General para Autorizaciones y Permisos Sanitarios de Funcionamiento Otorgados por el Ministerio de Salud, as well as other documentation that it has deemed should be brought to the attention of the Ministerio de Salud.
Finally, with respect to items 25 and 26 of the letter you submitted to this ministry, I respectfully request that you clarify which new cells you are referring to, since you indicate that they are under construction, and it is important for the Ministerio de Salud to know the exact location where you observed that the work was being carried out, so that the ministry may better resolve the matter and provide you with more detailed information. I trust that this has adequately informed you. Cordially” (report of the respondent health authority and documentary evidence submitted).
1.3 Regarding the petition filed with the Secretaría Técnica Nacional Ambiental.
On 08 de marzo de 2019, the appellant [Nombre 001] requested that the Secretaría Técnica Nacional Ambiental provide the following information: “(…) Has SETENA granted approval for the operation of that site? 2. Does SETENA have the logs of the visits during which that site was inspected? 3. What is the name of the environmental manager (regente ambiental) responsible for submitting reports to SETENA, and how often does he do so? 4. Do you have copies of the plans for the works being carried out at that location and the technical studies? 5. Do you have the operating reports for that dump, including those concerning leachate, groundwater, slope movements, etc.? 6. If so, I request copies of the LEACHATE AND GROUNDWATER CHARACTERIZATION STUDIES FOR THE LOS PINOS DUMP (NAVARRO) from the past 3 months. 7. Do you have the report stating how many tons are deposited at that location each day and by which Municipalities? 8. Do you know the useful life (vida útil) of that dump? (…)” (document submitted by the appellant).
By official letter No. SETENA-DT-ASA-0398-2019 (served on 03 de abril de 2019), Víctor Manuel Villalobos Rodríguez, coordinator of the Departamento de Auditoría y Seguimiento Ambiental de Setena, informed the appellant [Nombre 001] as follows: “…As recorded in the administrative case file (expediente administrativo), consecutively numbered submission 01996-ASA contains a large number of questions (24) which, because of their complexity and the type of information requested, this Secretaría cannot answer immediately. For that reason, this official letter informs you that, since the Departamento de Auditoría y Seguimiento Ambiental received your request, we have been gathering the information you requested. In addition, it is important to mention that some of the requested information does not fall within the authority of this Secretaría or is not contained in the case file; accordingly, it will be requested from the appropriate institution or institutions or person or persons. It is clarified that, by knowing the case-file number, location, and project name, any resident of the Republic may access the information contained in each administrative case file, which may be obtained or requested from the institutional archives, where copies of the documents of interest may be requested...” (report of the ad hoc secretary general of Setena and documentary evidence submitted).
The Relleno Sanitario Los Pinos, located in the community of Navarro in the district of Dulce Nombre de Cartago and receiving solid waste from El Guarco, Paraíso, Oreamuno, Alvarado, and La Unión, operates on adjoining properties owned by the Municipalidad de Cartago and WPP Continental de Costa Rica S.A., which entered into a contract for the operation and final disposal of the waste (reports of the respondent authorities and documentary evidence submitted).
There is an internal dispute between the Municipalidad de Cartago and WPP Continental Costa Rica, and therefore, since 12 de junio de 2018, the deposit of material on the municipality’s property has been suspended, and waste is currently being accepted only for placement on the private company’s property (reports of the respondent authorities and documentary evidence submitted).
The Municipalidad de Cartago disposes of its waste on property No. 134368-000, owned by Empresas Berthier EBl de Costa Rica S.A., at the site known as Parque de Tecnología Ambiental Aczarri, located in Huazo de Aserrí (report of the respondent mayor).
The Relleno Sanitario Los Pinos receives waste from the municipalities of El Guarco, Paraíso, Oreamuno, Alvarado, Jiménez, and Zona de los Santos, as well as from private parties in the province of Cartago (report of the minister of health).
The legal contractual dispute involving WPP Continental de Costa Rica S.A., WPF Coriclean Los Pinos Waste Disponsal S.A WPP, and the Municipalidad de Cartago has resulted in a lack of maintenance and failure to perform technical closure works in the portion of the Relleno Sanitario owned by that municipality. This has caused leachate to pool on the land and waste to remain exposed because of insufficient cover, among other unsanitary conditions that endanger public health (report of the minister of health and documentary evidence submitted).
The incoming volume decreased to an average of 275,13 tons per day as a result of the termination of the contract with the Municipalidad de Cartago for the final disposal of waste (report of the minister of health).
On 20 de junio de 2018, the Municipalidad de Cartago filed an environmental complaint with the Tribunal Ambiental Administrativo against WPP ContinentaI de Costa Rica S.A., WPP Coriclean Los Pinos Waste Disposal S.A., the Área Rectora de Salud de Cartago, headed by Dr. Andrea Morales Fiesler, and Eng. Federico Salas Sarkis, environmental manager for the Proyecto Cierre Técnico del Vertedero de Navarro y Construcción del Relleno Sanitario Los Pinos, for a possible violation of environmental legislation (reports of the respondent authorities and documentary evidence submitted).
The case reported by the mayor of Cartago to the Tribunal Ambiental Administrativo, processed under administrative case file No. [Valor 005], to which official letter No. SETENA-SG-1575-2018 was joined, was signed by Msc. Sergio Bermúdez Muñoz in his capacity as Secretario General de la Setena. Through that letter, on 23 de agosto de 2019, he filed a formal environmental complaint and forwarded administrative case file [Valor 007]-SETENA “Proyecto Relleno Sanitario Los Pinos.” An inspection has already been conducted in connection with these matters, and the case is at the preliminary investigation stage, meaning that the technical and legal documents comprising the administrative case file are being analyzed to determine the actual truth of the facts (report of the respondent tribunal president).
In case file No. [Valor 004] pending before the Tribunal Contencioso Administrativo, WPP Continental de Costa Rica S.A. and WPP Coriclean Los Pinos Waste Disposal S.A. filed ordinary proceedings (proceso de conocimiento) against the Municipalidad de Cartago (reports of the respondent authorities and documentary evidence submitted).
Considering an average incoming volume of 275.13 tons/day, the useful life of the active property operated by Empresa WPP would end, and it would cease receiving landfill material, by the end of enero del año 2020 (reports of the respondent authorities and documentary evidence submitted).
It is recommended that the Área Rectora de Salud de Cartago monitor the landfill every 2 months as a follow-up measure regarding the useful life of the property owned by WPP Continental. This should be done in case the property reaches capacity earlier, so that its proper management and corresponding technical closure may be verified (reports of the respondent authorities and documentary evidence submitted).
The technical closure (cierre técnico) of a sanitary landfill before SETENA is distinct from the technical closure conducted by the Ministry of Health and from any other proceeding at the municipal level, since it constitutes a final act for the project’s construction or operational stage (or both), in which the project developer demonstrates to SETENA compliance with the environmental commitments (compromisos ambientales) (report of the Secretary General of Setena).
Administrative record (expediente administrativo) [Valor 007]-SETENA, corresponding to Relleno Sanitario Los Pinos, remains active and is currently in operation or in the Environmental Management phase (Gestión Ambiental), which may extend for up to 15 years after waste reception ceases. Accordingly, the project at issue is not subject to technical closure before Setena (report of the Secretary General of Setena).
Once the environmental management stage or period has concluded, provided that the project has fulfilled all environmental commitments undertaken both during the environmental assessment (evaluación ambiental) and during monitoring (seguimiento), technical closure may be requested from SETENA for the project, and SETENA will then assess whether the environmental commitments have been met and whether approval of its technical closure is feasible (report of the Secretary General of Setena).
For SETENA to approve the technical closure within its jurisdiction, the developer must first fulfill all environmental commitments undertaken during the environmental assessment process and during monitoring. In the case of sanitary landfills, this includes not only the operational phase or waste-reception phase, but also the operational closure phase (fase cierre operativa), the post-closure phase (fase post cierre), and the environmental restoration (recuperación ambiental) of the landfill area (report of the Secretary General of Setena).
Through sanitary order (orden sanitaria) No. CE-ARS-O-OS-0146-2019 of 20 de agosto de 2019, Oscar Rodríguez González, Director of the Área Rectora de Salud de Oreamuno of the Ministry of Health, ordered the Municipalidad de Cartago to submit, within 15 business days, expiring on 16 de setiembre de 2019, alternatives other than Relleno Sanitario Los Pinos for the comprehensive and sanitary management of solid waste from the communities under its responsibility (document submitted by the petitioner (recurrente)).
Through official letter (oficio) No. MUOR-AM-1171-2019 of 12 de setiembre de 2019—received on 17 de setiembre de 2019—the Municipalidad de Oreamuno informed Oscar Rodríguez González, Director of the Área Rectora de Salud de Oreamuno of the Ministry of Health, that “…the proposed Ordinary Budget for the year 2020 provides for the inclusion of funding in the Waste Collection Department that will allow us to address a change to an alternative other than Relleno Sanitario Los Pinos. Nevertheless, and in response to that order, the Municipality is currently identifying alternatives other than Relleno Sanitario Los Pinos, including requesting quotation pro formas in order to evaluate the scenarios and feasible options that may be implemented” (report of the Acting Minister of Health and documentary evidence submitted).
As part of the Environmental Audit and Monitoring process (Auditoría y Seguimiento Ambiental), which Setena is required to conduct, on 09 de octubre de 2018 it inspected the site while accompanying the Tribunal Ambiental Administrativo. As a result of the inspection, it is conducting an investigation, analyzing both the administrative record and the observations made in the field, to determine whether any new instances of environmental noncompliance (incumplimientos ambientales) exist. As part of the investigative process, it was determined that, when appropriate, a specific technical opinion would be requested from the entity responsible for overseeing the operation of the landfill, namely, the Ministry of Health, and that the project developer would also be asked to provide a series of clarifications and supplementary information (report of the Secretary General of Setena).
Sole fact. That the Concejo de Cartago and Setena responded to the petitions filed by the petitioner [Nombre 001] on 06 y 08 de marzo de 2019, respectively.
V.On the right to a healthy and ecologically balanced environment. Before the amendment of Article 50 of the Constitución Política, the case law of this Chamber recognized the protection and preservation of the environment as a fundamental right, deriving it from Articles 21 (right to health), 69 (the constitutional requirement of the “rational exploitation of land”), and 89 (protection of natural beauty), all of the Constitución Política, based on the following considerations: “V.)- Human life is possible only in solidarity with the nature that sustains and supports us, not only as a source of physical nourishment but also of psychological well-being: it constitutes the right of all citizens to live in an environment free from pollution, which is the foundation of a just and productive society. Thus, Article 21 of the Constitución Política provides: Human life is inviolable. It is undeniably from this constitutional principle that the right to health and to physical, mental, and social well-being arises—a human right that is inextricably linked to the right to health and to the State’s obligation to protect human life.
Likewise, from a psychological and intellectual standpoint, one’s state of mind also depends on nature; therefore, because the landscape becomes a useful space for rest and leisure, its preservation and conservation are also mandatory. This latter aspect is protected by Article 89 of the Constitution, which literally states: «The cultural purposes of the Republic include: protecting natural beauty, preserving and developing the Nation’s historical and artistic heritage, and supporting private initiative for scientific and artistic progress». Protecting nature from an aesthetic standpoint does not mean commercializing it or transforming it into a commodity; it means educating citizens so that they learn to appreciate the aesthetic landscape for its intrinsic value” (Judgment number 3705-93, of las quince horas del treinta de julio de mil noventa y tres).
This Chamber has also repeatedly held that the State has an unavoidable responsibility to defend and preserve natural resources by ensuring compliance with existing statutory and regulatory provisions, particularly those governing human activities, so that the natural heritage is not adversely affected. Coordination among public agencies must guarantee this environmental protection. On various occasions, constitutional case law has stated that protecting the environment is a responsibility shared equally by all; that is, the State—as a whole—is obligated to take the measures necessary to protect the environment in order to prevent levels of pollution, deforestation, extinction of flora and fauna, and excessive or improper use of natural resources that endanger the health of the governed. For purposes of this responsibility, the term public institution must be understood to include both the Central Administration—ministries such as the Ministerio del Ambiente y Energía and the Ministerio de Salud, which, by virtue of their subject matter, have broad involvement and responsibility regarding environmental conservation and preservation and which generally act through their specialized departments, such as the Dirección General de Vida Silvestre, the Dirección Forestal, and the Secretaría Técnica Nacional Ambiental (SETENA)—and decentralized institutions, such as the Instituto Nacional de Vivienda y Urbanismo, SENARA, the Instituto Costarricense de Turismo, and the Instituto Costarricense de Acueductos y Alcantarillados.
Municipalities, of course, also bear substantial responsibility for this task within their territorial jurisdictions. It might therefore be thought that this multiple allocation of responsibility would create chaos in administrative management, but that is not the case. To prevent the simultaneous coexistence of spheres of authority having different origins and natures, the duplication of national and local efforts, and confusion concerning the rights and obligations of the various parties involved, it is necessary to establish a series of coordinating relationships among the various agencies of the Executive Branch and decentralized institutions, and between those entities and the municipalities, so that they may carry out the functions entrusted to them. This Chamber previously—and quite clearly—addressed the principle governing coordination between public agencies and municipalities in pursuing common purposes—which must obviously also extend to the relationship between institutions of the Central Administration and decentralized institutions in carrying out this important function—and therefore refers to what was stated on that occasion (Judgment N° 1999-5445, of las catorce horas treinta minutos del catorce de julio de mil novecientos noventa y nueve):
“Thus, coordination is the ordering of relationships among these various independent activities, taking account of their convergence upon the same object or entity so as to make that convergence useful to an overall public plan, without eliminating the mutual independence of the acting entities. Since there is no hierarchical relationship among decentralized institutions, or between the State itself and the municipalities, particular conduct cannot be imposed upon the latter. This gives rise to the indispensable interinstitutional «agreement», in the strict sense, whereby autonomous and independent centers of action agree upon that preventive and comprehensive framework, within which each performs a role with a view toward a mission entrusted to the others. Accordingly, relationships between municipalities and other public entities may be conducted only on an equal footing, resulting in agreed forms of coordination and excluding any mandatory form detrimental to municipal autonomy that would subject corporate entities to a coordination framework without or against their consent.
This does, however, allow the necessary subordination of those entities to the State and in the State’s interest (through the State’s «administrative oversight» (tutela administrativa) and, specifically, its function of reviewing legality, with powers of general supervision over the entire sector).” On the other hand, failures to fulfill the duty to protect the environment and to comply with environmental regulations are constitutionally significant, insofar as the Administration’s inaction in this area may cause harm to the environment and natural resources, sometimes with consequences similar to or greater than those arising from actions by the Administration; examples include the authorization of land-use plans (planes reguladores) or construction projects without approval of the environmental impact study (estudio de impacto ambiental) by the Secretaría Técnica Nacional Ambiental; the lack of oversight and enforcement in the implementation of management plans (planes de manejo) for protected areas by the Dirección General de Vida Silvestre of the Ministerio del Ambiente y Energía; allowing companies to operate without health permits regarding the treatment of sewage or wastewater (aguas negras o residuales) (Acueductos y Alcantarillados and Ministerio de Salud); or failing to verify noise controls (controles sónicos) in bars, karaoke venues, and discotheques (municipalities and Ministerio de Salud), etc.
VI.Regarding the right to health and the right to enjoy a healthy environment. Public health and the right to a healthy and ecologically balanced environment (ambiente sano y ecológicamente equilibrado) are constitutionally recognized in Articles 21, 50, 73, and 89 of the Constitución Política, as well as under international law. Specifically, Article 50 of the Constitution expressly recognizes the right of all inhabitants of the country to enjoy a healthy and perfectly balanced environment. That right is a fundamental guarantee for the protection of life and public health. This constitutional provision is supplemented by the provisions of Article 11 of the “Protocolo Adicional a la Convención Americana sobre Derechos Humanos en materia de Derechos Económicos, Sociales y Culturales.” Likewise, regarding the obligations of public authorities to guarantee the right to health and the right to a healthy environment, this Constitutional Court held in judgment No.180-98 at 16:24 hrs. on January 13, 1998:
“...the State not only has the unavoidable responsibility to ensure that the health of each person comprising the national community is not harmed by third parties in relation to these rights, but must also assume responsibility for creating the social conditions necessary for each person to enjoy their health, understood as a state of physical, psychological (or mental), and social well-being.” Accordingly, the Costa Rican State is obligated to act preventively by using direct oversight and intervention to prevent actions that harm the environment, an obligation that is inevitably correlated with the State’s duty to safeguard the health of its inhabitants. It should be noted that this Court, as guarantor of fundamental rights, acts as an overseer of compliance with the obligations arising from Articles 21 and 50 of the Constitution, which compel the State not only to recognize the aforementioned rights but also to use materially and legally legitimate means to guarantee them (judgment No. 2007-017341 at 15:42 hrs. on November 28, 2007, reiterated, among others, in judgment No. 2016-009543 at 9:45 hrs. on July 8, 2016).
VII.Regarding the principle of inter-administrative coordination (coordinación interadministrativa). One of the guiding principles of administrative organization is the coordination that must exist among all public entities and bodies when exercising their powers and providing the services assigned to them by the legal system. Coordination, insofar as it ensures administrative efficiency and effectiveness, is a virtual or implicit constitutional principle that permeates the entire body of administrative law and is binding upon all public entities. It may be inter-organizational (interorgánica)—among the various bodies comprising a public entity that are not subject to a hierarchical relationship—or intersubjective (intersubjetiva), that is, among public entities, each possessing legal personality, its own budget, autonomy, and specific powers. The administrative or other degree of autonomy vested in public entities obligates them to coordinate their actions because, given their inter-organizational nature, they cannot be reciprocally subject to hierarchical relationships.
The purpose of administrative coordination is to prevent duplication and omissions in the performance of each public entity’s administrative functions, so that those functions are carried out rationally and in an orderly manner; this is achieved by establishing fluid and permanent levels or channels of information among public entities, which may be accomplished through meetings, reports, or the creation of formal coordinating bodies.
VIII.Regarding constitutional jurisdiction over environmental matters. As has been repeatedly stated in the case law of this Chamber, constitutional jurisdiction over environmental matters cannot extend to the point of becoming a mechanism for verifying the technical criteria set forth in regulations or by administrative authorities in environmental matters; rather, it is limited to determining whether the competent state agencies have fulfilled the obligation imposed upon them by Article 50 of the Constitución Política to act responsibly and promptly to protect the environment. It has also been held that the admissibility of a constitutional protection proceeding (recurso de amparo) depends upon proof of an infringement or threat affecting one or more of the rights or guarantees established in the Constitution or in the international human-rights instruments signed by the country. This latter circumstance underscores the eminently summary nature of the constitutional protection proceeding, whose procedure is incompatible with slow and complex evidentiary measures or with the need to first examine—in declaratory proceedings—whether subconstitutional rights cited by the parties as part of the factual basis of the constitutional protection proceeding or of the report required by law (informe de ley), as applicable, actually exist, since it is evident that this Chamber lacks jurisdiction over that matter.
In this situation, it is not appropriate for the Chamber to issue any ruling, whether affirmative or negative, in such cases because, before determining whether fundamental rights have been violated, that dispute must first be resolved at the level of ordinary legality.
IX.Regarding the pollution alleged by the petitioners in this specific case. The petitioners allege that the respondent authorities have failed to oversee the activities carried out at the Los Pinos dump (vertedero), located in the community of Navarro in the district of Dulce Nombre de Cartago, which receives solid waste from the municipalities of El Guarco, Paraíso, and Oreamuno, among others. Despite being openly aware of the precarious conditions under which it operates, they have taken no action to prevent its continued operation, thereby creating major sources of environmental pollution. Although the underlying problem affecting the petitioners is the alleged pollution—and the resulting harm to public health—generated by what they call a dump, while the respondent authorities maintain that it is a sanitary landfill (relleno sanitario) operated by a private-law entity, the fact remains that they have come before this Chamber alleging a failure to perform duties by the various responsible institutions.
Despite those institutions’ full awareness of the problems arising from the collection of waste, the reported situation remains, persists, and worsens over time due to their passivity and neglect. For their part, all the respondent authorities, including the Tribunal Ambiental Administrativo, defend their actions, even while disclaiming their scope of authority, as will be discussed. To that end, they recount the actions taken, stating that they have diligently addressed the reported problem within the scope of their respective powers. In summary, the municipal authorities state that they reported the company operating the landfill to the Ministerio de Salud and the aforementioned administrative tribunal. This prompted the latter to order the initiation of an administrative proceeding (procedimiento administrativo), which is currently at the preliminary stage. Meanwhile, the aforementioned Ministry has issued various types of health orders (órdenes sanitarias) against both the Municipalidad de Cartago and the company operating the sanitary landfill.
For example, through health order No. CE-ARS-O-OS-0146-2019 of August 20, 2019, it ordered that municipal council to submit, within 15 business days, expiring on September 16, 2019, alternatives other than the Los Pinos sanitary landfill for the integrated and sanitary management of solid waste from the communities under its responsibility. SETENA continues to investigate alleged environmental violations to determine what action to take. It should be noted that it was reported that, as part of the Environmental Audit and Monitoring process (Auditoría y Seguimiento Ambiental) that SETENA is required to conduct, it inspected the site on October 09, 2018, while accompanying the Tribunal Ambiental Administrativo; as a result of that inspection, it is conducting an investigation and analyzing both the administrative record and the observations made in the field to determine whether any new instances of environmental noncompliance exist.
It was further reported that, as part of the investigative process, it was determined that a specific technical opinion would eventually be requested from the entity responsible for overseeing the landfill’s operation, namely the Ministerio de Salud, and that the project developer would also be asked to provide a series of clarifications and supplementary information. This is despite the fact that the Administration’s oversight and enforcement duties—which in this case rest with the Secretaría Técnica Ambiental, the Ministerio de Salud, and the corresponding Municipalidad—must be performed both before and after authorization to install the sanitary landfill; that is, once it begins operating, it must be subject to technical and objective supervision by the corresponding administrative agencies. Moreover, this duty cannot be delegated because of the subject matter involved, namely, the protection and preservation of the environment and the health of the population.
X.This Chamber has deemed it proven that the aforementioned Los Pinos Sanitary Landfill (Relleno Sanitario Los Pinos), located in the community of Navarro in the district of Dulce Nombre de Cartago, operates or operated on adjoining parcels owned by the Municipalidad de Cartago and the company WPP Continental de Costa Rica S.A., which entered into a contract for the operation and final disposal of waste. However, due to the internal dispute between the two contracting parties, the deposit of material on the municipality’s property has been suspended since 12 de junio de 2018, and waste is now being received only for placement on the private company’s property. This waste comes from the municipalities of El Guarco, Paraíso, Oreamuno, Alvarado, Jiménez and Zona de los Santos, and from private parties in the province of Cartago; waste from the canton of Cartago is disposed of by the municipality at property No. 134368-000, owned by Empresas Berthier EBl de Costa Rica S.A., at the site known as Parque de Tecnología Ambiental Aczarri, located in Huazo de Aserrí.
The legal system grants the authorities responsible for protecting the environment and public health broad powers to perform their duties. Both the Ley General de Salud and the Ley Orgánica del Ambiente, as well as related provisions, confer detailed authority upon the various organizational levels to which preventive, inspection, enforcement, and other functions are delegated. Furthermore, the respondents also possess the powers granted by the Ley General de la Administración Pública to ensure that the purposes of the Public Administration are fulfilled as effectively as possible. In this matter, the established facts show that the authorities are aware of the reported problem and, although several administrative acts (actos administrativos) have been issued, none has been effective or efficient. Indeed, the Ministerio de Salud has acknowledged that the legal contractual dispute involving WPP Continental de Costa Rica S.A., WPF Coriclean Los Pinos Waste Disponsal S.A. WPP, and the Municipalidad de Cartago has resulted in neither maintenance nor technical closure work (obras de cierre técnico) being performed in the section of the Sanitary Landfill owned by that municipal council, leading to the pooling of leachate (lixiviados) on the property, exposed waste due to a lack of cover, and other unsanitary conditions that endanger public health.
As stated supra, it exceeds the scope of the amparo proceeding (recurso de amparo) to analyze or resolve that dispute in this forum, particularly because it is already being adjudicated before the Tribunal Contencioso Administrativo. The constitutional issue is limited to determining whether the respondent authorities have acted diligently to address and ultimately resolve that environmental problem, which, as can readily be ascertained, they have not. Apart from the foregoing, the stance taken by the Municipalidad de Cartago is unacceptable because, even though it no longer deposits waste at the disputed site, it cannot disregard its duty to act in defense of the fundamental rights of its residents. Attending to the residents of its canton above any dispute is imperative. This Court has recognized that, within the scope of their authority and obligations, local governments bear a significant share of responsibility in environmental matters, whether through the direct approval of permits or licenses for which prior compliance with requirements demonstrating proper environmental management before other public authorities is required, or through regular inspections and the referral of hazardous situations to the bodies having greater authority to intervene.
It has already been established that local governments have a duty to coordinate and prevent environmental harm within their territorial jurisdiction; consequently, municipalities are indeed important actors in the task of environmental protection. As stated supra, not only that municipal council but all the other respondent authorities possess broad powers to act. Although they are subject to the principles of legality and reasonableness, because the matter involves a threat to the environment and public health, legality and formalities must yield. It is not for this Court to enumerate the tools that the legal system makes available to the Public Administration for the performance of its duties; nevertheless, in view of their differing opinions and actions, the authorities must coordinate with one another to protect the lives and health of the public, which take precedence over any legal dispute.
It is evident, however, that the health and local authorities have likewise failed to coordinate joint actions to achieve a comprehensive solution to the reported problem. It is well known that coordination among public entities and bodies is indispensable to the proper exercise of their authority and provision of the services entrusted to them, because it ensures effectiveness and efficiency; it is therefore one of the guiding principles of administrative organization. Pursuant to the aforementioned principle of administrative coordination, the respondent authorities could—and should—have acted diligently, making the fullest use of their powers rather than using procedural formalities to shield their negligence, particularly where such procedures have not been prompt and timely as required by the urgent situation of unabated pollution. Waste continues to be deposited there, even though the daily intake has decreased since the contract with the Municipalidad de Cartago ended.
Indeed, as a result of this situation, the Área Rectora de Salud de Cartago recommended monitoring the Sanitary Landfill every 2 months to track the remaining useful life of the property owned by WPP Continental. This is to ensure that, should it reach capacity earlier than anticipated, its proper management and corresponding technical closure (cierre técnico) can be verified. In that context, the arguments seeking to justify the Public Administration’s inaction in the face of this urgent pollution problem—which is fully known to all the respondent authorities as a result of the petitioners’ actions—cannot be accepted. Such inaction disregards the human right to a healthy life and a sustainable future, to the detriment of the petitioners and the surrounding population, because a healthy environment is an indispensable prerequisite for good health. The petitioners’ claim is therefore deemed well-founded on the merits.
Given the complexity of the matter, notwithstanding the foregoing and even at the risk of repetition, it is appropriate to address separately the responsibility of each respondent authority for the alleged acts.
XI.Regarding the responsibility of the Ministerio de Salud. There can be no doubt that a sanitary solid-waste landfill (relleno técnico sanitario de basura) may become a serious source of various forms of environmental pollution, posing an imminent danger to the health of nearby residents and the population in general. In this specific case, the reports submitted by the representatives of the respondent health authority—which are deemed to have been given under oath, subject to the consequences, including criminal penalties, provided for in article 44 of the Law governing this Jurisdiction—and the evidence submitted for adjudication of the matter have duly established that the reported situation at the Los Pinos landfill, far from improving, has grown more complicated over time. Indeed, there are even legal disputes between the Municipalidad de Cartago and the private company hired to operate it, a problem that only further aggravates the difficult administration of the landfill, which is already inherently complex.
The State—as a whole—has an obligation to take the measures necessary to protect the environment in order to prevent levels of pollution, deforestation, extinction of flora and fauna, and excessive or improper use of natural resources that endanger the health of those under its administration. Given the diversity of parties that may be involved, it might be thought that this multiple responsibility would cause chaos in administrative management. Therefore, to prevent the simultaneous coexistence of spheres of authority differing in origin and nature, the duplication of national and local efforts, and confusion concerning the rights and obligations of the various parties involved, it is necessary to establish coordination among the various departments of the Executive Branch and decentralized institutions, and between those entities and the municipalities, so that they may perform the functions entrusted to them.
In situations such as the one addressed in this amparo proceeding, such coordination is of paramount importance, and the Ministerio de Salud must play a leading role in protecting public health. Nevertheless, its intervention has been, at the very least, insufficient. One example is health order No. CE-ARS-O-OS-0146-2019 of 20 de agosto de 2019, by which Oscar Rodríguez González, director of the Área Rectora de Salud de Oreamuno, ordered the Municipalidad de Cartago to present, within 15 business days and no later than 16 de setiembre de 2019, alternatives other than the Los Pinos Sanitary Landfill for the comprehensive and sanitary management of solid waste from the communities under its responsibility. In response, through official letter No. MUOR-AM-1171-2019 of 12 de setiembre de 2019—received on 17 de setiembre de 2019—the Municipalidad de Oreamuno reported that “…the proposed Ordinary Budget for 2020 provides for the inclusion of funding for the Departamento de Recolección de Residuos that will allow us to address a change to an alternative other than the Los Pinos Sanitary Landfill.
However, in response to that order, the Municipality is currently at the stage of identifying alternatives other than the Los Pinos Sanitary Landfill, including requesting pro forma quotations in order to evaluate the scenarios and feasible options that may be implemented.” This municipal action is insufficient to address the substance of the problem and has been met with passivity by the health authority, which, according to the information provided, considers that the municipality complied with the order by giving that response, when it is evident that it did not. Contrary to what was ordered, the municipality offers no alternative whatsoever; it merely reports on the budget allocation and states that it is seeking options. Meanwhile, the environmental problem persists, to the distress of the affected public.
XII.Regarding the responsibility of the Municipalidad de Cartago for the acts alleged by the petitioners. This Chamber has stated that Article 169 of the Political Constitution provides that the administration of local interests and services in each canton shall be entrusted to the Municipal Government. Local interests and services have been defined by the Chamber as indeterminate legal concepts (conceptos jurídicos indeterminados), whose precise content for application to specific cases is not established by law; consequently, the person responsible for applying them must resort to criteria based on values and experience in order to determine their content. The existence and operation of a sanitary landfill (relleno sanitario) in a community unquestionably constitutes, per se, a matter of interest to a municipal government, regardless of whether it operates the facility. Therefore, the fact that the Cartago municipal council does not currently deposit its residents’ waste in the Relleno Sanitario Los Pinos does not mean that it may disregard the effects that the landfill’s existence has on its residents.
Still less may a legal dispute with the private company justify ignoring the public outcry; on the contrary, as the local government, it is required to make every possible effort to protect the public. Situations such as those occurring in these proceedings directly contribute to environmental degradation and, therefore, affect public health. Regarding pollution prevention, Section 60 of the Ley Orgánica del Ambiente provides as follows: “Article 60.- Prevention and control of pollution. To prevent and control environmental pollution, the State, the municipalities, and other public institutions shall give priority, among other matters, to establishing and operating adequate services in areas essential to environmental health, such as: ‘(…) c) The collection and management of waste…’.” This provision is particularly relevant to the Municipalidad de Cartago because it contracted with the aforementioned private company to provide the public service of collecting its residents’ waste.
It therefore had, and continues to have, direct involvement in the problem described by the petitioners. In view of the foregoing, the Chamber finds that the municipal council failed to take the measures necessary to resolve definitively the existing problem involving the sanitary landfill operating in the aforementioned locality. Because the reported problem causes environmental pollution and, consequently, poses a danger to the health of the area’s residents, the omissions attributed to the respondent municipal government violate Articles 21 and 50 of the Political Constitution.
XIII.Regarding the actions of SETENA. Cynthia Barzuna Gutiérrez, in her capacity as Secretary General of the Secretaría Técnica Nacional Ambiental, stated under oath, among other matters, that “…indeed, as part of the Environmental Auditing and Monitoring (Auditoría y Seguimiento Ambiental) duties that this Secretaría is required to perform, inspections have been conducted in the Project Area. Recently, on 9 de octubre del pasado 2018, this Secretaría inspected the site while accompanying the Tribunal Ambiental Administrativo, and as a result of that inspection, SETENA is currently conducting an investigation, analyzing both the administrative record (expediente administrativo) and the field observations in order to determine whether any new environmental violations currently exist. As part of the investigative process, it was determined that a specific technical opinion would be requested in due course from the entity responsible for overseeing the landfill’s operation, namely, the Ministerio de Salud, and that a series of clarifications and supplementary information would also be requested from the project developer.
Upon completion of that process, this Secretaría will, within the scope of its authority, request whatever is technically and legally appropriate…”. The foregoing demonstrates, first, the problem reported by the petitioners and, second, SETENA’s deficient and belated oversight, despite having authorized the activity alleged to cause pollution. It is apparent that this authority’s intervention could have been more forceful and effective over time, as legally required under the powers assigned to that body. Its conduct has left the members of this Court with the impression of an administrative authority whose activity is exhausted by bureaucratic procedures but that does not solve specific problems, to the detriment of health and the environment and, consequently, in violation of Article 50 of the Political Constitution. This is intolerable to the Chamber, which therefore also finds SETENA jointly responsible for its omission in failing to apply an effective measure within a reasonable period, taking into account the alleged pollution problem.
XIV.Regarding the actions of the Tribunal Ambiental Administrativo. It has been established that on 20 de junio de 2018, the Municipalidad de Cartago filed an environmental complaint (denuncia de carácter ambiental) with the Tribunal Ambiental Administrativo against WPP ContinentaI de Costa Rica S.A., WPP Coriclean Los Pinos Waste Disposal S.A., the Área Rectora de Salud de Cartago, headed by Doctora Andrea Morales Fiesler, and Ing. Federico Salas Sarkis, environmental manager (regente ambiental) of the Proyecto Cierre Técnico del Vertedero de Navarro y Construcción del Relleno Sanitario Los Pinos, for a possible violation of environmental legislation. It has also been established that this case, processed under administrative file No. [Valor 005], to which official letter No. SETENA-SG-1575-2018 was joined, was signed by Msc. Sergio Bermúdez Muñoz in his capacity as Secretary General of SETENA.
Through that letter, on 23 de agosto de 2019, he formally filed an environmental complaint and forwarded administrative file [Valor 007]-SETENA “Proyecto Relleno Sanitario Los Pinos.” Although an inspection has already been conducted in connection with these matters, the case remains at the preliminary investigation stage (investigación preliminar), that is, the technical and legal documents comprising the administrative record are being analyzed to determine the actual truth of the facts (verdad real de los hechos). It is thus confirmed that the proceeding has remained stalled at the preliminary investigation stage for one year. The Chamber finds it striking that, despite the evident abandonment of the file, the respondent authority provides no justification for the delay in processing it, notwithstanding the pollution problem caused by the landfill’s operation and the danger it poses to the public.
Accordingly, the Chamber finds that the Tribunal Ambiental Administrativo failed to act and thereby breached its obligation to guarantee the rights of the area’s residents to health and to an ecologically balanced environment. Therefore, with respect to this issue, the action (recurso) must be granted.
XV.Regarding the requests for information. Section 27 of the Political Constitution establishes every person’s right to submit a matter of interest in writing to any State official or agency. This right includes the right to a prompt response. However, it does not mean that government entities must provide a favorable response. What is guaranteed, therefore, is the right to submit a request and obtain a response from public officials and institutions. In its case law, this Court has stated that what is guaranteed is the right to request, not the right to obtain what is requested, even though the public official must decide in strict accordance with the law, because freedom of petition (libertad de petición) is founded on the further principle that the Administration may not restrict the right of governed persons to address public bodies (see, to that effect, among others, judgments N° 2009-006982 de las 16:19 hrs. de 30 de abril de 2019, N° 2012-006014 de las 9:05 hrs. de 11 de mayo de 2012 and N° 2016-006885 de las 9:05 hrs. de 20 de mayo de 2016).
It has likewise stated that this right is strictly connected to the time limit contained in the aforementioned Article 32 of the Law governing this Jurisdiction, because public officials are obligated to promptly decide requests submitted by private parties. Where no time limit has been prescribed for that purpose, a response must be provided within ten business days after the requests are submitted; however, the reasons given would have to be assessed to determine whether that period is insufficient in light of the circumstances and nature of the matter, in which case the Administration is always required to inform the requesting person of the reasons for the delay in issuing a decision (see judgment No. 2008-008155 de las 18:52 hrs. de 13 de mayo de 2008 and judgment No. 2016-000494 de las 9:30 hrs. de 15 de enero de 2016). As to the requests submitted by the petitioner [Nombre 001] on 06 de marzo de 2019 to the Concejo de Cartago, on 07 de marzo de 2019 to the Rectoría de Salud de Cartago del Ministerio de Salud, and on 08 de marzo de 2019 to the Secretaría Técnica Nacional Ambiental, seeking information concerning the aforementioned sanitary landfill, it follows that only the second request was addressed, through official letter No. CE-ARSC-0614-2019 del 05 de abril de 2019.
Although Víctor Manuel Villalobos Rodríguez, coordinator of SETENA’s Departamento de Auditoría y Seguimiento Ambiental, informed the petitioner through official letter No. SETENA-DT-ASA-0398-2019 (notified 03 de abril de 2019) that the information was being gathered, there is no evidence that it was ultimately provided. Meanwhile, the respondent authorities of the municipal council do not even mention that request in the report they submitted. Consequently, the action is granted against both authorities because of the aforementioned failure to respond and is denied as to the Ministerio de Salud.
XVI.Conclusion. In view of the foregoing, and given that the uncontrolled and irregular activity reported persists, as one of the petitioners (recurrentes) even alleges in subsequent filings, the amparo action (recurso de amparo) is granted for violation of the rights protected under Articles 21 and 50 of the Constitution, and the municipal, health, and Setena authorities are ordered to issue, jointly and in coordination, the appropriate measures in response to the reported problem, whether health orders (órdenes sanitarias) or any other similar measures aimed at eliminating the risk to the environment and public health posed by the accumulation of solid waste on the property identified by the protected parties, as well as regulating the collection activity occurring there; and the Tribunal Ambiental Administrativo is ordered to diligently conduct the administrative proceeding (procedimiento administrativo), with full respect for the parties’ guarantees and rights, while remaining mindful of the exceptional nature of the protected legal interests (bien jurídico tutelado)—the environment and public health—and, for that purpose, adopting the appropriate measures permitted by the legal system; it shall report to this Chamber on its decision.
Lastly, the action is denied with respect to the request submitted by petitioner [Nombre 001] to the Ministerio de Salud, while the constitutional action is granted regarding the requests he submitted to the respondent local government and Setena, due to failure to observe the right to petition and receive a prompt response (derecho de petición y pronta respuesta).
In environmental matters, it is the undersigned’s view that, where the Public Administration has already intervened, jurisdiction to hear and decide the matter lies with the administrative litigation jurisdiction (jurisdicción contenciosa administrativa). Nevertheless, I do address the merits when other rights of persons affected by the source of contamination are at stake, including health, quality of life, and the right to enjoy a healthy and pollution-free environment (Article 50 of the Constitución Política), as occurs in this case, in which contamination from solid waste and leachate (lixiviados) at the Los Pinos landfill, located in the district of Dulce Nombre de Cartago, is alleged, in violation of the right to enjoy a healthy and ecologically balanced environment and a dignified quality of life.
The parties are hereby advised that, if they have submitted any paper document, as well as objects or evidence contained on any additional electronic, computer, magnetic, optical, or telematic device, or produced using new technologies, such materials must be collected from the court office within no more than 30 business days from notification of this judgment. Otherwise, any material not collected within that period shall be destroyed, pursuant to the "Reglamento sobre Expediente Electrónico ante el Poder Judicial", approved by the Corte Plena at session N° 27-11 of 22 de agosto del 2011, Article XXVI, and published in Boletín Judicial number 19 of 26 de enero del 2012, as well as the resolution approved by the Consejo Superior del Poder Judicial at session N° 43-12 held on 3 de mayo del 2012, Article LXXXI.
Por tanto:
The action is partially granted for violation of the rights protected under Articles 21, 27, and 50 of the Constitución Política. The following is ordered:
Fernando Castillo V.
President Luis Fdo. Salazar A.
Jorge Araya G.
Ana María Picado B.
Anamari Garro V.
Mauricio Chacón J.
Lucila Monge P.
*TXPMR8YZ3ME61* Telephone numbers: 2549-1500 / 800-SALA-4TA (800-7252-482). Fax: 2295-3712 / 2549-1633. Website: www.poder-judicial.go.cr/salaconstitucional. Address: (Sabana Sur, Calle Morenos, 100 mts.Sur de la iglesia del Perpetuo Socorro). Submission of matters involving vulnerable groups: Edificio Corte Suprema de Justicia, San José, Distrito Catedral, Barrio González Lahmann, calles 19 y 21, avenidas 8 y 6
*190051990007CO* SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE JUSTICIA. San José, a las nueve horas treinta minutos del siete de febrero de dos mil veinte .
Recursos de amparo interpuestos por [Nombre 001], mayor, casado, cédula de identidad No. [Valor 001] y [Nombre 002], adulto mayor, divorciado, cédula de identidad No. [Valor 002], contra el Alcalde y la Presidenta del Concejo, ambos de la Municipalidad de Cartago, la Secretaria General de la Secretaría Técnica Nacional Ambiental, el Ministro de Salud, el Director Regional de la Rectoría de la Salud Central Este del Ministerio de Salud y la Presidenta del Tribunal Ambiental Administrativo.
Resultando:
Redacta el Magistrado Chacón Jiménez; y,
Considerando:
I.Sobre las terceras personas interesadas. De conformidad con lo dispuesto por el artículo 34, párrafo segundo, de la Ley de la Jurisdicción Constitucional, se tiene como terceras interesadas en este proceso a Ileana María González Paniagua y a Olga Marta Arias Rivas, respectivamente, en su condición de representantes de WPP Continental de Costa Rica S.A. y de WPP Coriclean Los Pinos Waste Disposal S.A., empresas contratadas para operar el Relleno Sanitario Los Pinos.
II.Objeto del recurso. Los recurrentes alegan que la Municipalidad del Cartago, la Dirección Regional de Salud de Cartago y la Setena han omitido fiscalizar la actividad que se realiza en el vertedero de Los Pinos, ubicado en el poblado de Navarro del distrito de Dulce Nombre de Cartago, que recibe los desechos sólidos de municipios de El Guarco, Paraíso y Oreamuno, entre otros, pues a pesar de conocer abiertamente la precariedad en que funciona, no han tomado acciones para impedir que su operación continúe, creando con ello grandes focos de contaminación ambiental. Dicen que pese a que se ha agotado la vida útil del vertedero, el sitio de operación se ha venido ampliando sin contar con viabilidad ambiental. Afirman que los desechos se depositan en la cúspide del basurero, de manera que los lixiviados escurren libremente también hacia la parte del basurero que está en un terreno de la Municipalidad de Cartago.
También el recurrente [Nombre 001] alega falta de respuesta de las gestiones que presentó ante el Concejo de Cartago, la Regional de Cartago del Ministerio de Salud y Setena. Se solicita ordenar a los recurridos suspender de inmediato el ingreso de basura al relleno sanitario. Además, se realicen y concluyan las obras de cierre técnico en un plazo perentorio. También que se anule el Permiso Sanitario de Funcionamiento No. 3212-2019, pues, según se indica, se otorgó sin estudio técnico de respaldo.
III.Hechos probados. De importancia para la decisión de este asunto, se estiman como debidamente demostrados los siguientes hechos, sea porque así han sido acreditados o bien porque los recurridos hayan omitido referirse a ellos según lo prevenido en el auto inicial:
Respecto a las gestiones presentadas por el recurrente [Nombre 001] ante el Concejo de la Municipalidad de Cartago, el Área Rectora de Salud de Cartago del Ministerio de Salud y la SETENA.
La gestión interpuesta ante el Concejo de Cartago.
El 06 de marzo de 2019, el recurrente [Nombre 001] le solicitó al Concejo de Cartago que le brindara la siguiente información: “(…) 1. En qué fecha inicio (sic) el Vertedero de Navarro, lugar donde esta Municipalidad deposito (sic) por muchos años sus desechos sólidos). 2. Cuales (sic) Municipalidades depositan aun (sic) los desechos sólidos de sus cantones? 3. Cuantas (sic) toneladas recibe aun (sic) dicho vertedero? 4. Cuando (sic) inicio (sic) el cierre técnico de dicho lugar y cuánto tiempo se espera concluir sus obras? 5. Cuenta este municipio con planos de dichas obras. 6. Autorizo (sic) esta Municipalidad el inicio de las obras de cierre técnico en base a (sic) que (sic) estudios autorizo (sic) las mismas? 7. Tienen ustedes información de los desechos que son depositados en ese lugar y cuáles son los parámetros de compactación de los mismos? 8. Cuentan ustedes con planos del sistema de drenajes de los lixiviados? 9.
Conocen ustedes de la (sic) cantidad de lixiviados que genera diariamente este vertedero? 10. Han autorizado ustedes la construcción de una planta de tratamiento de lixiviados a la empresa que opera dicho sitio? 11. Ha autorizado este Municipio a la empresa operadora a utilizar una supuesta planta de tratamiento de lixiviados que pertenece a esta Municipalidad, la que se encuentra en el lugar, si así ha sido, sirva entregar copia de ese convenio? 12. Cuenta esta Municipalidad con la medición de taludes de dicho vertedero? 13. Que (sic) estudios tiene esta Municipalidad sobre el gas metano de dicho lugar? 14.- Cuenta este lugar con canales pluviales? 15.- Cuenta este sitio con material necesario para cubrir la basura todos los días, a como (sic) lo estipula el Reglamentos de rellenos sanitarios? 16.- Qué tipo de material se usa para cubrir la basura diariamente, ya que el reglamento de rellenos sanitarios estipula la calidad de material que se debe de usar para tal fin? 17.
Existe algún contrato de obras de cierre térmico, cuando inicio y cuando debe de concluir? 18. Cuentan ustedes con informes de avance de esas obras? 19. Ha autorizado esta Municipalidad de Cartago algún permiso para la ampliación de este vertedero y si se ha otorgado algún visado municipal a esta ampliación? 20. De qué lugar están trayendo el material de cobertura, y si es del mismo sitio, otorgaron ustedes esa autorización? 21. Cuenta con visto bueno de Setena esta ampliación? Si así fuese solicito copia de esta autorización. 22. Del lugar donde se está trayendo el material, era zona virgen con áreas verdes? 23. Para autorizar cualquier obra de extracción de material se requiere estudios de SETENA, tienen ustedes estos estudios? De ser así solicito se me entregue copia, para lo cual su servidor se hará cargo de las costas de estas. 24. Cuenta esta Municipalidad Con ESTUDIOS DE CARACTERIZACION DE LOS LIXIVIADOS Y LAS AGUAS SUBTERRANEAS DEL VERTEDERO DE LOS PINOS, (NAVARRO)?
De ser así solicito con el debido respeto se me entregue copia de ellos de los últimos 3 meses. 25. Cuentan ustedes con estudios de estabilidad de taludes?, pues es conocido que una vez que la basura se asienta, empieza a desplazarse los taludes. 26. Que (sic) se está haciendo con el sistema de emisión de gases? 27. Existen planos de diseño para las obras de post- cierre, una vez concluidas las obras de cierre técnico? 28. Conocen ustedes si las nuevas celdas que se están construyendo cuentan con los estudios y visto bueno de los funcionarios Municipales, el Ministerio de Salud o la misma SETENA? 29. Conocen ustedes si a estas nuevas celdas se les está colocando geomembrana, a como (sic) lo exige el Reglamento de Rellenos Sanitarios (…)” (documento aportado por el recurrente).
1.2. La gestión presentada ante el Ministerio de Salud.
El 07 de marzo de 2019, el recurrente [Nombre 001] solicitó a la Rectoría de Salud de Cartago del Ministerio de Salud que le brindara la siguiente información: “(…)1.- El Ministerio de Salud le ha otorgado visto bueno de funcionamiento? 2. Cuentan ustedes con los planos de las obras que se realizan en ese lugar y los estudios técnicos? 3. Bajo qué criterios técnicos se les otorgó el permiso el Ministerio de Salud de Cartago? 4. Cuentan ustedes con los reportes operacionales de dicho vertedero, como de Iixiviados, aguas subterráneas, desplazamientos de los taludes etc.? 5. De ser así les solicito copia de los ESTUDIOS DE CARACTERIZACION (sic) DE LOS LIXIVIADOS Y LAS AGUAS SUBTERRANEAS (sic) DEL VERTEDERO DE LOS PINOS, (NAVARRO), de los últimos 3 meses. 6. Cuales (sic) Municipalidades depositan aun los desechos sólidos de sus cantones? 7. Cuántas toneladas recibe aun dicho vertedero? 8. Autorizo (sic) el Ministerio de Salud de Cartago el inicio de las obras de cierre técnico y en base a que (sic) estudios autorizo las mismas? 9.
Tienen ustedes información de los desechos que son depositados en ese lugar y cuáles son los parámetros de compactación de los mismos? 10. Cuentan ustedes con planos del sistema de drenajes de los lixiviados? 11. Conocen ustedes de la cantidad de lixiviados que genera diariamente este vertedero y en donde (sic) son depositados? 12. Han autorizado ustedes la construcción de una planta de tratamiento de lixiviados a la empresa que opera dicho sitio? 13. Ha autorizado el Ministerio de Salud de Cartago a la empresa operadora de dicho vertedero a utilizar una supuesta planta de tratamiento de lixiviados que pertenece a la Municipalidad de Cartago, la que se encuentra en el lugar, si así ha sido, cuentan ustedes con copia e ese convenio? 14. Cuenta el Ministerio de Salud con la medición de taludes de dicho vertedero? 15. Que (sic) estudios tiene el Ministerio de Salud sobre el gas metano de dicho lugar? 16.
Cuenta este lugar con canales pluviales? 17. Cuenta este sitio con material necesario para cubrir la basura todos los días, a como (sic) lo estipula el Reglamento de rellenos sanitarios y quien (sic) supervisa esto? 18. Qué tipo de material se usa para cubrir la basura diariamente, ya que el reglamento de rellenos sanitarios estipula la calidad de material que se debe de usar para tal fin? 19. Ha autorizado el Ministerio de Salud de Cartago algún permiso para la ampliación de este vertedero? 20. Cuenta con visto bueno de Setena esta ampliación? Si así fuese solicito copia de esta autorización. 21 De qué lugar (sic) están trayendo el material de cobertura, y si es del mismo sitio, otorgaren ustedes esa autorización? 22. Del lugar dónde (sic) se está trayendo el material, era zona virgen con áreas verdes? 23. Para autorizar cualquier obra de extracción de material se requiere estudios de SETENA, tienen ustedes estos estudios?
De ser así solicito se me entregue copia para lo cual su servidor se hará cargo de las costas de estas copias. 24. Existen planos de diseño para las obras de post- cierre, una vez concluidas las obras de cierre técnico? (…)” (documento aportado por el recurrente).
Por medio del oficio No. CE-ARSC-0614-2019, del 05 de abril de 2019, Andrea Morales Fiesler, directora del Área Rectora de Salud de Cartago, le informó al recurrente [Nombre 001] lo siguiente: “Sirva el presente para saludarlo cordialmente y a la vez informarle en atención a su solicitud, que de acuerdo con los artículos 1 y 2 de la Ley General de Salud, es función esencial del Estado velar por la salud de la población pues es un bien de interés público, tutelado a través del Ministerio de Salud. Como ente rector y a través de sus tres niveles de gestión, ha realizado visitas de inspección al Relleno Sanitario Los Pinos y ha regulado que las actividades que se llevan a cabo se ajusten a lo solicitado técnica y legalmente, utilizando como base la legislación vigente tal como el Decreto No. 38928-S Reglamento sobre Rellenos Sanitarios. El relleno sanitario sí cuenta con un Permiso Sanitario de Funcionamiento, al cumplir con los requisitos documentales establecidos en el Decreto No. 39472-S Reglamento General para Autorizaciones y Permisos Sanitarios de Funcionamiento Otorgados por el Ministerio de Salud y al verificarse en el sitio, el cumplimiento de actos administrativos y condiciones físico sanitarias óptimas.
Para el desarrollo del proyecto de relleno sanitario se cuenta con planos aprobados mediante la plataforma digital de tramitación de proyectos del Colegio Federado de Ingenieros y Arquitectos (CFIA), que han sido revisados por la Dirección Regional de Rectoría de la Salud Central Este del Ministerio de Salud. Los planos incluyen el sistema de conducción de lixiviados y obras de cierre técnico, entre otros aspectos, tal como lo señala el Reglamento sobre Rellenos Sanitarios. El relleno sanitario cuenta con un sistema de tratamiento para lixiviados construido desde que inicio el proyecto, el cual vierte su efluente hacia el rio Agua Caliente y funciona adecuadamente, así constatado mediante las inspecciones y la revisión de reportes operacionales de aguas residuales, que muestran los resultados de parámetros físico químicos y estén elaborados bajo el formato establecido en el Anexo 2 del Decreto N° 33601 Reglamento de Vertido y Reuso de Aguas Residuales.
Asimismo, el Ministerio de Salud revisa los reportes operacionales del relleno sanitario, donde se hace referencia a los tipos y las cantidades de residuos, así como los resultados de los pozos de monitoreo. La planta de tratamiento fue autorizada desde hace ya varios años cuando se inició el proceso de reconversión de vertedero a relleno sanitario, actualmente no se ha construido un nuevo sistema. En relación con el punto 13 de su nota, me permito informarle que el Ministerio de Salud no es una de las partes propietarias del terreno ni forma parte del tema contractual que regula el uso de las propiedades y los bienes del relleno sanitario. Por otra parte, los estudios y las autorizaciones que haya brindado otra institución como la Secretaria Técnica Nacional Ambiental (SETENA), se deben consultar directamente ante esa entidad, pues fue quien los elaboró y emitió. Sin embargo, no omito manifestarle que el Ministerio de Salud como ente regulador, ha solicitado la documentación pertinente para el PSF con base en lo establecido en el Reglamento General para Autorizaciones y Permisos Sanitarios de Funcionamiento Otorgados por el Ministerio de Salud, así como otra documentación que ha considerado que debe ser de conocimiento del Ministerio de Salud.
Finalmente, con respecto a los puntos 25 y 26 de su nota presentada ante este ministerio, le solicito respetuosamente aclarar las nuevas celdas a las que hace referencia, ya que indica que están en construcción, y es importante para el Ministerio de Salud conocer el sitio exacto en donde usted constató que se están llevando a cabo las obras, esto para un mejor resolver por parte del ministerio y poder informarle con mayor detalle. Esperando haberle informado conforme, cordialmente” (informe de la autoridad sanitaria recurrida y prueba documental aportada).
1.3 Referente a la gestión interpuesta en la Secretaría Técnica Nacional Ambiental.
El 08 de marzo de 2019, el recurrente [Nombre 001] solicitó a la Secretaría Técnica Nacional Ambiental que se le informara lo siguiente: “(…) La SETENA ha otorgado visto bueno de funcionamiento a dicho sitio? 2. Cuenta la SETENA con las bitácoras de las visitas en las cuales supervisan a dicho lugar? 3. Cual (sic) es el nombre del regente ambiental, encargado de entregar los reportes a la SETENA y cada cuanto (sic) tiempo lo hace? 4. Tienen ustedes copias de los planos de las obras que se realizan en ese lugar y los estudios técnicos? 5. Cuentan ustedes con los reportes operacionales de dicho vertedero, como de lixiviados, aguas subterráneas, desplazamientos de los taludes etc.? 6. De ser así, les solicito copia de los ESTUDIOS DE CARACTERIZACION (sic) DE LOS LIXIVIADOS Y LAS AGUAS SUBTERRANEAS (sic) DEL VERTEDERO DE LOS PINOS, (NAVARRO), de los últimos 3 meses. 7. Tienen ustedes el informe de cuantas toneladas se depositan diariamente en ese lugar y cuales (sic) Municipalidades? 8. Conocen ustedes la vida útil del dicho vertedero? (…)” (documento aportado por el recurrente).
Por medio del oficio No. SETENA-DT-ASA-0398-2019 (notificado 03 de abril de 2019), Víctor Manuel Villalobos Rodríguez, coordinador del Departamento de Auditoría y Seguimiento Ambiental de Setena, indicó al recurrente [Nombre 001], lo siguiente: “… Tal y como consta en el expediente administrativo, la nota de consecutivo 01996-ASA, se compone de una gran cantidad de interrogantes (24), las cuales por su complejidad y tipo de información solicitada, no es posible para esta Secretaría responder de manera inmediata; por tal razón se le indica en el presente oficio, que en la actualidad y desde el momento en que el Departamento de Auditoría y Seguimiento Ambiental recibió su solicitud; estamos recabando la información requerida por su persona. Adicional a lo anterior es importante mencionar que alguna de la información solicitada, no es competencia de esta Secretaría, o bien no se encuentra en el expediente, por lo que se procederá a solicitar la misma a la o las instituciones o personas correspondientes. Se aclara que conociendo el número de la República tiene acceso a la información contenida en cada archivo institucional, donde podrá gestionar la obtención copias de los documentos de su interés...” (informe de la secretaria general ad hoc de Setena y prueba documental aportada).
El Relleno Sanitario Los Pinos, ubicado en el poblado de Navarro del distrito de Dulce Nombre de Cartago, que recibe los desechos sólidos de El Guarco, Paraíso, Oreamuno, Alvarado y La Unión, opera en terrenos colindantes que son propiedad de la Municipalidad de Cartago y la empresa WPP Continental de Costa Rica S.A., quienes suscribieron un contrato para la operación y disposición final de los desechos (informes de las autoridades recurridas y prueba documental aportada).
Existe un conflicto interno entre la Municipalidad de Cartago y WPP Continental Costa Rica, por lo que desde el 12 de junio de 2018 se encuentra detenido el depósito de material en el propiedad del ayuntamiento y únicamente se están recibiendo desechos para ser ubicados en la propiedad de la empresa privada (informes de las autoridades recurridas y prueba documental aportada).
La Municipalidad de Cartago dispone sus residuos en la finca No. 134368-000, propiedad de las Empresas Berthier EBl de Costa Rica S.A., en el sitio denominado Parque de Tecnología Ambiental Aczarri, ubicado en el Huazo de Aserrí (informe del alcalde recurrido).
El Relleno Sanitario Los Pinos recibe desechos de los municipios de El Guarco, Paraíso, Oreamuno, Alvarado, Jiménez y Zona de los Santos y particulares de la provincia de Cartago (informe del ministro de salud).
La problemática contractual de índole legal que existe entre las empresas WPP Continental de Costa Rica S.A. y WPF Coriclean Los Pinos Waste Disponsal S.A WPP y la Municipalidad de Cartago ha ocasionado que en el sector del Relleno Sanitario propiedad de ese cabildo no haya brindado mantenimiento ni se hayan realizado las obras de cierre técnico, teniendo como resultado el empozamiento de lixiviados en el terreno, la exposición de residuos por falta de cobertura, entre otras condiciones insalubres que ponen en riesgo la salud pública (informe del ministro de salud y prueba documental aportada).
El ingreso disminuyó a un promedio de 275,13 toneladas diarias, ocasionado para la finalización del contrato con la Municipalidad de Cartago, para la disposición final de desechos (informe del ministro de salud).
El 20 de junio de 2018, la Municipalidad de Cartago presentó ante el Tribunal Ambiental Administrativo una denuncia de carácter ambiental contra WPP ContinentaI de Costa Rica S.A., WPP Coriclean Los Pinos Waste Disposal S.A., el Área Rectora de Salud de Cartago, a cargo de la Doctora Andrea Morales Fiesler y contra el Ing. Federico Salas Sarkis, regente ambiental del Proyecto Cierre Técnico del Vertedero de Navarro y Construcción del Relleno Sanitario Los Pinos, por eventual violación a la legislación ambiental (informes de las autoridades recurridas y prueba documental aportada).
El caso denunciado por el alcalde de Cartago ante el Tribunal Ambiental Administrativo, tramitado en el expediente administrativo No. [Valor 005], al que se acumuló el oficio No. SETENA-SG-1575-2018, suscrito por el Msc. Sergio Bermúdez Muñoz, en su condición de Secretario General de la Setena, mediante el cual el 23 de agosto de 2019, presentó formal denuncia de carácter ambiental y remite el expediente administrativo [Valor 007]-SETENA "Proyecto Relleno Sanitario Los Pinos", respecto de los cuales ya se realizó una inspección, se encuentra en etapa de investigación preliminar, es decir, realizando un análisis de los documentos técnicos y legales que conforman el expediente administrativo a fin de determinar la verdad real de los hechos (informe de la presidenta del tribunal recurrido).
En el expediente No. [Valor 004] radicado en el Tribunal Contencioso Administrativo, las empresas WPP Continental de Costa Rica S.A. y de WPP Coriclean Los Pinos Waste Disposal S.A., presentaron proceso de conocimiento contra la Municipalidad de Cartago (informes de las autoridades recurridas y prueba documental aportada).
Considerando un ingreso promedio de 275.13 Ton/día, la vida útil del terreno activo por parte de la Empresa WPP estaría finalizando la recepción de material de relleno para finales del mes de enero del año 2020 (informes de las autoridades recurridas y prueba documental aportada).
Se recomienda monitorear el relleno sanitario cada 2 meses por parte del Área Rectora de Salud de Cartago como seguimiento a la vida útil del terreno propiedad de la empresa WPP Continental. Esto en caso de que se llegue a culminar su capacidad con antelación, de manera que se pueda verificar su correcta gestión y respectivo cierre técnico (informes de las autoridades recurridas y prueba documental aportada).
El cierre técnico de un relleno sanitario ante la SETENA es distinto al cierre técnico del Ministerio de Salud, y de cualquier otra gestión a nivel municipal, pues corresponde a un acto final del proyecto para la etapa constructiva u operativa (o ambas), donde el desarrollador del proyecto demuestra a la SETENA, el cumplimiento de los compromisos ambientales (informe de la secretaria general de Setena).
El expediente administrativo [Valor 007]-SETENA que corresponde al Relleno Sanitario Los Pinos, se encuentra activo, y actualmente en operación o fase de Gestión Ambiental, que se puede extender hasta 15 años posterior al cese de recepción de residuos, por lo anterior, el proyecto de marras no es sujeto a cierre técnico ante Setena (informe de la secretaria general de Setena).
Una vez finalizada la etapa o periodo de gestión ambiental, siempre y cuando el mismo haya cumplido con todos los compromisos ambientales adquiridos tanto en la evaluación ambiental como en el seguimiento, se podrá solicitar el cierre técnico ante SETENA, para el proyecto y ésta entrará a valorar si se cumplen los compromisos ambientales y si es factible aprobar el cierre técnico del mismo (informe de la secretaria general de Setena).
Para que SETENA apruebe el cierre técnico que le compete, el desarrollador debe primero cumplir con todos los compromisos ambientales adquiridos en el proceso de evaluación ambiental, así como en el seguimiento. En el caso de los rellenos sanitarios no solo incluye la fase operativa o bien de recepción de basura, sino también la fase cierre operativa, fase post cierre y la recuperación ambiental del área del relleno (informe de la secretaria general de Setena).
Mediante orden sanitaria No. CE-ARS-O-OS-0146-2019 del 20 de agosto de 2019, Oscar Rodríguez González, director del Área Rectora de Salud de Oreamuno del Ministerio de Salud, le previno a la Municipalidad de Cartago presentar en 15 días hábiles, a vencer el 16 de setiembre de 2019, alternativas distintas al relleno sanitario Los Pinos para la gestión integral y sanitaria de los residuos sólidos de las comunidades bajo su responsabilidad (documento aportado por el recurrente).
Por oficio No. MUOR-AM-1171-2019 del 12 de setiembre de 2019, -recibido el 17 de setiembre de 2019-, la Municipalidad de Oreamuno le informó a Oscar Rodríguez González, director del Área Rectora de Salud de Oreamuno del Ministerio de Salud, que “…en la propuesta de Presupuesto Ordinario para el año 2020 se ha previsto la inclusión de contenido económico en el Departamento de Recolección de Residuos que nos permita hacer trente a un cambio de alternativa diferente a la del Relleno Sanitario Los Pinos. Sin embargo, y en respuesta a dicha orden en este momento el Municipio se encuentra en la etapa de identificación de alternativas diferentes a la del Relleno Sanitario Los Pinos, las cuales incluyen la solicitud de proformas de cotización, para así evaluar los escenarios y factibilidades que se puedan ejecutar” (informe de la ministra interina de Salud y prueba documental aportada).
Como parte de la gestión de Auditoría y Seguimiento Ambiental, al cual está obligada Setena, el 09 de octubre de 2018 realizó inspección al sitio, a manera de acompañamiento al Tribunal Ambiental Administrativo, y a raíz de la inspección, se encuentra en un proceso de investigación, analizando tanto el expediente administrativo, como lo observado en el campo, con el fin de determinar si hay o no, nuevos incumplimientos ambientales. Como parte del proceso investigativo se determinó que, en su momento, se solicitará criterio técnico específico a la entidad responsable de la fiscalización de la operación del Relleno, a saber, el Ministerio de Salud, así como también solicitar al desarrollador del proyecto una serie de aclaraciones e información complementaria (informe de la secretaria general de Setena).
Único. Que el Concejo de Cartago y la Setena hayan atendido las gestiones presentadas por el recurrente [Nombre 001] el 06 y 08 de marzo de 2019, respectivamente.
V.Sobre el derecho a un medio ambiente sano y ecológicamente equilibrado. Previo a la reforma del artículo 50, de la Constitución Política, la jurisprudencia de esta Sala reconoció la protección y preservación del ambiente como un derecho fundamental, al derivarlo de lo dispuesto en los artículos 21 (derecho a la salud), 69 (exigencia constitucional a la "explotación racional de la tierra") y 89 (protección de las bellezas naturales), todos de la Constitución Política, con fundamento en las siguientes consideraciones: "V.)- La vida humana sólo es posible en solidaridad con la naturaleza que nos sustenta y nos sostiene, no sólo para alimento físico, sino también como bienestar psíquico: constituye el derecho que todos los ciudadanos tenemos de vivir en un ambiente libre de contaminación, que es la base de una sociedad justa y productiva. Es así como el artículo 21 de la Constitución Política señala: La vida humana es inviolable. Es de este principio constitucional de donde innegablemente se desprende el derecho a la salud, al bienestar físico, mental y social, derecho humano que se encuentra indisolublemente ligado al derecho de la salud y a la obligación del Estado de proteger de la vida humana.
Asimismo, desde el punto de vista psíquico e intelectual, el estado de ánimo depende también de la naturaleza, por lo que también de la naturaleza, por lo que también al convertirse el paisaje en un espacio útil de descanso y tiempo libre es obligación su preservación y conservación. Aspecto este último que está protegido en el artículo 89 constitucional, el cual literalmente dice: «Entre los fines culturales de la República están: proteger las bellezas naturales, conservar y desarrollar el patrimonio histórico y artístico de la Nación, y apoyar la iniciativa privada para el progreso científico y artístico». Proteger la naturaleza desde el punto de vista estético no es comercializarla ni transformarla en mercancía, es educar al ciudadano para que aprenda a apreciar el paisaje estético por su valor intrínseco" (sentencia número 3705-93, de las quince horas del treinta de julio de mil noventa y tres).
También ha señalado esta Sala, reiteradamente, que el Estado tiene la responsabilidad ineludible de defender y preservar los recursos naturales, procurando el cumplimiento de las disposiciones legales y reglamentarias existentes, especialmente las que regulan las actividades que realiza el ser humano, a fin de que no se afecte negativamente el patrimonio natural. La coordinación entre las dependencias públicas, debe garantizar esa protección del medio ambiente. En diversas oportunidades, la jurisprudencia constitucional ha indicado que la protección del ambiente es una tarea que corresponde a todos por igual, es decir, que existe una obligación para el Estado –como un todo- de tomar las medidas necesarias para proteger el medio, a fin de evitar grados de contaminación, deforestación, extinción de flora y fauna, uso desmedido o inadecuado de los recursos naturales, que pongan el peligro la salud de los administrados.
En esta tarea, por institución pública, debe entenderse comprendida tanto la Administración Central –Ministerios, como el Ministerio del Ambiente y Energía y el Ministerio de Salud, que en razón de la materia, tienen una amplia participación y responsabilidad en lo que respecta a la conservación y preservación del ambiente; los cuales actúan, la mayoría de las veces, a través de sus dependencias especializadas en la materia, como por ejemplo, la Dirección General de Vida Silvestre, la Dirección Forestal, y la Secretaría Técnica Nacional Ambiental (SETENA); así como también las instituciones descentralizadas, caso del Instituto Nacional de Vivienda y Urbanismo, el SENARA, el Instituto Costarricense de Turismo o el Instituto Costarricense de Acueductos y Alcantarillados; tarea en la que por supuesto tienen gran responsabilidad las municipalidades, en lo que respecta a su jurisdicción territorial.
Es por ello, que podría pensarse que esta múltiple responsabilidad provocaría un caos en la gestión administrativa, lo cual no es cierto, por cuanto a fin de evitar la coexistencia simultánea de esferas de poder de diferente origen y esencia, la duplicación de los esfuerzos nacionales y locales, así como la confusión de derechos y obligaciones entre las diversas partes involucradas, es que se hace necesario establecer una serie de relaciones de coordinación entre las diversas dependencias del Poder Ejecutivo y las instituciones descentralizadas, y entre éstas con las municipalidades, a fin de poder llevar a cabo las funciones que les han sido encomendadas. Esta Sala con anterioridad –y en forma bastante clara- se refirió al principio de coordinación de las dependencias públicas con las municipalidades en la realización de fines comunes -lo cual, obviamente se debe hacer extensivo a la relación que en esta importante función realizan las instituciones de la Administración Central y las descentralizadas-, para lo cual se remite a lo indicado en aquella ocasión (Sentencia N° 1999-5445, de las catorce horas treinta minutos del catorce de julio de mil novecientos noventa y nueve):
"De manera que la coordinación es la ordenación de las relaciones entre estas diversas actividades independientes, que se hace cargo de esa concurrencia en un mismo objeto o entidad, para hacerla útil a un plan público global, sin suprimir la independencia recíproca de los sujetos agentes. Como no hay una relación de jerarquía de las instituciones descentralizadas, ni del Estado mismo en relación con las municipalidades, no es posible la imposición a éstas de determinadas conductas, con lo cual surge el imprescindible «concierto» interinstitucional, en sentido estricto, en cuanto los centros autónomos e independientes de acción se ponen de acuerdo sobre ese esquema preventivo y global, en el que cada uno cumple un papel con vista en una misión confiada a los otros. Así, las relaciones de las municipalidades con los otros entes públicos, sólo pueden llevarse a cabo en un plano de igualdad, que den como resultado formas pactadas de coordinación, con exclusión de cualquier forma imperativa en detrimento de su autonomía, que permita sujetar a los entes corporativos a un esquema de coordinación sin su voluntad o contra ella; pero que sí admite la necesaria subordinación de estos entes al Estado y en interés de éste (a través de la «tutela administrativa» del Estado, y específicamente, en la función de control la legalidad que a éste compete, con potestades de vigilancia general sobre todo el sector)”.
Por otro lado, las omisiones al deber de protección del ambiente y de cumplimiento de la normativa ambiental son de relevancia constitucional, por cuanto a consecuencia de la inercia de la Administración en esta materia, se puede producir un daño al ambiente y a los recursos naturales, a veces, de similares o mayores consecuencias, que de las derivadas de las actuaciones de la Administración; como lo es la autorización de planes reguladores, o construcciones sin la aprobación del estudio de impacto ambiental por parte Secretaría Técnica Nacional Ambiental, o la falta de control y fiscalización en la ejecución de los planes de manejo de las áreas protegidas por parte de la Dirección General de Vida Silvestre del Ministerio del Ambiente y Energía, o el permitir el funcionamiento de empresas sin los permisos de salud en lo que respecta al tratamiento de aguas negras o residuales (Acueductos y Alcantarillados y Ministerio de Salud), o no verificar los controles sónicos en bares, karaokes y discotheques (municipalidades y Ministerio de Salud), etc.
VI.En cuanto al derecho a la salud y el derecho a gozar de un ambiente sano. La salud pública y el derecho a un ambiente sano y ecológicamente equilibrado se encuentran reconocidos constitucionalmente en los artículos 21, 50, 73 y 89 de la Constitución Política, así como a través de la normativa internacional. Específicamente, el artículo 50 constitucional reconoce de forma expresa el derecho de todos los habitantes del país a disfrutar de un medio ambiente saludable y en perfecto equilibrio. Ese derecho es garantía fundamental para la protección de la vida y la salud pública. Esta disposición constitucional se complementa por lo establecido en el numeral 11 del "Protocolo Adicional a la Convención Americana sobre Derechos Humanos en materia de Derechos Económicos, Sociales y Culturales". Asimismo, en relación con las obligaciones que tienen las autoridades públicas de garantizar el derecho a la salud y el derecho a un ambiente sano, este Tribunal Constitucional mediante la sentencia No.180-98 de 16:24 hrs. del 13 de enero de 1998 dispuso:
"...el Estado no solo tiene la responsabilidad ineludible de velar para que la salud de cada una de las personas que componen la comunidad nacional, no sufra daños por parte de terceros, en relación a estos derechos, sino que, además, debe asumir la responsabilidad de lograr las condiciones sociales propicias a fin de que cada persona pueda disfrutar de su salud, entendido tal derecho, como una situación de bienestar físico, psíquico (o mental) y social." En ese sentido, el Estado costarricense se encuentra en la obligación de actuar preventivamente evitando, mediante una fiscalización e intervención directa, la realización de actos que lesionen el medio ambiente, la cual está, inevitablemente, correlacionada con la obligación del Estado de velar por la preservación de la salud de sus habitantes. Cabe señalar que este Tribunal como garante de los derechos fundamentales, se erige como un contralor del cumplimiento de las obligaciones que derivan de lo dispuesto en los artículos 21 y 50 constitucionales, que constriñen al Estado no sólo a reconocer los derechos señalados, sino además a utilizar los medios material y jurídicamente legítimos para garantizarlos (sentencia No. 2007-017341 de las 15:42 hrs. del 28 de noviembre de 2007, reiterada, entre otras, en la sentencia No. 2016-009543 de las 9:45 hrs. del 8 de julio de 2016).
VII.Sobre el principio de coordinación interadministrativa . Uno de los principios rectores de la organización administrativa lo constituye la coordinación que debe mediar entre todos los entes y órganos públicos al ejercer sus competencias y prestar los servicios que el ordenamiento jurídico les ha asignado. La coordinación, en cuanto asegura la eficiencia y eficacia administrativas, es un principio constitucional virtual o implícito que permea el entero ordenamiento jurídico administrativo y obliga a todos los entes públicos. Esta puede ser interorgánica –entre los diversos órganos que conforman un ente público no sujetos a una relación de jerarquía– o intersubjetiva, esto es, entre los entes públicos, cada uno con personalidad jurídica, presupuesto propio, autonomía y competencias específicas. La autonomía administrativa o de otro grado de cuya titularidad gozan los entes públicos los obliga a coordinar sus acciones, puesto que, no pueden estar sometidos recíprocamente a relaciones de jerarquía por su naturaleza interorgánica.
La coordinación administrativa tiene por propósito evitar las duplicidades y omisiones en el ejercicio de las funciones administrativas de cada ente público, esto es, que sean desempeñadas de forma racional y ordenada; y se logra a través del establecimiento de niveles o canales fluidos y permanentes de información entre los entes públicos, todo lo cual se puede lograr a través de reuniones, informes o la creación de instancias formales de coordinación.
VIII.En cuanto a la competencia constitucional en materia ambiental. Tal y como ha sido reiterado en la jurisprudencia de esta Sala, la competencia constitucional en materia ambiental no puede extenderse al punto en que se convierta en un verificador de los criterios técnicos vertidos en las normas o por las autoridades administrativas en materia ambiental, sino que se limita a constatar si las dependencias estatales competentes han cumplido la obligación que les impone el artículo 50 de la Constitución Política, de asumir una actuación responsable y oportuna respecto a la protección del ambiente. Se ha sostenido también, que la procedencia del recurso de amparo está condicionada a que se acredite la existencia de una perturbación o amenaza a uno o más de los derechos o garantías contemplados en la Carta Política o en los instrumentos internacionales de derechos humanos suscritos por el país.
Esta última circunstancia pone de relieve el carácter eminentemente sumario del proceso de amparo, cuya tramitación no se aviene bien con la práctica de diligencias probatorias lentas y complejas, o con la necesidad de entrar previamente a examinar -con carácter declarativo- si existen en realidad o no derechos de rango infra constitucional que las partes citen como parte del elenco fáctico del recurso de amparo o del informe de ley, según sea el caso, toda vez que es evidente que esa es una competencia de la que esta Sala carece. Ante esta situación, no resulta procedente que la Sala vierta pronunciamiento alguno (positivo o negativo) en estos casos, porque para dilucidar si ha habido infracción o no de derechos fundamentales primero se debe resolver dicho conflicto en el plano de la legalidad.
IX.Sobre la contaminación acusada por los recurrentes en el caso concreto. Los recurrentes acusan que las autoridades recurridas han omitido fiscalizar la actividad que se realiza en el vertedero de Los Pinos, ubicado en el poblado de Navarro del distrito de Dulce Nombre de Cartago, que recibe los desechos sólidos de municipios de El Guarco, Paraíso y Oreamuno, entre otros, pues a pesar de conocer abiertamente la precariedad en que funciona, no han tomado acciones para impedir que su operación continúe, creando con ello grandes focos de contaminación ambiental. Si bien el problema de fondo que aqueja a los recurrentes es la acusada contaminación -y el consecuente daño a la salud pública- que genera lo que denominan vertedero y las autoridades recurridas sostienen que es un relleno sanitario, que opera un sujeto de derecho privado, lo cierto del caso es que acuden ante esta Sala acusando la omisión de deberes por parte de las diferentes instituciones encargadas, pues pese a ser de su pleno conocimiento los problemas suscitados en el acopio de desechos, la situación denunciada se mantiene, persiste y agrava con el paso del tiempo, ante la pasividad y desidia de éstas.
Por su parte, todas las autoridades recurridas, incluyendo al Tribunal Ambiental Administrativo, defienden su accionar, incluso desconociendo su rango de actuación, como se dirá. Para ello, realizan un recuento de las actuaciones desplegadas, indicando que han atendido diligentemente dentro del marco de sus competencias la problemática expuesta. A modo de resumen, las autoridades municipales refieren haber denunciado a la empresa operadora del relleno ante el Ministerio de Salud y el citado tribunal administrativo. Lo que motivó que éste decretara la apertura de un procedimiento administrativo que está en etapa preliminar. Mientras que el citado Ministerio ha emitido órdenes sanitarias de variada índole, tanto contra la Municipalidad de Cartago, como la empresa que opera el relleno sanitario. Por ejemplo, mediante orden sanitaria No. CE-ARS-O-OS-0146-2019 del 20 de agosto de 2019, le previno a ese cabildo presentar en 15 días hábiles, a vencer el 16 de setiembre de 2019, alternativas distintas al relleno sanitario Los Pinos para la gestión integral y sanitaria de los residuos sólidos de las comunidades bajo su responsabilidad.
Setena continúa en investigación de supuestas faltas ambientales para definir qué medida tomar. Nótese que se informó que como parte de la gestión de Auditoría y Seguimiento Ambiental, al cual está obligada Setena, el 09 de octubre de 2018 realizó inspección al sitio, a manera de acompañamiento al Tribunal Ambiental Administrativo, y a raíz de la inspección, se encuentra en un proceso de investigación, analizando tanto el si hay o no, nuevos incumplimientos ambientales. Además, que como parte del proceso investigativo se determinó que, en su momento, se solicitará criterio técnico específico a la entidad responsable de la fiscalización de la operación del relleno, a saber, el Ministerio de Salud, así como también solicitar al desarrollador del proyecto una serie de aclaraciones e información complementaria. Lo anterior a pesar de que debe considerarse que la labor de control y fiscalización a cargo de la Administración, en este caso a cargo de la Secretaría Técnica Ambiental, el Ministerio de Salud y la Municipalidad correspondiente, se debe dar, tanto previa como posterior a la autorización de instalación del relleno sanitario, es decir, que una vez puesto en funcionamiento, debe contar con la supervisión técnica y objetiva de las dependencias administrativas correspondientes, labor que, además, es indelegable, en razón de la materia de que se trata, sea la protección y preservación del medio ambiente, así como la salud de la población.
X.Esta Sala ha tenido por demostrado que el citado Relleno Sanitario Los Pinos, ubicado en el poblado de Navarro del distrito de Dulce Nombre de Cartago, opera u operaba en terrenos colindantes que son propiedad de la Municipalidad de Cartago y la empresa WPP Continental de Costa Rica S.A., quienes suscribieron un contrato para la operación y disposición final de los desechos. Sin embargo, debido al conflicto interno que existe entre ambas partes suscribientes, desde el 12 de junio de 2018 se encuentra detenido el depósito de material en el propiedad del ayuntamiento y únicamente se están recibiendo desechos para ser ubicados en la propiedad de la empresa privada. Estos de los municipios de El Guarco, Paraíso, Oreamuno, Alvarado, Jiménez y Zona de los Santos y particulares de la provincia de Cartago, pues lo que son de éste cantón, el ayuntamiento lo dispone en la finca No. 134368-000, propiedad de las Empresas Berthier EBl de Costa Rica S.A., en el sitio denominado Parque de Tecnología Ambiental Aczarri, ubicado en el Huazo de Aserrí.
El ordenamiento concede a las autoridades encargadas de la tutela del ambiente y de la salud pública amplias facultades para cumplir con sus funciones. Tanto la Ley General de Salud como la Ley Orgánica del Ambiente y las normas conexas confieren competencias detalladas a los distintos niveles de organización en que se delega el ejercicio de las funciones preventivas, de inspección, sancionatorias, etc. Por otra parte, los recurridos cuentan también con las potestades que la Ley General de la Administración Pública otorga para asegurar el mejor cumplimiento posible de los fines de la Administración. En el presente asunto, del elenco de hechos probados se desprende que las autoridades conocen la problemática referida y si bien se han dictado varios actos administrativos, ninguno ha sido eficaz y eficiente. Tanto que el Ministerio de Salud ha aceptado que la problemática contractual de índole legal que existe entre las empresas WPP Continental de Costa Rica S.A. y WPF Coriclean Los Pinos Waste Disponsal S.A. WPP y la Municipalidad de Cartago ha ocasionado que en el sector del Relleno Sanitario propiedad de ese cabildo no haya brindado mantenimiento ni se hayan realizado las obras de cierre técnico, teniendo como resultado el empozamiento de lixiviados en el terreno, la exposición de residuos por falta de cobertura, entre otras condiciones insalubres que ponen en riesgo la salud pública.
Tal y como se indicó supra, excede la naturaleza del recurso de amparo analizar o resolver en esta sede el citado conflicto, que incluso se dirime en el Tribunal Contencioso Administrativo, siendo que la trascendencia constitucional se limita en verificar si las autoridades accionadas han sido diligentes en atender y solventar finalmente dicha problemática ambiental, que como es fácilmente constatable, no ha sido así. Aparte de lo anterior, es inaceptable la actitud asumida por el ayuntamiento de Cartago, pues aunque ya no deposite los desechos el lugar de controversia, no puede obviar que debe acudir en tutela de los derechos fundamentales de sus munícipes. En insoslayable la atención a la ciudadanía de su cantón por encima de cualquier conflicto. Este Tribunal ha reconocido que las corporaciones locales tienen, dentro del ámbito de sus competencias y obligaciones una alta cuota de responsabilidad en materia ambiental, sea mediante la aprobación directa de permisos o licencias para las cuales se exija el previo cumplimiento de requisitos que acrediten ante otras instancias del poder público el adecuado manejo ambiental, como mediante inspecciones regulares y canalización de situaciones de riesgo ante las instancias con mayor competencia de intervención.
Ha quedado establecido ya que a los gobiernos locales les alcanza la obligación de coordinación y prevención en materia ambiental dentro del ámbito de su jurisdicción territorial, de donde resulta que ciertamente las municipalidades son actores importantes en la tarea de protección al ambiente. Como se indicó supra, no solo ese cabildo, sino todas las demás autoridades recurridas, cuentan con amplias facultades de actuación, y si bien se encuentran sujetas a la legalidad y la razonabilidad, lo cierto es que teniendo en cuenta que se trata de una amenaza al medio ambiente y a la salud pública, la legalidad y los formalismos se ven desplazados. No le corresponde a este Tribunal enumerar las herramientas con que cuenta la Administración para el cumplimiento de sus funciones dadas por el ordenamiento jurídico, pero lo cierto es que ante las disimiles opiniones y actuaciones, deben coordinar entre sí, a fin de tutelar la vida y salud de la ciudadanía, que está por encima de cualquier diferendo de índole legal.
Sin embargo, es evidentemente, que las entidades sanitarias y locales tampoco han logrado coordinar acciones conjuntas para conseguir una solución integral al problema denunciado. Es sabido que la coordinación entre entes y órganos públicos es indispensable para el adecuado ejercicio de sus competencias y prestación del servicio encomendado, ya que permite asegurar la eficacia y eficiencia; y por ello es uno de los principios rectores de la organización administrativa. En atención al mencionado principio de coordinación administrativa, las autoridades recurridas pudieron –y debieron- haber actuado con diligencia, desplegando al máximo sus posibilidades de actuación y no escudando su negligencia en formalismos procesales que, además, no han sido prontos y oportunos como lo demanda la situación apremiante de contaminación imparable, pues de igual forma se siguen depositando desechos, aunque haya disminuido el ingreso diario desde la finalización del contrato con la Municipalidad de Cartago.
Nótese que incluso a raíz de esa situación, se recomienda monitorear el relleno sanitario cada 2 meses por parte del Área Rectora de Salud de Cartago como seguimiento a la vida útil del terreno propiedad de la empresa WPP Continental. Esto en caso de que se llegue a culminar su capacidad con antelación, de manera que se pueda verificar su correcta gestión y respectivo cierre técnico. Bajo esa tesitura, no resultan de recibo los argumentos que pretenden justificar la inacción de la Administración ante la apremiante situación de contaminación que sí es de pleno conocimiento de todas las autoridades recurridas por el accionar de los recurrentes, desconociendo el derecho humano a una vida sana y a un futuro sostenible en perjuicio de los recurrentes y la población aledaña, pues un medio ambiente saludable es un requisito indispensable de la buena salud. De ahí que se estime procedente, por el fondo, el reclamo de los recurrentes y debido a la complejidad del tema, a pesar de lo antes expuesto y aun corriendo el riesgo de ser reiterativo, se considera de merito indicar por separado la responsabilidad en los hechos acusados de cada una de las autoridades recurridas.
XI.En cuanto a la responsabilidad del Ministerio de Salud. No cabe duda de que un relleno técnico sanitario de basura puede constituirse en un grave foco de contaminación ambiental de diversa índole, con el inminente peligro para la salud de los vecinos y de los pobladores en general. En el caso concreto, de los informes rendidos por los representantes de la autoridad sanitaria recurrida -que se tienen por dados bajo fe de juramento con las consecuencias, incluso penales, previstas en el artículo 44 de la Ley que rige esta Jurisdicción- y la prueba aportada para la resolución del asunto, ha sido debidamente acreditado que la situación acusada sobre el relleno Los Pinos, lejos de mejorar, se complica en el tiempo. Nótese que incluso hay conflictos legales entre la Municipalidad de Cartago y la empresa privada contratada para su manejo, problemática que no hace más que agravar la difícil administración del relleno, que de por sí, sin ello, ya es complejo.
Existe una obligación para el Estado –como un todo- de tomar las medidas necesarias para proteger el ambiente, a fin de evitar grados de contaminación, deforestación, extinción de flora y fauna, uso desmedido o inadecuado de los recursos naturales, que pongan en peligro la salud de los administrados. Debido a la diversidad de actores que pueden intervenir, podría pensarse que esta múltiple responsabilidad provocaría un caos en la gestión administrativa. Por ello, a fin de evitar la coexistencia simultánea de esferas de poder de diferente origen y esencia, la duplicación de los esfuerzos nacionales y locales, así como la confusión de derechos y obligaciones entre las diversas partes involucradas, se hace necesario establecer una serie de relaciones de coordinación entre las diversas dependencias del Poder Ejecutivo y las instituciones descentralizadas, y entre éstas con las municipalidades, a fin de poder llevar a cabo las funciones que les han sido encomendadas.
Coordinación que en situaciones como las que se conocen en este amparo, toma una relevancia de primer nivel y un papel preponderante del Ministerio de Salud en tutela de la salud de las personas. Empero, se constata que ha tenido un papel interventor, por lo menos, insuficiente. Un ejemplo es que mediante orden sanitaria No. CE-ARS-O-OS-0146-2019 del 20 de agosto de 2019, Oscar Rodríguez González, director del Área Rectora de Salud de Oreamuno, le previno a la Municipalidad de Cartago presentar en 15 días hábiles, a vencer el 16 de setiembre de 2019, alternativas distintas al relleno sanitario Los Pinos para la gestión integral y sanitaria de los residuos sólidos de las comunidades bajo su responsabilidad. En respuesta, por oficio No. MUOR-AM-1171-2019 del 12 de setiembre de 2019, -recibido el 17 de setiembre de 2019-, la Municipalidad de Oreamuno le informó que “…en la propuesta de Presupuesto Ordinario para el año 2020 se ha previsto la inclusión de contenido económico en el Departamento de Recolección de Residuos que nos permita hacer trente a un cambio de alternativa diferente a la del Relleno Sanitario Los Pinos.
Sin embargo, y en respuesta a dicha orden en este momento el Municipio se encuentra en la etapa de identificación de alternativas diferentes a la del Relleno Sanitario Los Pinos, las cuales incluyen la solicitud de proformas de cotización, para así evaluar los escenarios y factibilidades que se puedan ejecutar”. Accionar municipal insuficiente para el cumplimiento del fondo de la problemática y que cuenta con la pasividad de la autoridad sanitaria, pues se estima, según lo informado, que con esa respuesta el ayuntamiento cumplió con la ordenanza, cuando es evidente que no es así. Nótese que contrario a lo prevenido, no dan ninguna alternativa, se limitan a informar sobre la inclusión presupuestaria y que están buscando opciones. Mientras tanto la problemática ambiental persiste con el agobio para la ciudadanía, que es la afectada.
XII.Respecto a la responsabilidad de la Municipalidad de Cartago en los hechos acusados por los recurrentes. Esta Sala ha señalado que el artículo 169 de la Constitución Política establece que la administración de los intereses y servicios locales en cada cantón, estará a cargo del Gobierno Municipal. Los intereses y servicios locales han sido definidos por la Sala como conceptos jurídicos indeterminados donde la ley no resuelve con exactitud su contenido para su aplicación a casos concretos, por lo que resulta necesario acudir a criterios de valor y de experiencia, por parte de quien le corresponde aplicarlo, para determinar su contenido. La existencia y operación de un relleno sanitario en una comunidad, es indiscutible que per se, constituye de interés para un ayuntamiento, así sea que lo administre o no. Por ello, el hecho de que en la actualidad el cabildo cartaginés no deposite los desechos de su población en el Relleno Sanitario Los Pinos, no significa que deba desatenderse de lo que acontece a sus munícipes por su existencia.
Ni mucho menos que un conflicto legal con la empresa privada, pueda ser un justificante para desoír el clamor de la ciudadanía, todo lo contrario, lo obliga a hacer esfuerzos ingentes en su tutela como gobierno local que es. Situaciones como las acontecidas en autos inciden directamente en el deterioro ambiental y por ende, en la salud de la población. Respecto de la prevención de contaminación, el numeral 60 de la Ley Orgánica del Ambiente, dispone lo siguiente: “Artículo 60.- Prevención y control de la contaminación. Para prevenir y controlar la contaminación del ambiente, el Estado, las municipalidades y las demás instituciones públicas, darán prioridad, entre otros, al establecimiento y operación de servicios adecuados en áreas fundamentales para la salud ambiental, tales como: “(…) c) La recolección y el manejo de desechos…”. Norma que es particularmente relevante en el caso de la Municipalidad de Cartago, pues fue la que contrató con la empresa privada mencionada para la prestación del servicio público de recolección de los desechos de su ciudadanía.
De ahí que tenía y tiene una injerencia directa en la problemática referida por los recurrentes. En mérito de lo expuesto, considera la Sala que ese cabildo omitió efectuar las acciones necesarias para solucionar en definitiva el problema existente en cuanto al relleno sanitario que opera en la localidad mencionada. En virtud de que el problema denunciado genera la contaminación del medio ambiente y, en consecuencia, constituye un peligro para la salud de los habitantes de la zona, se estima que las omisiones atribuidas al ayuntamiento recurrido atentan contra lo dispuesto en los artículos 21 y 50 de la Constitución Política.
XIII.En cuanto a las actuaciones de SETENA. Ha informado bajo juramento Cynthia Barzuna Gutiérrez, en su condición de secretaria general de la Secretaría Técnica Nacional Ambiental, entre otros extremos, que “…efectivamente, como parte de la gestión de Auditoría y Seguimiento Ambiental, al cual está obligada esta Secretaría se han realizado inspección al Área de Proyecto. Recientemente, en fecha del 9 de octubre del pasado 2018, esta Secretaría realizó inspección al sitio, a manera de acompañamiento al Tribunal Ambiental Administrativo, y a raíz de la inspección, actualmente la SETENA se encuentra en un proceso de investigación, analizando tanto el expediente administrativo, como lo observado en campo, con el fin de determinar si a la fecha hay o no, nuevos incumplimientos ambientales. Como parte del proceso investigativo se determinó que en su momento se solicitara criterio técnico especifico a la entidad responsable de la fiscalización de la operación del Relleno, a saber, el Ministerio de Salud, así como también solicitar al desarrollador del proyecto una serie de aclaraciones e información complementaria.
Al finalizar dicho proceso esta Secretaría, dentro del marco de sus competencias, solicitará lo que técnica y legalmente corresponda…”. Lo anterior denota, en primer lugar, la problemática denunciada por los recurrentes y, en segundo lugar, la deficiente y tardía fiscalización por parte de Setena, a pesar de haber autorizado la actividad que se refiere como contaminante. Se evidencia que la intervención de esta autoridad ha podido ser más drástica y eficaz en el tiempo, como en Derecho corresponde según las competencias asignadas a ese Órgano, dejando en los miembros de este Tribunal la percepción de que ha sido la actuación de una Administración que agota su actividad en trámites burocráticos, pero que no soluciona problemas concretos, en detrimento de la salud y el medio ambiente y, por consiguiente, en violación del artículo 50 constitucional, lo que no resulta tolerable para esta Sala y, en tal virtud, también se le encuentra co-responsable, por omisión de no aplicar de manera efectiva una medida en un plazo razonable, teniendo en cuenta el problema de contaminación que se alega.
XIV.Respecto a las actuaciones del Tribunal Ambiental Administrativo. Ha quedado demostrado que el 20 de junio de 2018, la Municipalidad de Cartago presentó ante el Tribunal Ambiental Administrativo una denuncia de carácter ambiental contra WPP ContinentaI de Costa Rica S.A., WPP Coriclean Los Pinos Waste Disposal S.A., el Área Rectora de Salud de Cartago, a cargo de la Doctora Andrea Morales Fiesler y contra el Ing. Federico Salas Sarkis, regente ambiental del Proyecto Cierre Técnico del Vertedero de Navarro y Construcción del Relleno Sanitario Los Pinos, por eventual violación a la legislación ambiental. Además, que ese caso, tramitado en el expediente administrativo No. [Valor 005], al que se acumuló el oficio No. SETENA-SG-1575-2018, suscrito por el Msc. Sergio Bermúdez Muñoz, en su condición de Secretario General de la Setena, mediante el cual el 23 de agosto de 2019, presentó formal denuncia de carácter ambiental y remite el expediente administrativo [Valor 007]-SETENA "Proyecto Relleno Sanitario Los Pinos", respecto de los cuales ya se realizó una inspección, se encuentra en etapa de investigación preliminar, es decir, realizando un análisis de los documentos técnicos y legales que conforman el expediente administrativo a fin de determinar la verdad real de los hechos.
Se corrobora así que el proceso está detenido en la etapa de investigación preliminar desde hace un año. Llama la atención de esta Sala, que a pesar del evidente abandono del expediente, la autoridad recurrida no da justificación del atraso en el trámite, a pesar de que el problema de contaminación producto de la operación del relleno sanitario con el peligro que representa para la ciudadanía. Así las cosas, esta Sala comprueba que el Tribunal Ambiental Administrativo ha sido omiso en su accionar, de modo que ha faltado a su obligación de garantizar los derechos a la salud y a un medio ambiente ecológicamente equilibrado de los habitantes de la zona. Por lo anterior, en cuanto a este aspecto, procede declarar con lugar el recurso.
XV.Sobre las solicitudes de información. El numeral 27, de la Constitución Política, establece la potestad que posee toda persona de dirigir, de forma escrita, ante cualquier funcionario o dependencia del Estado, un asunto de su interés. Este derecho, comporta el derecho a una respuesta pronta. No obstante, esto no significa que los entes oficiales deban emitir una respuesta favorable. De tal forma, lo que se garantiza es el derecho de solicitar y obtener una respuesta de los funcionarios y las instituciones públicas. Este Tribunal, en su jurisprudencia, ha señalado que, lo que se garantiza es el derecho a pedir y no el derecho a obtener lo que se pide, aún cuando el funcionario público deba resolver con estricta sujeción a la ley, pues, la libertad de petición se funda en otro principio, en que no puede coartarse por la Administración, el derechos de los gobernados para dirigirse a los órganos públicos (véanse en ese sentido, entre otras, las sentencias N° 2009-006982 de las 16:19 hrs. de 30 de abril de 2019, N° 2012-006014 de las 9:05 hrs. de 11 de mayo de 2012 y N° 2016-006885 de las 9:05 hrs. de 20 de mayo de 2016).
Asimismo, ha señalado que este derecho guarda estricta relación con el plazo contenido en el citado artículo 32, de la Ley que informa esta Jurisdicción, siendo que existe una obligación de los funcionarios públicos de resolver con prontitud las solicitudes presentadas por los administrados, siendo que ante la falta de la estipulación de un plazo para tales efectos, la contestación debe otorgarse en un plazo de diez días hábiles a partir de la presentación de las gestiones; pero sería necesario apreciar razones que aduzcan para considerar insuficiente ese plazo, atendidas las circunstancias y la índole del asunto, en cuyo caso, la Administración siempre está obligada a comunicarle a la persona solicitante las causas de la demora en pronunciarse (véanse la sentencia No. 2008-008155 de las 18:52 hrs. de 13 de mayo de 2008 y sentencia No. 2016-000494 de las 9:30 hrs. de 15 de enero de 2016).
Ahora, respecto a las gestiones presentadas por el recurrente [Nombre 001] el 06 de marzo de 2019 ante el Concejo de Cartago, el 07 de marzo de 2019 a la Rectoría de Salud de Cartago del Ministerio de Salud y el 08 de marzo de 2019 en la Secretaría Técnica Nacional Ambiental, requiriendo información sobre el citado relleno sanitario, se colige que solo fue atendida la segunda mediante oficio No. CE-ARSC-0614-2019 del 05 de abril de 2019. Si bien por medio del oficio No. SETENA-DT-ASA-0398-2019 (notificado 03 de abril de 2019), Víctor Manuel Villalobos Rodríguez, coordinador del Departamento de Auditoría y Seguimiento Ambiental de Setena, le comunicó que estaban recabando la información, no consta que finalmente se le haya proporcionado. Mientras que las autoridades recurridas del cabildo accionado, ni siquiera hacen mención a esa gestión en el informe rendido. En consecuencia, se considera procedente el recurso respecto a ambas autoridades por la apuntada desatención y se desestima en cuanto al Ministerio de Salud.
XVI.Conclusión. En merito de lo expuesto y siendo que persiste la descontrolada e irregular actividad denunciada, pues incluso así lo alega uno de los recurrentes en gestiones posteriores, se declara con lugar el recurso por infracción a los derechos tutelados en los artículos 21 y 50 Constitucional, ordenando a las autoridades municipales, sanitarias y de Setena que deberán emitir de manera conjunta y coordinada los actos que corresponda en atención a la problemática acusada, sean órdenes sanitarias o cualquier otro acto de naturaleza similar tendente a eliminar el riesgo que para el ambiente y la salud pública representa la acumulación de desechos sólidos en el inmueble denunciado por los amparados, así como regular la actividad de acopio que allí se presenta; y al Tribunal Ambiental Administrativo instruir diligentemente el procedimiento administrativo con pleno respeto a las garantías y derechos de las partes pero sin perder de vista la excepcionalidad del bien jurídico tutelado (el medio ambiente y la salud pública), adoptando para ello las medidas que proceda y que el ordenamiento permite; debiendo informar a esta Sala sobre lo resuelto.
Por último, se desestima el recurso en cuanto a la gestión presentada por el recurrente [Nombre 001] ante el Ministerio de Salud, mientras que se declara con lugar el proceso constitucional en lo referente a las solicitudes que interpuso en el gobierno local accionado y Setena, por inobservancia al derecho de petición y pronta respuesta.
En asuntos ambientales, es criterio del suscrito, que si ya ha habido intervención de la Administración Pública, su conocimiento y resolución corresponde a la jurisdicción contenciosa administrativa. No obstante, sí entro a conocer el fondo del asunto cuando están de por medio otros derechos de las personas afectadas por el foco de contaminación, entre ellos, la salud, la calidad de vida y el derecho a gozar de un ambiente sano y libre de contaminación (artículo 50, de la Constitución Política), tal y como sucede en este caso, en el que se acusa contaminación por desechos sólidos y lixiviados en el vertedero Los Pinos, ubicado en el distrito de Dulce Nombre de Cartago, con violación del derecho a disfrutar de un ambiente sano y ecológicamente equilibrado y de un nivel digno de calidad de vida
Se previene a las partes que de haber aportado algún documento en papel, así como objetos o pruebas contenidas en algún dispositivo adicional de carácter electrónico, informático, magnético, óptico, telemático o producido por nuevas tecnologías, estos deberán ser retirados del despacho en un plazo máximo de 30 días hábiles contados a partir de la notificación de esta sentencia. De lo contrario, será destruido todo aquel material que no sea retirado dentro de este plazo, según lo dispuesto en el "Reglamento sobre Expediente Electrónico ante el Poder Judicial", aprobado por la Corte Plena en sesión N° 27-11 del 22 de agosto del 2011, artículo XXVI y publicado en el Boletín Judicial número 19 del 26 de enero del 2012, así como en el acuerdo aprobado por el Consejo Superior del Poder Judicial, en la sesión N° 43-12 celebrada el 3 de mayo del 2012, artículo LXXXI .
Por tanto:
Se declara parcialmente con lugar el recurso, por infracción a los derechos tutelados en los artículos 21, 27 y 50 de la Constitución Política. Se ordena lo siguiente:
Fernando Castillo V.
Luis Fdo. Salazar A.
Jorge Araya G.
Ana María Picado B.
Anamari Garro V.
Mauricio Chacón J.
Lucila Monge P.
*TXPMR8YZ3ME61* Morenos, 100 mts.Sur de la iglesia del Perpetuo Socorro). Recepción de asuntos de grupos vulnerables: Edificio Corte Suprema de Justicia, San José, Distrito Catedral, Barrio González Lahmann, calles 19 y 21, avenidas 8 y 6
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