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VOLUME 13 ▪ NUMBER 1 ▪ JUNE 2015 NEW ZEALAND CENTRE FOR PUBLIC LAW Te Wānanga o ngā Kaupapa Ture ā Iwi o Aotearoa SPECIAL CONFERENCE ISSUE: NEW THINKING ON SUSTAINABILITY THIS ISSUE INCLUDES CONTRIBUTIONS BY Joshua Aird Sir Geoffrey Palmer Klaus Bosselmann Nicole Rogers Peter D Burdon Nathan Ross Joel Colón-Ríos Greg Severinsen Benjamen F Gussen Linda Sheehan Catherine J Iorns Magallanes Gerald Torres Gay Morgan New Zealand Journal of Public and International Law

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V O L U M E 1 3 ▪ N U M B E R 1 ▪ J U N E 2 0 1 5

NEW ZEALAND CENTRE FOR PUBLIC LAWTe Wānanga o ngā Kaupapa Ture ā Iwi o Aotearoa

S P E C I A L C O N F E R E N C E I S S U E : N E W T H I N K I N G O N S US TA I NA B I L I T Y

T H I S I S S U E I N C LU D E S C O N T R I B U T I O N S BY

Joshua Aird Sir Geoffrey Palmer

Klaus Bosselmann Nicole Rogers

Peter D Burdon Nathan Ross

Joel Colón-Ríos Greg Severinsen

Benjamen F Gussen Linda Sheehan

Catherine J Iorns Magallanes Gerald Torres

Gay Morgan

New Zealand Journal of Public and International Law

NEW ZEALAND JOURNAL OF PUBLIC AND INTERNATIONAL LAW

© New Zealand Centre for Public Law and contributors

Faculty of Law Victoria University of Wellington

PO Box 600 Wellington

New Zealand

June 2015

The mode of citation of this journal is: (2015) 13 NZJPIL (page)

The previous issue of this journal was volume 12 number 2, December 2014

ISSN 1176-3930

Printed by City Print Communications, Wellington

Cover photo: Robert Cross, VUW ITS Image Services

CONTENTS SPECIAL CONFERENCE ISSUE: NEW THINKING ON SUSTAINABILITY

Foreword: New Thinking on Sustainability Catherine J Iorns Magallanes ...................................................................................................... 1 Setting the Scene for "New Thinking on Sustainability" Conference Sir Geoffrey Palmer QC............................................................................................................. 17 Sustainability Alternatives: A German-New Zealand Perspective Klaus Bosselmann ..................................................................................................................... 25 On the Problem of Scale: The Inextricable Link between Environmental and Constitutional Laws Benjamen Franklen Gussen ....................................................................................................... 39 Shifting Paradigms: Berry's Earth-Centrism – An Effective Noble Lie? Gay Morgan .............................................................................................................................. 65 Implementing Rights of Nature through Sustainability Bills of Rights Linda Sheehan ........................................................................................................................... 89 Comment: The Rights of Nature and the New Latin American Constitutionalism Joel Colón-Ríos ....................................................................................................................... 107 New Zealand's Defective Law on Climate Change Sir Geoffrey Palmer QC........................................................................................................... 115 Translating Climate Change Gerald Torres.......................................................................................................................... 137 Comment: Deepening the Path of Translation – Differentiating Arguments from Power from Arguments from Legitimacy in a Heterodox World Gay Morgan ............................................................................................................................ 153 Wild Law: A Proposal for Radical Social Change Peter D Burdon ....................................................................................................................... 157 "If you Obey all the Rules you Miss all the Fun": Climate Change Litigation, Climate Change Activism and Lawfulness Nicole Rogers .......................................................................................................................... 179

© New Zealand Centre for Public Law and contributors

Faculty of Law Victoria University of Wellington

PO Box 600 Wellington

New Zealand

June 2015

The mode of citation of this journal is: (2015) 13 NZJPIL (page)

The previous issue of this journal was volume 12 number 2, December 2014

ISSN 1176-3930

Printed by City Print Communications, Wellington

Cover photo: Robert Cross, VUW ITS Image Services

CONTENTS SPECIAL CONFERENCE ISSUE: NEW THINKING ON SUSTAINABILITY

Foreword: New Thinking on Sustainability Catherine J Iorns Magallanes ...................................................................................................... 1 Setting the Scene for "New Thinking on Sustainability" Conference Sir Geoffrey Palmer QC............................................................................................................. 17 Sustainability Alternatives: A German-New Zealand Perspective Klaus Bosselmann ..................................................................................................................... 25 On the Problem of Scale: The Inextricable Link between Environmental and Constitutional Laws Benjamen Franklen Gussen ....................................................................................................... 39 Shifting Paradigms: Berry's Earth-Centrism – An Effective Noble Lie? Gay Morgan .............................................................................................................................. 65 Implementing Rights of Nature through Sustainability Bills of Rights Linda Sheehan ........................................................................................................................... 89 Comment: The Rights of Nature and the New Latin American Constitutionalism Joel Colón-Ríos ....................................................................................................................... 107 New Zealand's Defective Law on Climate Change Sir Geoffrey Palmer QC........................................................................................................... 115 Translating Climate Change Gerald Torres.......................................................................................................................... 137 Comment: Deepening the Path of Translation – Differentiating Arguments from Power from Arguments from Legitimacy in a Heterodox World Gay Morgan ............................................................................................................................ 153 Wild Law: A Proposal for Radical Social Change Peter D Burdon ....................................................................................................................... 157 "If you Obey all the Rules you Miss all the Fun": Climate Change Litigation, Climate Change Activism and Lawfulness Nicole Rogers .......................................................................................................................... 179

(2015) 13 NZJPIL

Diving in the Deep End: Precaution and Seabed Mining in New Zealand's Exclusive Economic Zone Catherine J Iorns Magallanes and Greg Severinsen .................................................................. 201 Student Essay: Carbon Emissions and Electric Cars – Introducing the Potential of Electric Vehicles in New Zealand's Climate Change Response Nathan Jon Ross ...................................................................................................................... 235 Book Review: From Object to Subject: The Practice of Wild Law Joshua Charles Raymond Aird ................................................................................................. 249

The New Zealand Journal of Public and International Law is a fully refereed journal published by the New Zealand Centre for Public Law at the Faculty of Law, Victoria University of Wellington. The Journal was established in 2003 as a forum for public and international legal scholarship. It is available in hard copy by subscription and is also available on the HeinOnline, Westlaw, Informit and EBSCO electronic databases.

NZJPIL welcomes the submission of articles, short essays and comments on current issues, and book reviews. Manuscripts and books for review should be sent to the address below. Manuscripts must be typed and accompanied by an electronic version in Microsoft Word or rich text format, and should include an abstract and a short statement of the author's current affiliations and any other relevant personal details. Manuscripts should generally not exceed 12,000 words. Shorter notes and comments are also welcome. Authors should see earlier issues of NZJPIL for indications as to style; for specific guidance, see the New Zealand Law Style Guide (2nd ed, 2011). Submissions whose content has been or will be published elsewhere will not be considered for publication. The Journal cannot return manuscripts.

Regular submissions are subject to a double-blind peer review process. In addition, the Journal occasionally publishes addresses and essays by significant public office holders. These are subject to a less formal review process.

Contributions to NZJPIL express the views of their authors and not the views of the Editorial Committee or the New Zealand Centre for Public Law. All enquiries concerning reproduction of the Journal or its contents should be sent to the Student Editor.

Annual subscription rates are NZ$100 (New Zealand) and NZ$130 (overseas). Back issues are available on request. To order in North America contact:

Gaunt Inc Gaunt Building 3011 Gulf Drive Holmes Beach

Florida 34217-2199 United States of America e-mail [email protected]

ph +1 941 778 5211 fax +1 941 778 5252

Address for all other communications: The Student Editor

New Zealand Journal of Public and International Law Faculty of Law

Victoria University of Wellington PO Box 600

Wellington, New Zealand e-mail [email protected]

fax +64 4 463 6365

(2015) 13 NZJPIL

Diving in the Deep End: Precaution and Seabed Mining in New Zealand's Exclusive Economic Zone Catherine J Iorns Magallanes and Greg Severinsen .................................................................. 201 Student Essay: Carbon Emissions and Electric Cars – Introducing the Potential of Electric Vehicles in New Zealand's Climate Change Response Nathan Jon Ross ...................................................................................................................... 235 Book Review: From Object to Subject: The Practice of Wild Law Joshua Charles Raymond Aird ................................................................................................. 249

The New Zealand Journal of Public and International Law is a fully refereed journal published by the New Zealand Centre for Public Law at the Faculty of Law, Victoria University of Wellington. The Journal was established in 2003 as a forum for public and international legal scholarship. It is available in hard copy by subscription and is also available on the HeinOnline, Westlaw, Informit and EBSCO electronic databases.

NZJPIL welcomes the submission of articles, short essays and comments on current issues, and book reviews. Manuscripts and books for review should be sent to the address below. Manuscripts must be typed and accompanied by an electronic version in Microsoft Word or rich text format, and should include an abstract and a short statement of the author's current affiliations and any other relevant personal details. Manuscripts should generally not exceed 12,000 words. Shorter notes and comments are also welcome. Authors should see earlier issues of NZJPIL for indications as to style; for specific guidance, see the New Zealand Law Style Guide (2nd ed, 2011). Submissions whose content has been or will be published elsewhere will not be considered for publication. The Journal cannot return manuscripts.

Regular submissions are subject to a double-blind peer review process. In addition, the Journal occasionally publishes addresses and essays by significant public office holders. These are subject to a less formal review process.

Contributions to NZJPIL express the views of their authors and not the views of the Editorial Committee or the New Zealand Centre for Public Law. All enquiries concerning reproduction of the Journal or its contents should be sent to the Student Editor.

Annual subscription rates are NZ$100 (New Zealand) and NZ$130 (overseas). Back issues are available on request. To order in North America contact:

Gaunt Inc Gaunt Building 3011 Gulf Drive Holmes Beach

Florida 34217-2199 United States of America e-mail [email protected]

ph +1 941 778 5211 fax +1 941 778 5252

Address for all other communications: The Student Editor

New Zealand Journal of Public and International Law Faculty of Law

Victoria University of Wellington PO Box 600

Wellington, New Zealand e-mail [email protected]

fax +64 4 463 6365

(2015) 13 NZJPIL

NEW ZEALAND JOURNAL OF PUBLIC AND INTERNATIONAL LAW

Advisory Board

Professor Hilary Charlesworth Australian National University

Professor Scott Davidson University of Lincoln

Professor Andrew Geddis University of Otago

Judge Sir Christopher Greenwood International Court of Justice

Emeritus Professor Peter Hogg QC Blake, Cassels and Graydon LLP

Professor Philip Joseph University of Canterbury

Rt Hon Judge Sir Kenneth Keith International Court of Justice

Professor Jerry Mashaw Yale Law School

Hon Justice Sir John McGrath Supreme Court of New Zealand

Rt Hon Sir Geoffrey Palmer QC Distinguished Fellow, NZ Centre for Public Law/Victoria University of Wellington

Dame Alison Quentin-Baxter Barrister, Wellington

Professor Paul Rishworth University of Auckland Crown Law Office, Wellington

Professor Jeremy Waldron New York University

Sir Paul Walker Royal Courts of Justice, London

Deputy Chief Judge Caren Fox Māori Land Court

Professor George Williams University of New South Wales

Hon Justice Joseph Williams High Court of New Zealand

Editorial Committee

Dr Mark Bennett Professor Tony Angelo (Joint Editor-in-Chief) Henry Hillind (Student Editor) Professor Richard Boast Associate Professor Petra Butler

Dr Joel Colón-Ríos Associate Professor Alberto Costi Professor Claudia Geiringer Dr Dean Knight (Joint Editor-in-Chief) Joanna Mossop

Assistant Student Editors

Joshua Aird Gina Dobson Jordan Lipski Connie Mailer

Breanna Morgan Monique van Alphen Fyfe Morgan Watkins Kate Wilson

The New Zealand Centre for Public Law was established in 1996 by the Victoria University of Wellington Council with the funding assistance of the VUW Foundation. Its aims are to stimulate awareness of and interest in public law issues, to provide a forum for discussion of these issues and to foster and promote research in public law. To these ends, the Centre organises a year-round programme of conferences, public seminars and lectures, workshops, distinguished visitors and research projects. It also publishes a series of occasional papers.

Officers

Director Professor Claudia Geiringer Associate Director Associate Professor Petra Butler Associate Director Dr Carwyn Jones Associate Director Dr Dean Knight Centre and Events Administrator Rozina Khan

For further information on the Centre and its activities visit www.victoria.ac.nz/nzcpl or contact the Centre and Events Administrator at [email protected], ph +64 4 463 6327, fax +64 4 463 6365.

*** The New Thinking on Sustainability Conference at which preliminary versions of these articles

were originally presented was made possible with the generous support of the German Australian Pacific Lawyers Association, the New Zealand Law Foundation and Victoria University of Wellington.

(2015) 13 NZJPIL

NEW ZEALAND JOURNAL OF PUBLIC AND INTERNATIONAL LAW

Advisory Board

Professor Hilary Charlesworth Australian National University

Professor Scott Davidson University of Lincoln

Professor Andrew Geddis University of Otago

Judge Sir Christopher Greenwood International Court of Justice

Emeritus Professor Peter Hogg QC Blake, Cassels and Graydon LLP

Professor Philip Joseph University of Canterbury

Rt Hon Judge Sir Kenneth Keith International Court of Justice

Professor Jerry Mashaw Yale Law School

Hon Justice Sir John McGrath Supreme Court of New Zealand

Rt Hon Sir Geoffrey Palmer QC Distinguished Fellow, NZ Centre for Public Law/Victoria University of Wellington

Dame Alison Quentin-Baxter Barrister, Wellington

Professor Paul Rishworth University of Auckland Crown Law Office, Wellington

Professor Jeremy Waldron New York University

Sir Paul Walker Royal Courts of Justice, London

Deputy Chief Judge Caren Fox Māori Land Court

Professor George Williams University of New South Wales

Hon Justice Joseph Williams High Court of New Zealand

Editorial Committee

Dr Mark Bennett Professor Tony Angelo (Joint Editor-in-Chief) Henry Hillind (Student Editor) Professor Richard Boast Associate Professor Petra Butler

Dr Joel Colón-Ríos Associate Professor Alberto Costi Professor Claudia Geiringer Dr Dean Knight (Joint Editor-in-Chief) Joanna Mossop

Assistant Student Editors

Joshua Aird Gina Dobson Jordan Lipski Connie Mailer

Breanna Morgan Monique van Alphen Fyfe Morgan Watkins Kate Wilson

The New Zealand Centre for Public Law was established in 1996 by the Victoria University of Wellington Council with the funding assistance of the VUW Foundation. Its aims are to stimulate awareness of and interest in public law issues, to provide a forum for discussion of these issues and to foster and promote research in public law. To these ends, the Centre organises a year-round programme of conferences, public seminars and lectures, workshops, distinguished visitors and research projects. It also publishes a series of occasional papers.

Officers

Director Professor Claudia Geiringer Associate Director Associate Professor Petra Butler Associate Director Dr Carwyn Jones Associate Director Dr Dean Knight Centre and Events Administrator Rozina Khan

For further information on the Centre and its activities visit www.victoria.ac.nz/nzcpl or contact the Centre and Events Administrator at [email protected], ph +64 4 463 6327, fax +64 4 463 6365.

*** The New Thinking on Sustainability Conference at which preliminary versions of these articles

were originally presented was made possible with the generous support of the German Australian Pacific Lawyers Association, the New Zealand Law Foundation and Victoria University of Wellington.

(2015) 13 NZJPIL

1

FOREWORD: NEW THINKING ON SUSTAINABILITY Catherine J Iorns Magallanes*

I INTRODUCTION We all depend on the natural environment for our survival. Our food, water and air is derived from

the natural world around us, as are our material comforts. Our fundamental dependence is obvious, when we think about it, yet we have also managed to create many communities and societies worldwide where this dependence can be forgotten—where we can live comfortably, buying what we need, divorced from and not having to worry about its natural origins. With the help of modern technology, we have been able to take for granted the existence of such ecosystem services, and thus assume that they will continue—and that our societies will continue—in at least as good a position as they are now.

However, scientific assessments show that we are using more of the world's resources than can be replenished, given the rate we keep taking them. Every year we are destroying more and more of the world's bio-capacity, which makes it harder for our ecosystems to even provide the same level of service as the year before. To meet growing human populations and their growing levels of wants and needs, we use (and pollute) more and more land, water and air each year, leaving less and less for other species on this planet. Unfortunately, we are also using up the planet's resources at a rate which means that they will not be available to meet the needs of future generations. Our current way of living is ecologically unsustainable. Worse, we are altering the physical state of the planet in a way that it will make it significantly harder for future generations to survive at all. If we are to fulfil argued duties to future generations, not to mention argued responsibilities to the survival of other species and the earth's ecosystems on a larger scale, we need to change our actions and we need new systems or rules for regulating our actions. In terms of law, we need new thinking on how to define, require and enforce true, ecological sustainability.

In February 2014, Petra Butler and I organised a conference at the Victoria University of Wellington Law School that was designed to address such new legal thinking on sustainability. This Journal issue contains articles from several of the key presentations from the conference. The background to the issues addressed, the conference itself, and then this Journal issue are addressed below.

* Senior Lecturer in Law, Victoria University of Wellington; BA, LLB(Hons) Well, LLM Yale.

106 (2015) 13 NZJPIL

VI A NEW PATH IS POSSIBLE We have primarily been talking about changes in the law to recognise the inherent rights of nature.

But we also need to think about how we change economics. We must move toward an ecological economics that relegates economics to the role of tool, rather than societal goal. We also need to contemplate how we harness science to implement the rights of nature to help us more clearly identify our vision of people and nature, thriving together. These efforts will take time and our collective attention.

While we take up these efforts, we can start making our task easier by changing our language. For example, I invite us all to try talking about our work without using the term 'natural resources'. We have an "adjective/noun problem" with our language that limits our thinking.61 We believe we are taking action on behalf of the environment when we use terms like natural resources, sustainable development, green economy and natural capital. But if we look more closely, it is the nouns that indicate our real emphasis: resources, development, economy and capital. They reinforce the overarching power that our current destructive economic system holds over us. It is only the modifier that refers to the environment. So when we use these terms, we are by definition relegating the natural world's well-being to behind that of our neoclassical/neoliberal economy. Let's stop that now and pick different terms. Ecological integrity works. So does thriving communities, where communities include both people and nature, living and thriving together.

The law does change over time. We have seen that happen with human rights and we are starting to see that now with nature's rights. To paraphrase Donella Meadows, one of the world's leaders in how to fundamentally change systems, we have to keep acting on that goal and never give up.62 We must keep articulating our vision, elevating leaders who advance that vision, becoming involved in our communities and calling for change – and ultimately, we will see change made.

61 Personal Communication from Michael M'Gonigle, University of Victoria, Victoria (BC) (2013).

62 Donella Meadows Leverage Points: Places to Intervene in a System (The Sustainability Institute, Hartland, 1999).

107

COMMENT: THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM Joel Colón-Ríos*

This comment was presented at the "New Thinking on Sustainability" conference held at Victoria University of Wellington in February 2014 in response to the keynote address from Linda Sheehan, "Implementing Rights of Nature Through Sustainability Bills of Rights".

I INTRODUCTION Linda Sheehan identifies as the foundational flaw of modern environmental law its understanding

of nature as separate from, and having the function of serving, human beings.1 It is thus necessary, she argues, to transform environmental law in a way that promotes new relationships among communities and nature. That approach, she maintains, is already contained in the idea of rights. In the same way that human rights can serve to rebuild relationships between human beings, recognising nature's rights can help to rebuild a community's relationship with nature.

In this comment, I would like to explore some of the connections between the recognition of the rights of nature in some Latin American countries (namely Ecuador through the Constitution of 2008 and Bolivia through the Law of Mother Earth of 2010), and what has been identified by some authors as the New Latin American Constitutionalism (NLAC). I will argue that not only the legalisation of these rights mandates a fundamentally different relationship between human beings and their natural environment, but that it is strongly connected to more general developments in Latin American constitutional law.

II THE NEW LATIN AMERICAN CONSTITUTIONALISM The NLAC is usually identified, and in a way defined, by the new wave of constitution-making

that took place in Latin America at the end of the 20th century and at the beginning of the 21st. More

* Senior Lecturer, Faculty of Law, Victoria University of Wellington. 1 Linda Sheehan "Implementing Rights of Nature Through Sustainability Bills of Rights" (2015) 13 NZJPIL

89.

108 (2015) 13 NZJPIL

specifically, it is exemplified by the constitutions of Venezuela, Ecuador and Bolivia, adopted in 1999, 2008 and 2009 respectively (the Colombian Constitution of 1991 could also be seen as the first manifestation of the NLAC). The NLAC can be said to have four main characteristics.2 Firstly, it is based on the idea that constitutions should only be adopted through highly participatory procedures. Unlike most previous Latin American constitutions, these new constitutions were adopted by special constitution-making bodies elected for the specific purpose of adopting a constitution (which would come into force after being approved in a referendum). These processes were not perfect, but if one compares them with the ways in which constitutions used to be adopted in the region, they represent an important advance in terms of participatory democracy.3 It is therefore not surprising that they contain mechanisms of constitutional change, like the sovereign constituent assembly convened by popular initiative, that do not exist in any other parts of the world.4

Secondly, the constitution-making bodies that drafted these constitutions (when compared to the previously prevailing approach, in which the activity of constitution-making was reserved to certain elites) were highly inclusive, allowing for the participation of groups that had been historically marginalised from the political process.5 The most obvious example is the role played by indigenous groups in each of these processes, which was eventually reflected in the content of the constitutions that were adopted (the attribution of rights to nature in the Constitution of Ecuador being just one example).6 Thirdly, the constitutions that emerged from these processes attempted to create a new set of economic relations. For example, they create new forms of property, attribute the state with a strong

2 There is no unified view about the main elements of the NLAC. In this article, I identify a number of features that are similar (though not identical) to those identified by Rubén Martinez Dalmau as the "material elements common to the new Latin American constitutionalism"; Rubén Martínez Dalmau "El Nuevo Constitucionalismo Latinoamericano: Fundamentos para una Construcción Doctrinal" (2011) 9 Revista General de Derecho Público Comparado 1 at 20–24. See also Carlos Manuel Villabella Armengol "Constitución y Democracia el Nuevo Constitucionalismo Latinoamericano" (2010) 25 IUS: Revista del Instituto de Ciencias Jurídicas de Puebla 49; and Gerardo Pisarello, "El Nuevo Constitucionalismo Latinoamericano y la Constitución Venezolana de 1999: Balance de una Década" (2009) 6 Revista Sin Permiso 1.

3 For a discussion see Gabriel Negretto Making Constitutions: Presidents, Parties, and Institutional Choice in Latin America (Cambridge University Press, Cambridge, 2013); Gerardo Pisarello Procesos Constituyentes: Caminos para la Ruptura Democrática (Editorial Trotta, Madrid, 2014); Roberto Gargarella Latin American Constitutionalism, 1810-2010: The Engine Room of the Constitution (Oxford University Press, Oxford, 2013).

4 I have considered these processes in some detail in Joel Colón-Ríos Weak Constitutionalism: Democratic Legitimacy and the Question of Constituent Power (Routledge, London, 2012).

5 See for example David Landau "Constitution-Making Gone Wrong" (2013) 64 Ala L Rev 923; Renata Segura and Ana María Bejarano "¡Ni una asamblea más sin nosotros! Exclusion, Inclusion, and the Politics of Constitution-Making in the Andes" (2004) 11 Constellations 217.

6 For a discussion see Eduardo Gudynas "Buen Vivir: Today's Tomorrow" (2011) 54 Development 441.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 109

role in the economy and prohibit the privatisation of certain public services and industries.7 Finally, they are characterised by extensive lists of rights, including collective rights (such as the right to development and the right to a healthy environment, which are also present in many other constitutions), as well as by mechanisms for their protection.8

III THE NATURE OF CONSTITUTIONS In addition to these four features, there is something else that characterises the constitutions that

are commonly associated with the NLAC. They all contain very strong statements in favour of nature and ecological diversity. For example, in its art 127, the Constitution of Venezuela attributes to the State the obligation of protecting "biological and genetic diversity", and in its very preamble, it establishes as one of the goals of the Venezuelan Republic the promotion of an "ecological balance".9 This is a type of language that one can find in international declarations on the environment, but that is much less frequent in national constitutions.10 The Bolivian Constitution contains similar statements, but also presents an interesting development. In fact, the Bolivian Constitution suggests that the very possibility of democratic political action and of participatory constitution-making, the very possibility of a democratic constitutionalism, depends on the community's relationship with nature. So in its preamble, the Constitution states that the people of Bolivia, thanks to the strength given to them by the Pachamama, came together to create a new constitutional order.11

That type of statement is interesting because it makes explicit the connections between the participatory conception of constitutional change in which the NLAC is based and the protection of nature; in other words, acts of democratic participation, including the popular exercise of the power to create or transform a constitution, can only take place if human beings are in a condition to engage in different forms of political action (and that presupposes the existence of a healthy environment, of

7 For a discussion (focused on Ecuador), see Agustín Grijalva Jiménez Constitucionalismo en Ecuador (Centro de Estudios y Difusión del Derecho Constitucional, Quito, 2012) at 37–49.

8 See Jiménez, above n 7.

9 The full text in Spanish reads as follows: "Artículo 127. Es un derecho y un deber de cada generación proteger y mantener el ambiente en beneficio de sí misma y del mundo futuro. Toda persona tiene derecho individual y colectivamente a disfrutar de una vida y de un ambiente seguro, sano y ecológicamente equilibrado. El Estado protegerá el ambiente, la diversidad biológica, genética, los procesos ecológicos, los parques nacionales y monumentos naturales y demás áreas de especial importancia ecológica. El genoma de los seres vivos no podrá ser patentado, y la ley que se refiera a los principios bioéticos regulará la materia."

10 For a general discussion, see David Boyd The Environmental Rights Revolution: A Global Study of Constitutions, Human Rights, and the Environment (UBC Press, Vancouver, 2012).

11 The Spanish text reads as follows: "Cumpliendo el mandato de nuestros pueblos, con la fortaleza de nuestra Pachamama y gracias a Dios, refundamos Bolivia".

108 (2015) 13 NZJPIL

specifically, it is exemplified by the constitutions of Venezuela, Ecuador and Bolivia, adopted in 1999, 2008 and 2009 respectively (the Colombian Constitution of 1991 could also be seen as the first manifestation of the NLAC). The NLAC can be said to have four main characteristics.2 Firstly, it is based on the idea that constitutions should only be adopted through highly participatory procedures. Unlike most previous Latin American constitutions, these new constitutions were adopted by special constitution-making bodies elected for the specific purpose of adopting a constitution (which would come into force after being approved in a referendum). These processes were not perfect, but if one compares them with the ways in which constitutions used to be adopted in the region, they represent an important advance in terms of participatory democracy.3 It is therefore not surprising that they contain mechanisms of constitutional change, like the sovereign constituent assembly convened by popular initiative, that do not exist in any other parts of the world.4

Secondly, the constitution-making bodies that drafted these constitutions (when compared to the previously prevailing approach, in which the activity of constitution-making was reserved to certain elites) were highly inclusive, allowing for the participation of groups that had been historically marginalised from the political process.5 The most obvious example is the role played by indigenous groups in each of these processes, which was eventually reflected in the content of the constitutions that were adopted (the attribution of rights to nature in the Constitution of Ecuador being just one example).6 Thirdly, the constitutions that emerged from these processes attempted to create a new set of economic relations. For example, they create new forms of property, attribute the state with a strong

2 There is no unified view about the main elements of the NLAC. In this article, I identify a number of features that are similar (though not identical) to those identified by Rubén Martinez Dalmau as the "material elements common to the new Latin American constitutionalism"; Rubén Martínez Dalmau "El Nuevo Constitucionalismo Latinoamericano: Fundamentos para una Construcción Doctrinal" (2011) 9 Revista General de Derecho Público Comparado 1 at 20–24. See also Carlos Manuel Villabella Armengol "Constitución y Democracia el Nuevo Constitucionalismo Latinoamericano" (2010) 25 IUS: Revista del Instituto de Ciencias Jurídicas de Puebla 49; and Gerardo Pisarello, "El Nuevo Constitucionalismo Latinoamericano y la Constitución Venezolana de 1999: Balance de una Década" (2009) 6 Revista Sin Permiso 1.

3 For a discussion see Gabriel Negretto Making Constitutions: Presidents, Parties, and Institutional Choice in Latin America (Cambridge University Press, Cambridge, 2013); Gerardo Pisarello Procesos Constituyentes: Caminos para la Ruptura Democrática (Editorial Trotta, Madrid, 2014); Roberto Gargarella Latin American Constitutionalism, 1810-2010: The Engine Room of the Constitution (Oxford University Press, Oxford, 2013).

4 I have considered these processes in some detail in Joel Colón-Ríos Weak Constitutionalism: Democratic Legitimacy and the Question of Constituent Power (Routledge, London, 2012).

5 See for example David Landau "Constitution-Making Gone Wrong" (2013) 64 Ala L Rev 923; Renata Segura and Ana María Bejarano "¡Ni una asamblea más sin nosotros! Exclusion, Inclusion, and the Politics of Constitution-Making in the Andes" (2004) 11 Constellations 217.

6 For a discussion see Eduardo Gudynas "Buen Vivir: Today's Tomorrow" (2011) 54 Development 441.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 109

role in the economy and prohibit the privatisation of certain public services and industries.7 Finally, they are characterised by extensive lists of rights, including collective rights (such as the right to development and the right to a healthy environment, which are also present in many other constitutions), as well as by mechanisms for their protection.8

III THE NATURE OF CONSTITUTIONS In addition to these four features, there is something else that characterises the constitutions that

are commonly associated with the NLAC. They all contain very strong statements in favour of nature and ecological diversity. For example, in its art 127, the Constitution of Venezuela attributes to the State the obligation of protecting "biological and genetic diversity", and in its very preamble, it establishes as one of the goals of the Venezuelan Republic the promotion of an "ecological balance".9 This is a type of language that one can find in international declarations on the environment, but that is much less frequent in national constitutions.10 The Bolivian Constitution contains similar statements, but also presents an interesting development. In fact, the Bolivian Constitution suggests that the very possibility of democratic political action and of participatory constitution-making, the very possibility of a democratic constitutionalism, depends on the community's relationship with nature. So in its preamble, the Constitution states that the people of Bolivia, thanks to the strength given to them by the Pachamama, came together to create a new constitutional order.11

That type of statement is interesting because it makes explicit the connections between the participatory conception of constitutional change in which the NLAC is based and the protection of nature; in other words, acts of democratic participation, including the popular exercise of the power to create or transform a constitution, can only take place if human beings are in a condition to engage in different forms of political action (and that presupposes the existence of a healthy environment, of

7 For a discussion (focused on Ecuador), see Agustín Grijalva Jiménez Constitucionalismo en Ecuador (Centro de Estudios y Difusión del Derecho Constitucional, Quito, 2012) at 37–49.

8 See Jiménez, above n 7.

9 The full text in Spanish reads as follows: "Artículo 127. Es un derecho y un deber de cada generación proteger y mantener el ambiente en beneficio de sí misma y del mundo futuro. Toda persona tiene derecho individual y colectivamente a disfrutar de una vida y de un ambiente seguro, sano y ecológicamente equilibrado. El Estado protegerá el ambiente, la diversidad biológica, genética, los procesos ecológicos, los parques nacionales y monumentos naturales y demás áreas de especial importancia ecológica. El genoma de los seres vivos no podrá ser patentado, y la ley que se refiera a los principios bioéticos regulará la materia."

10 For a general discussion, see David Boyd The Environmental Rights Revolution: A Global Study of Constitutions, Human Rights, and the Environment (UBC Press, Vancouver, 2012).

11 The Spanish text reads as follows: "Cumpliendo el mandato de nuestros pueblos, con la fortaleza de nuestra Pachamama y gracias a Dios, refundamos Bolivia".

110 (2015) 13 NZJPIL

an ecological balance, of genetic diversity, and so on).12 Of course, these constitutional developments reached their climax in 2008, with the Constitution of Ecuador's recognition of nature as a relevant constitutional category and the attribution to it of a number of rights.13 As Sheehan explained, there are a number of provisions in that Constitution that are directly or indirectly related to the rights of nature; here I will only mention a few. The main substantive provision is art 71, which defines nature (or Pacha Mama), as the place "where life is reproduced and occurs", and attributes to it the "rights to integral respect for its existence and for the maintenance and regeneration of its life cycles, structure, functions and evolutionary processes".14 It also states that "all persons, communities, peoples and nations can call upon public authorities to enforce the rights of nature".

If one looks at the Ecuadorian constitution more closely, it becomes clear that it does not merely affirm the rights of nature in an abstract way, but that it contains a systematic legal framework for the enforcement of those rights. For example, art 72 recognises nature's "right to be restored", specifying that this "restoration shall be independent from the obligation of the State and natural persons or legal entities to compensate individuals and communities that depend on affected natural systems", and art 396 states: "In case of doubt about the environmental impact stemming from a deed or omission, even if there is no scientific evidence of the damage, the State shall adopt effective and timely measures of protection."15 Giving additional force to art 71, art 83(6) establishes a duty on all Ecuadorian citizens to "respect the rights of nature, preserve a healthy environment and use natural resources rationally, sustainably, and durably". I will now briefly examine one of the cases in which the enforcement of the rights of nature has been at issue, which Sheehan mentioned in her article.

12 I discuss this idea further in Joel I Colón-Ríos "Constituent Power, the Rights of Nature, and Universal Jurisdiction" (2014) 60 McGill LJ 127.

13 Similar to the Constitution of Bolivia, the Constitution of Ecuador states in its preamble that it was adopted by the people "celebrating nature, the Pacha Mama, of which we are a part of and which is vital to our existence". The Spanish text reads as follows: "Celebrando a la naturaleza, la Pacha Mama, de la que somos parte y que es vital para nuestra existencia".

14 The official version of art 71 reads as follows: "La naturaleza o Pacha Mama, donde se reproduce y realiza la vida, tiene derecho a que se respete integralmente su existencia y el mantenimiento y regeneración de sus ciclos vitales, estructura, funciones y procesos evolutivos. Toda persona, comunidad, pueblo o nacionalidad podrá exigir a la autoridad pública el cumplimiento de los derechos de la naturaleza. Para aplicar e interpretar estos derechos se observaran los principios establecidos en la Constitución, en lo que proceda. El Estado incentivará a las personas naturales y jurídicas, y a los colectivos, para que protejan la naturaleza, y promoverá el respeto a todos los elementos que forman un ecosistema."

15 I examine these provisions more closely in Joel Colón-Ríos "Notes on the Theory and Practice of the Rights of Nature: The Case of the Vilcabamba River" in Martin and others (eds) In Search of Environmental Justice (Edward Elgar, Cheltenham, 2015) 120.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 111

IV THE RIGHTS OF NATURE IN ACTION: THE VILCABAMBA CASE

In 2008, the Provincial Government of Loja, as part of the works involved in the widening of a road, deposited large amounts of rocks and excavation materials in the Vilcabamba River. Not surprisingly, the river flow increased to unprecedented levels, and those living nearby were affected in different ways. Two US citizens residing in the area decided to file a protective action against the Provincial Government (acción de protección, a mechanism that has the purpose of remedying a violation of rights that has already occurred).16 The claimants stated that they were presenting the action "in favour of nature, particularly in favour of the Vilcabamba River". The final judgment was rendered in 2011 by the Provincial Court of Loja.17 Interestingly, the Court began by referring to what it called (following Alberto Acosta), a "democracy of the earth". The Court stated:18

[T]here are some premises that are fundamental to advance what can be identified as the ‘democracy of the earth'; [these include a recognition that]: a) individual and collective human rights must be in a relation of harmony with the rights of other natural communities in the Earth; b) ecosystems have a right to exist

and to carry on their vital processes; c) the diversity of life, as expressed in nature, has a value of its own; d) ecosystems have a value independent of their utility to human beings; and e) a legal framework in which ecosystems and natural communities have an inalienable right to exist and flourish would situate Nature at the highest level of value and importance.

The Court then stated that in this case, no one had questioned the basic fact that a road was being widened by the Provincial Government, and that as part of these works certain materials were being deposited in the Vilcabamba River. Applying the reverse burden of proof contained in art 397(1) of the Constitution,19 the Court maintained that for an action in favour of the rights of nature to be successful it was not necessary for the plaintiffs to prove that the relevant environmental harm resulted from the actions of the defendant; on the contrary, it was the defendant, in this case the Provincial Government, which had the burden of proving that the activity of widening the road did not result in the alleged harm. The Court stated that, upon an inspection, a number of environmental harms were identified in the river and surrounding areas, and that the Provincial Government had not demonstrated

16 The acción de protección is probably the most important mechanism provided by the Constitution of Ecuador for the protection of rights. Article 88 defines it as an action "aimed at ensuring the direct and efficient safeguard of the rights enshrined in the Constitution". The action is of a remedial character: its purpose is to remedy a violation of rights that has already occurred.

17 Juicio No: 11121-2011-0010.

18 These statements, originally published in the website of the National Constituent Assembly of Ecuador (29 February 2008) were then reproduced in Peripecias No 87 (5 March 2008).

19 Article 397(1) establishes that with respect to environmental harm "the burden of proof regarding the absence of potential or real danger shall lie with the operator of the activity or the defendant".

110 (2015) 13 NZJPIL

an ecological balance, of genetic diversity, and so on).12 Of course, these constitutional developments reached their climax in 2008, with the Constitution of Ecuador's recognition of nature as a relevant constitutional category and the attribution to it of a number of rights.13 As Sheehan explained, there are a number of provisions in that Constitution that are directly or indirectly related to the rights of nature; here I will only mention a few. The main substantive provision is art 71, which defines nature (or Pacha Mama), as the place "where life is reproduced and occurs", and attributes to it the "rights to integral respect for its existence and for the maintenance and regeneration of its life cycles, structure, functions and evolutionary processes".14 It also states that "all persons, communities, peoples and nations can call upon public authorities to enforce the rights of nature".

If one looks at the Ecuadorian constitution more closely, it becomes clear that it does not merely affirm the rights of nature in an abstract way, but that it contains a systematic legal framework for the enforcement of those rights. For example, art 72 recognises nature's "right to be restored", specifying that this "restoration shall be independent from the obligation of the State and natural persons or legal entities to compensate individuals and communities that depend on affected natural systems", and art 396 states: "In case of doubt about the environmental impact stemming from a deed or omission, even if there is no scientific evidence of the damage, the State shall adopt effective and timely measures of protection."15 Giving additional force to art 71, art 83(6) establishes a duty on all Ecuadorian citizens to "respect the rights of nature, preserve a healthy environment and use natural resources rationally, sustainably, and durably". I will now briefly examine one of the cases in which the enforcement of the rights of nature has been at issue, which Sheehan mentioned in her article.

12 I discuss this idea further in Joel I Colón-Ríos "Constituent Power, the Rights of Nature, and Universal Jurisdiction" (2014) 60 McGill LJ 127.

13 Similar to the Constitution of Bolivia, the Constitution of Ecuador states in its preamble that it was adopted by the people "celebrating nature, the Pacha Mama, of which we are a part of and which is vital to our existence". The Spanish text reads as follows: "Celebrando a la naturaleza, la Pacha Mama, de la que somos parte y que es vital para nuestra existencia".

14 The official version of art 71 reads as follows: "La naturaleza o Pacha Mama, donde se reproduce y realiza la vida, tiene derecho a que se respete integralmente su existencia y el mantenimiento y regeneración de sus ciclos vitales, estructura, funciones y procesos evolutivos. Toda persona, comunidad, pueblo o nacionalidad podrá exigir a la autoridad pública el cumplimiento de los derechos de la naturaleza. Para aplicar e interpretar estos derechos se observaran los principios establecidos en la Constitución, en lo que proceda. El Estado incentivará a las personas naturales y jurídicas, y a los colectivos, para que protejan la naturaleza, y promoverá el respeto a todos los elementos que forman un ecosistema."

15 I examine these provisions more closely in Joel Colón-Ríos "Notes on the Theory and Practice of the Rights of Nature: The Case of the Vilcabamba River" in Martin and others (eds) In Search of Environmental Justice (Edward Elgar, Cheltenham, 2015) 120.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 111

IV THE RIGHTS OF NATURE IN ACTION: THE VILCABAMBA CASE

In 2008, the Provincial Government of Loja, as part of the works involved in the widening of a road, deposited large amounts of rocks and excavation materials in the Vilcabamba River. Not surprisingly, the river flow increased to unprecedented levels, and those living nearby were affected in different ways. Two US citizens residing in the area decided to file a protective action against the Provincial Government (acción de protección, a mechanism that has the purpose of remedying a violation of rights that has already occurred).16 The claimants stated that they were presenting the action "in favour of nature, particularly in favour of the Vilcabamba River". The final judgment was rendered in 2011 by the Provincial Court of Loja.17 Interestingly, the Court began by referring to what it called (following Alberto Acosta), a "democracy of the earth". The Court stated:18

[T]here are some premises that are fundamental to advance what can be identified as the ‘democracy of the earth'; [these include a recognition that]: a) individual and collective human rights must be in a relation of harmony with the rights of other natural communities in the Earth; b) ecosystems have a right to exist

and to carry on their vital processes; c) the diversity of life, as expressed in nature, has a value of its own; d) ecosystems have a value independent of their utility to human beings; and e) a legal framework in which ecosystems and natural communities have an inalienable right to exist and flourish would situate Nature at the highest level of value and importance.

The Court then stated that in this case, no one had questioned the basic fact that a road was being widened by the Provincial Government, and that as part of these works certain materials were being deposited in the Vilcabamba River. Applying the reverse burden of proof contained in art 397(1) of the Constitution,19 the Court maintained that for an action in favour of the rights of nature to be successful it was not necessary for the plaintiffs to prove that the relevant environmental harm resulted from the actions of the defendant; on the contrary, it was the defendant, in this case the Provincial Government, which had the burden of proving that the activity of widening the road did not result in the alleged harm. The Court stated that, upon an inspection, a number of environmental harms were identified in the river and surrounding areas, and that the Provincial Government had not demonstrated

16 The acción de protección is probably the most important mechanism provided by the Constitution of Ecuador for the protection of rights. Article 88 defines it as an action "aimed at ensuring the direct and efficient safeguard of the rights enshrined in the Constitution". The action is of a remedial character: its purpose is to remedy a violation of rights that has already occurred.

17 Juicio No: 11121-2011-0010.

18 These statements, originally published in the website of the National Constituent Assembly of Ecuador (29 February 2008) were then reproduced in Peripecias No 87 (5 March 2008).

19 Article 397(1) establishes that with respect to environmental harm "the burden of proof regarding the absence of potential or real danger shall lie with the operator of the activity or the defendant".

112 (2015) 13 NZJPIL

that those harms were not the result of its actions. Accordingly, it was determined that the actions of the Provincial Government resulted in a violation of nature's rights.

The Provincial Government was ordered to put in place a number of corrective actions directed at stopping the river's contamination. At the time of writing this comment, these orders have not been fully complied with. For example, although the Provincial Government partially cleaned the riverside it had not removed the excavation materials that were deposited in the river.20 This partial and limited implementation of the judgment, however, does not necessarily mean that there is something fundamentally wrong with the constitutional recognition of the rights of nature. For example, partial non-implementation of judgments is a common theme in debates about social and economic rights, but that is not generally seen as a reason for rejecting the recognition of those rights.21 Since the Vilcabamba Case, a number of actions based on the rights of nature have been filed, including an action against British Petroleum for the oil spill in the Gulf of Mexico (that case is particularly interesting since the Court is being asked to hear the case based on the principle of universal jurisdiction).22

V A NEW PARADIGM Some people argue that attributing rights to nature makes little or no sense, and in a way they are

undoubtedly correct. It is in a certain way nonsensical to say that something that lacks the ability to engage in rational action and moral deliberation (like a river, a mountain, a forest), or that is unable to project itself in the future and decide to act in certain ways, can have rights. But that would only be a reasonable assessment in the context of what we may call the traditional liberal constitutional paradigm. What we are seeing in countries like Ecuador is precisely a transition to a new paradigm which mandates a different way of conceiving the relationship between human beings and the natural environment. Now, constitutions are not to be seen merely as the result of an act of will of a group of human beings that has decided to create certain governmental structures and attribute each other with a number of rights, but as also creating duties toward non-human entities.

This emerging paradigm, even though it was partly made possible by the inclusive and participatory character of the New Latin American constitutionalism, goes beyond it; it sees the constitution not only as a means of realising social justice, economic redistribution or participatory democracy, but also, and perhaps principally, as a means of promoting a new type of relationship with

20 As reported by the Pachamama Foundation upon a visit to the site in February 2012: Gabriela León Cobo "Vilcabamba River case law: 1 year after" (27 March 2012) Global Alliance for the Rights of Nature <www.therightsofnature.org>; and stated in Eleanor Wheeler "Acceso a la jurisdicción ambiental: el rol de la sociedad civil" (presentation to Universidad Andina Simón, Bolívar, 19 February 2013) published online by Centro Ecuatoriano de Derecho Ambiental.

21 For a discussion, see David Landau "The Reality of Social Rights Enforcement" (2012) 53(1) Harv Intl LJ 189.

22 I discuss the issues raised by this case in J Colón-Ríos, above n 12 at 11.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 113

nature which would hopefully do away with what Sheehan called environmental law's foundational flaw. This relationship is heavily informed by Andean indigenous views under which rivers and mountains are conceived as living beings and attributed with interests of their own: interests in maintaining their own existence through time, interests in the existence of the life-systems that they help to sustain and interests in the protection of the conditions that allow for the reproduction and regeneration of those systems. The constitutionalisation of the rights of nature, of course, is a way of attempting to protect those interests.

112 (2015) 13 NZJPIL

that those harms were not the result of its actions. Accordingly, it was determined that the actions of the Provincial Government resulted in a violation of nature's rights.

The Provincial Government was ordered to put in place a number of corrective actions directed at stopping the river's contamination. At the time of writing this comment, these orders have not been fully complied with. For example, although the Provincial Government partially cleaned the riverside it had not removed the excavation materials that were deposited in the river.20 This partial and limited implementation of the judgment, however, does not necessarily mean that there is something fundamentally wrong with the constitutional recognition of the rights of nature. For example, partial non-implementation of judgments is a common theme in debates about social and economic rights, but that is not generally seen as a reason for rejecting the recognition of those rights.21 Since the Vilcabamba Case, a number of actions based on the rights of nature have been filed, including an action against British Petroleum for the oil spill in the Gulf of Mexico (that case is particularly interesting since the Court is being asked to hear the case based on the principle of universal jurisdiction).22

V A NEW PARADIGM Some people argue that attributing rights to nature makes little or no sense, and in a way they are

undoubtedly correct. It is in a certain way nonsensical to say that something that lacks the ability to engage in rational action and moral deliberation (like a river, a mountain, a forest), or that is unable to project itself in the future and decide to act in certain ways, can have rights. But that would only be a reasonable assessment in the context of what we may call the traditional liberal constitutional paradigm. What we are seeing in countries like Ecuador is precisely a transition to a new paradigm which mandates a different way of conceiving the relationship between human beings and the natural environment. Now, constitutions are not to be seen merely as the result of an act of will of a group of human beings that has decided to create certain governmental structures and attribute each other with a number of rights, but as also creating duties toward non-human entities.

This emerging paradigm, even though it was partly made possible by the inclusive and participatory character of the New Latin American constitutionalism, goes beyond it; it sees the constitution not only as a means of realising social justice, economic redistribution or participatory democracy, but also, and perhaps principally, as a means of promoting a new type of relationship with

20 As reported by the Pachamama Foundation upon a visit to the site in February 2012: Gabriela León Cobo "Vilcabamba River case law: 1 year after" (27 March 2012) Global Alliance for the Rights of Nature <www.therightsofnature.org>; and stated in Eleanor Wheeler "Acceso a la jurisdicción ambiental: el rol de la sociedad civil" (presentation to Universidad Andina Simón, Bolívar, 19 February 2013) published online by Centro Ecuatoriano de Derecho Ambiental.

21 For a discussion, see David Landau "The Reality of Social Rights Enforcement" (2012) 53(1) Harv Intl LJ 189.

22 I discuss the issues raised by this case in J Colón-Ríos, above n 12 at 11.

THE RIGHTS OF NATURE AND THE NEW LATIN AMERICAN CONSTITUTIONALISM 113

nature which would hopefully do away with what Sheehan called environmental law's foundational flaw. This relationship is heavily informed by Andean indigenous views under which rivers and mountains are conceived as living beings and attributed with interests of their own: interests in maintaining their own existence through time, interests in the existence of the life-systems that they help to sustain and interests in the protection of the conditions that allow for the reproduction and regeneration of those systems. The constitutionalisation of the rights of nature, of course, is a way of attempting to protect those interests.

114 (2015) 13 NZJPIL

115

NEW ZEALAND'S DEFECTIVE LAW ON CLIMATE CHANGE Sir Geoffrey Palmer QC*

The article describes the world-wide efforts or the lack thereof to combat climate change in the last 25 years. The article asks whether the world has to wait until the adversity actually sets in before effective action is taken; whether the failure to act is caused because people have not yet felt the adversity of climate change and will not sanction serious action until the consequences are evident to them. If that is so, will it then be too late to mitigate global warming? The article explores those questions and makes some hopeful suggestions as to what can be done to achieve zero greenhouse gas emissions. The article examines the state of New Zealand law on climate change and the approach New Zealand is taking to international negotiations.

I SOME HISTORY Two "wicked problems" that I encountered in politics have continued to occupy me in the years

since: the nuclear weapons issue and climate change. It is hard to say which is worse. Big nuclear explosions, if they occur, will produce a nuclear winter that will make human life impossible to sustain. Anthropogenic climate change is heating up the atmosphere, raising sea levels, increasing ocean acidification, increasing the frequency and intensity of storms and other extreme weather events that will make life seriously endangered.

On both these issues the world has made little progress since 1990. The nature of the policy failures in both these areas is a sad indictment on the incapacity of the peoples of the world to act in their own collective self-interest. The international community lacks both the machinery and the political will. At present it may also lack the technology to reduce the reliance on carbon. The science is telling us to reduce carbon emissions as soon as possible. In practical terms this means using alternatives to coal for electricity as soon as humanly possible and switching from other fossil fuels on a rapid transition path.

* Distinguished Fellow, Faculty of Law and New Zealand Centre for Public Law, Victoria University of Wellington; Global Affiliated Professor of Law, University of Iowa; Minister for the Environment 1987–1990.

This is a slightly revised version of a speech delivered at the Faculty of Law, Victoria University of Wellington on 16 February 2015.

NZCPL OCCASIONAL PAPERS1 Workways of the United States Supreme Court

Justice Ruth Bader Ginsburg2 The Role of the New Zealand Law Commission

Justice David Baragwanath3 Legislature v Executive – The Struggle Continues: Observations on the Work of the Regulations

Review CommitteeHon Doug Kidd

4 The Maori Land Court – A Separate Legal System?Chief Judge Joe Williams

5 The Role of the Secretary of the Cabinet – The View from the BeehiveMarie Shroff

6 The Role of the Governor-GeneralDame Silvia Cartwright

7 Final Appeal Courts: Some ComparisonsLord Cooke of Thorndon

8 Parliamentary Scrutiny of Legislation under the Human Rights Act 1998Anthony Lester QC

9 Terrorism Legislation and the Human Rights Act 1998Anthony Lester QC

10 2002: A Justice OdysseyKim Economides

11 Tradition and Innovation in a Law Reform AgencyHon J Bruce Robertson

12 Democracy through LawLord Steyn

13 Hong Kong’s Legal System: The Court of Final AppealHon Mr Justice Bokhary PJ

14 Establishing the Ground Rules of International Law: Where to from Here?Bill Mansfield

15 The Case that Stopped a Coup? The Rule of Law in FijiGeorge Williams

17 The Official Information Act 1982: A Window on Government or Curtains Drawn?Steven Price

18 Law Reform & the Law Commission in New Zealand after 20 Years – We Need to Try a Little HarderRt Hon Sir Geoffrey Palmer

19 Interpreting Treaties, Statutes and ContractsRt Hon Judge Sir Kenneth Keith

20 Regulations and Other Subordinate Legislative Instruments: Drafting, Publication, Interpretation and DisallowanceRoss Carter

Available from the New Zealand Centre for Public LawFaculty of Law, Victoria University of Wellington, PO Box 600, Wellington, New Zealand

Email: [email protected], Fax +64 4 463 6365