“The
parties do not dispute that human emissions of CO2 into the
atmosphere are largely responsible for the warming of the Earth’s
surface temperature since the Industrial Revolution. The Minister
accepts that the Earth’s surface temperature is increasing and that
humans are primarily responsible. She also accepts that average
surface temperatures will likely continue to increase and Australia
will experience more drought, sea level rises and extremes of heat,
rainfall and fire-related weather. The Minister accepts that
increases in temperature affect the environment, the economy and
society and that the climate exacerbates inherent risks and
introduces new risks in the context of heatwaves, droughts,
bushfires, floods and tropical cyclones all being part of the
Australian climate experience.
The
Minister accepts that the projected effects of climate change depend
upon the extent of greenhouse gases emitted globally in coming years.
The applicants presented unchallenged scientific evidence on the
future trajectory of global average surface temperatures. The
evidence was largely based on the climate change modelling of the
Intergovernmental Panel on Climate Change and more recent assessments
made by Professor William Steffen, an eminent specialist in climate
science.” [BROMBERG
J,
27 MAY 2021, MELBOURNE, excerpt from SUMMARY
supplied
for Sharma
by her litigation representative Sister Marie Brigid Arthur v
Minister for the Environment [2021] FCA 560 (27 May 2021)]
“It
is difficult to characterise in a single phrase the devastation that
the plausible evidence presented in this proceeding forecasts for the
Children. As Australian adults know their country, Australia will be
lost and the World as we know it gone as well. The physical
environment will be harsher, far more extreme and devastatingly
brutal when angry. As for the human experience – quality of life,
opportunities to partake in nature’s treasures, the capacity to
grow and prosper – all will be greatly diminished. Lives will be
cut short. Trauma will be far more common and good health harder to
hold and maintain. None of this will be the fault of nature itself.
It will largely be inflicted by the inaction of this generation of
adults, in what might fairly be described as the greatest
inter-generational injustice ever inflicted by one generation of
humans upon the next.
To
say that the Children are vulnerable is to understate their
predicament. However, it is not vulnerability in the abstract which
is relevant for determining whether a duty of care is owed to them by
the Minister. Their vulnerability must be connected to their relation
with the Minister or their reliance upon the Minister: Stuart at
[134] (Crennan and Kiefel JJ). And it is.” [Sharma
by her litigation representative Sister Marie Brigid Arthur v
Minister for the Environment (No 2) [2021] FCA 774 (8 July 2021,
Judgment,
excerpt])
In
its
8 July 2021 judgment in Sharma
by her litigation representative Sister Marie Brigid Arthur v
Minister for the Environment (No 2) [2021] FCA 774 (8 July 2021) the
Federal
Court
did not accept the the Minister’s contention that the Court should
order that the proceeding not continue as a representative proceeding
at all - instead ordering that The
proceeding not continue as a representative proceeding in respect of
persons who were under 18 years of age and not ordinarily resident in
Australia at the time of the commencement of this proceeding. The
Court also did
not accept the Minister’s argument with regard to costs and ordered
The Minister pay the
applicants’ costs of the proceeding.
This
second judgment although it now excludes unnamed Other
Represented Children
from
the representative proceeding specifically
allows those
eight Australian teenagers named as applicants
to
remain as applicants in the proceeding: I
have determined that the proceeding should continue as a
representative proceeding in relation to the Represented Children.
BACKGROUND
Allens,
Australia,
retrieved 9 July 2021:
In
August 2020, the NSW Independent Planning Commission granted
development consent for the extension of the Vickery Coal Project
(the project) in northern NSW under the Environmental Planning and
Assessment Act 1979 (NSW). As the project is likely to have impacts
on federally listed threatened species and water resources, it also
requires approval from the Federal Minister for the Environment (the
Minister) under the EPBC Act.
The
project, if approved, will involve the extraction of an additional 33
million tonnes of coal over the life of the mine. The combustion of
this additional coal will result in the emission of approximately 100
million tonnes of CO2.
In
Sharma by her litigation representative Sister Marie Brigid Arthur v
Minister for the Environment [2021] FCA 560, eight Australian
children brought an action in negligence against the Minister,
seeking a declaration that she owed them — and children around
Australia — a duty to exercise her powers under the EPBC Act with
reasonable care so as not to cause the children harm. They contended
that the project would contribute to climate change, and consequently
increase the risk of climate change-related harm to the applicants,
including mental and physical injury, damage to property, and
economic loss.
The
claimants also sought an injunction restraining the Minister from
committing an apprehended breach of that duty — that apprehended
breach being the approval of the project.
The
decision
The
court found that the Minister owes the applicants a duty to take
reasonable care when considering whether to approve the project under
the EPBC Act.
In
determining that the Minister owes a duty of care, the court held:
The
environmental impacts of increasing global surface temperatures,
including greater incidence and severity of heatwaves and bushfires,
would expose the applicants and the representative class to a real
risk of death and personal injury.
Despite
recognising the duty of care, the court declined to grant an
injunction preventing the Minister from approving the project.
Ultimately, the court was not satisfied that the applicants had
demonstrated the Minister would breach her duty of care, and said
that, instead, it would be more appropriate to grant any relief once
a decision had been made. The court did not accept the applicants'
contention that an approval of the project would inevitably
constitute a breach of duty, noting that the Minister's competing or
conflicting responsibilities could influence a reasonable response to
the foreseeable harm. Such a reasonable response could include
conditions on any approval under the EPBC Act.
Implications
While
the applicants were not successful in injuncting the Minister from
granting the approval, the decision to recognise this novel duty of
care could have significant consequences. This is the first time in
Australia that a court has recognised a duty of care owed to children
by a Minister exercising powers under any statutory environment or
planning regime.
The
recognition of a duty of care in connection with climate
change-related harm under the EPBC Act framework is noteworthy, given
the matters protected by the EPBC Act do not extend to greenhouse gas
emissions or climate change. While protection is afforded to various
environmental matters, including listed species and habitats, the
health and wellbeing of human beings is not a protected aspect of the
environment that would trigger the need for approval under the EPBC
Act. However, by reference to the broader statutory scheme (including
reference to the principle of inter-generational equity) the court
noted the Act's object is to protect the interests of people and, in
particular, future generations of people, in the environment —
rather than the environment itself. Because this duty of care was not
found by reference to the particular protected matters in the EPBC
Act and instead within the broader statutory scheme, the interpretive
approach may translate more readily to other pieces of environmental
legislation at a state level.
This
decision may also impact the grant of approvals under the EPBC Act.
The court noted that in deciding whether to approve the project, 'a
well-advised and responsible Minister would take notice of those
matters', referring to the now-established duty of care owed to the
applicants. Those in charge of approving carbon intensive projects
may now be more alive to climate change-related issues and place
greater weight on those risks when making decisions.