On February 21, 2023, a group of Austrian children filed a complaint with the Austrian Constitutional Court. The applicants alleged that the Federal Climate Protection Act (Klimaschutzgesetz 2011) is, in part, unconstitutional for violating the constitutionally guaranteed rights of children and the fundamental right to equality before the law. The Austrian Constitutional Court rejected the application as inadmissible by decision of 27 June 2023. According to the Court, the scope of the application was too narrow, and repealing the contested provisions would not have eliminated the underlying unconstitutionality. Relying on its earlier case law, the court, therefore, considered the application as inadmissible. Further, the court held that repealing the contested phrases would have given the contested provision of the Federal Climate Protection Act a different content. Repeal would thus amount to an act of legislation by the court, which is prohibited due to the separation of powers principle. 

Background
The Federal Climate Protection Act was adopted in 2011 to implement emission reduction obligations under European law. The Annexes to the Act set out the maximum levels of greenhouse gas emissions by sector for 2008-2012 and 2013-2020. However, the Act does not stipulate any emissions reduction targets after 2020. The lack of binding greenhouse gas emission reduction targets leads to persistently high emission levels on Austrian territory. In light of this, the applicants alleged the unconstitutionality of Art 3 para 2 of the Federal Climate Protection Act for (a) establishing commitment periods that only extend to 2020, (b) stipulating a pure negotiation obligation regarding the development of effective GHG reduction targets (instead of a mandate to take action) and (c) providing retrospective (instead of preventive) emergency measures in case of an exceedance of GHG ceilings established under international or EU law. In concrete terms, the applicants brought forward that Art 3 para 2 of the Federal Climate Protection Act violated children’s rights and their right to equality before the law. In eventu, the applicants further demanded the repeal of parts of Art 3 para 1 of the Federal Climate Protection Act. 

Rights of Children 
The Federal Constitutional Act on the Rights of Children implements the UN Convention on the Rights of the Child on the national level; it grants subjective rights (“constitutionally guaranteed rights”) to children, i.e., persons under the age of 18 years. Under Art 1, every child has the right to have his or her best interests protected. This includes protection and care, the best possible development and the safeguarding of child interests; in addition, Art 1 requires consideration of intergenerational equity. This commitment to intergenerational equity can also be found in the Federal Constitutional Act on Sustainability, Animal Protection, Comprehensive Environmental Protection, Water and Food Security as well as Research. This state objective that does not grant subjective rights but shall guide the interpretation of other legal sources. 
The plaintiffs alleged that climate change triggers positive obligations under Art 1 of the Federal Constitutional Act on the Rights of Children as it poses an imminent danger to the well-being of present and future generations. Thus, Austria is obligated to take adequate measures to protect child well-being against the disastrous impacts of climate change and restrictions of freedom related to drastic emission reduction measures needed in the future. Such need for drastic emission reduction is evident as – according to the plaintiffs – the scope of state obligations under Art 1 of the Federal Constitutional Act on the Rights of Children is to be interpreted through the latest scientific findings as well as EU and international legal requirements. These sources allow calculating of a national CO2 budget based on the internationally agreed 1.5°C target. Said CO2 budget, in turn, constitutes a “finite resource” in the sense of the Federal Constitutional Act on Sustainability. Thus, it is to be managed sustainably, and its consumption should respect the interests of future generations. 
In a nutshell, the applicants argued that constitutional law requires (a) the non-exceedance of the national CO2 budget and (b) equitable distribution of the remaining budget between generations in order to prevent a violation of the plaintiffs’ constitutionally guaranteed rights to (child) well-being. The plaintiffs asserted that Art 3 para 2 of the Federal Climate Protection Act does not meet these requirements and therefore violates Art 1 of the Federal Constitutional Act on the Rights of Children, which is to be interpreted in light of the Federal Constitutional Act on Sustainability. 
The applicants reached a similar conclusion based on the Charta of Fundamental Rights of the European Union (CFR). According to Art 51 CFR, the Charta’s scope is principally opened as adopting the Federal Climate Protection Act constitutes an implementation of GHG reduction targets determined under EU law. Art 24 CFR stipulates that children shall have the right to such protection and care as is necessary for their well-being. Under EU law, children thus have a right to protection of their well-being, similar to the national right. The European rights of the child under Art 24 CFR are to be interpreted in light of Art 37 CFR, which, in turn, refers to the principle of sustainable development. In a manner comparable to the Federal Constitutional Act on Sustainability, Art 37 CFR imposes an obligation to manage resources in an equitable and fundamental rights-respecting manner. This includes Austria’s remaining CO2 budget, which is to be distributed equitably between generations to protect the rights of the child under Art 24 CFR.

Right to Equality before the Law 
The application also relied on the right to equality before the law for asserting the unconstitutionality of Art 3 para 2 of the Federal Climate Protection Act. This fundamental right entails a principle of fair burden sharing; in particular, it prohibits the realisation of the welfare of all (or the majority) at the expense of the few. The applicants alleged that Art 3 para 2 of the Federal Climate Protection Act violated the right to equality before the law for two reasons. First, the provision infringes the general principle of objectivity (“allgemeines Sachlichkeitsgebot”), inherent to the right to equality before the law. Second, they alleged that Art 3 para 2 of the Federal Climate Protection Act entails unequal treatment of children compared to adults, which cannot be justified. 
The general principle of objectivity requires that legal norms serve the public interest and seek to realise it with appropriate, necessary and proportionate means. If this is not the case, the legal norm is not objective and thus unconstitutional. According to the applicants, the Federal Climate Protection Act must thus meet two requirements: First, individual norms must be suitable (“appropriate”) to achieve the Act’s general objective, enabling the coordinated implementation of effective climate protection measures and ensure a rapid reduction of GHG emissions. Second, burdens associated with reducing GHG emissions must be distributed evenly between members of society. The Federal Climate Protection Act does not meet these requirements: Art 3 para 2 of the Act violates the principle of fair burden sharing as the lack of binding reduction pathways causes a rapid consumption of the remaining CO2 budget, which could be used up entirely already in 2025. Consequently, the GHG reduction burden is transferred to younger generations and not equitably distributed between all members of society. In addition, the applicants noted that it is impossible to achieve the Act’s objective (to comply with international and EU mitigation obligations) without legally binding GHG reduction pathway. Art 3 of the Federal Climate Protection Act hinders the adoption of a legally binding pathway in providing a pure negotiation obligation paired with references to past commitment periods only. Overall, Art 3 thus undermines the objective of the Federal Climate Protection Act.  
The applicants further alleged that Art 3 para 2 of the Federal Climate Protection Act provides for unequal treatment of children compared to adults. This is because the current formulation and design of the Federal Climate Protection Act (especially the lack of legally binding reduction pathways) allow for rapid consumption of the remaining CO2 budget (probably until 2025). Consequently, the burdens associated with emission reduction are largely transferred to the future and, thus, to younger generations. Younger generations are treated unequally compared to older generations as they bear the brunt of restrictions of freedom associated with emission reduction, especially as restrictions of freedom will be more severe the more time passes without action. According to the plaintiffs, such unequal treatment is not justified and thus violates their right to equality before the law.

Children of Austria v. Austria

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Children of Austria v. Austria - complaint

Filed

On February 21, 2023, a group of Austrian children filed a complaint with the Austrian Constitutional Court. The applicants alleged that the Federal Climate Protection Act (Klimaschutzgesetz 2011) is, in part, unconstitutional for violating the constitutionally guaranteed rights of children and the fundamental right to equality before the law. The Austrian Constitutional Court rejected the application as inadmissible by decision of 27 June 2023. According to the Court, the scope of the application was too narrow, and repealing the contested provisions would not have eliminated the underlying unconstitutionality. Relying on its earlier case law, the court, therefore, considered the application as inadmissible. Further, the court held that repealing the contested phrases would have given the contested provision of the Federal Climate Protection Act a different content. Repeal would thus amount to an act of legislation by the court, which is prohibited due to the separation of powers principle. 

Background
The Federal Climate Protection Act was adopted in 2011 to implement emission reduction obligations under European law. The Annexes to the Act set out the maximum levels of greenhouse gas emissions by sector for 2008-2012 and 2013-2020. However, the Act does not stipulate any emissions reduction targets after 2020. The lack of binding greenhouse gas emission reduction targets leads to persistently high emission levels on Austrian territory. In light of this, the applicants alleged the unconstitutionality of Art 3 para 2 of the Federal Climate Protection Act for (a) establishing commitment periods that only extend to 2020, (b) stipulating a pure negotiation obligation regarding the development of effective GHG reduction targets (instead of a mandate to take action) and (c) providing retrospective (instead of preventive) emergency measures in case of an exceedance of GHG ceilings established under international or EU law. In concrete terms, the applicants brought forward that Art 3 para 2 of the Federal Climate Protection Act violated children’s rights and their right to equality before the law. In eventu, the applicants further demanded the repeal of parts of Art 3 para 1 of the Federal Climate Protection Act. 

Rights of Children 
The Federal Constitutional Act on the Rights of Children implements the UN Convention on the Rights of the Child on the national level; it grants subjective rights (“constitutionally guaranteed rights”) to children, i.e., persons under the age of 18 years. Under Art 1, every child has the right to have his or her best interests protected. This includes protection and care, the best possible development and the safeguarding of child interests; in addition, Art 1 requires consideration of intergenerational equity. This commitment to intergenerational equity can also be found in the Federal Constitutional Act on Sustainability, Animal Protection, Comprehensive Environmental Protection, Water and Food Security as well as Research. This state objective that does not grant subjective rights but shall guide the interpretation of other legal sources. 
The plaintiffs alleged that climate change triggers positive obligations under Art 1 of the Federal Constitutional Act on the Rights of Children as it poses an imminent danger to the well-being of present and future generations. Thus, Austria is obligated to take adequate measures to protect child well-being against the disastrous impacts of climate change and restrictions of freedom related to drastic emission reduction measures needed in the future. Such need for drastic emission reduction is evident as – according to the plaintiffs – the scope of state obligations under Art 1 of the Federal Constitutional Act on the Rights of Children is to be interpreted through the latest scientific findings as well as EU and international legal requirements. These sources allow calculating of a national CO2 budget based on the internationally agreed 1.5°C target. Said CO2 budget, in turn, constitutes a “finite resource” in the sense of the Federal Constitutional Act on Sustainability. Thus, it is to be managed sustainably, and its consumption should respect the interests of future generations. 
In a nutshell, the applicants argued that constitutional law requires (a) the non-exceedance of the national CO2 budget and (b) equitable distribution of the remaining budget between generations in order to prevent a violation of the plaintiffs’ constitutionally guaranteed rights to (child) well-being. The plaintiffs asserted that Art 3 para 2 of the Federal Climate Protection Act does not meet these requirements and therefore violates Art 1 of the Federal Constitutional Act on the Rights of Children, which is to be interpreted in light of the Federal Constitutional Act on Sustainability. 
The applicants reached a similar conclusion based on the Charta of Fundamental Rights of the European Union (CFR). According to Art 51 CFR, the Charta’s scope is principally opened as adopting the Federal Climate Protection Act constitutes an implementation of GHG reduction targets determined under EU law. Art 24 CFR stipulates that children shall have the right to such protection and care as is necessary for their well-being. Under EU law, children thus have a right to protection of their well-being, similar to the national right. The European rights of the child under Art 24 CFR are to be interpreted in light of Art 37 CFR, which, in turn, refers to the principle of sustainable development. In a manner comparable to the Federal Constitutional Act on Sustainability, Art 37 CFR imposes an obligation to manage resources in an equitable and fundamental rights-respecting manner. This includes Austria’s remaining CO2 budget, which is to be distributed equitably between generations to protect the rights of the child under Art 24 CFR.

Right to Equality before the Law 
The application also relied on the right to equality before the law for asserting the unconstitutionality of Art 3 para 2 of the Federal Climate Protection Act. This fundamental right entails a principle of fair burden sharing; in particular, it prohibits the realisation of the welfare of all (or the majority) at the expense of the few. The applicants alleged that Art 3 para 2 of the Federal Climate Protection Act violated the right to equality before the law for two reasons. First, the provision infringes the general principle of objectivity (“allgemeines Sachlichkeitsgebot”), inherent to the right to equality before the law. Second, they alleged that Art 3 para 2 of the Federal Climate Protection Act entails unequal treatment of children compared to adults, which cannot be justified. 
The general principle of objectivity requires that legal norms serve the public interest and seek to realise it with appropriate, necessary and proportionate means. If this is not the case, the legal norm is not objective and thus unconstitutional. According to the applicants, the Federal Climate Protection Act must thus meet two requirements: First, individual norms must be suitable (“appropriate”) to achieve the Act’s general objective, enabling the coordinated implementation of effective climate protection measures and ensure a rapid reduction of GHG emissions. Second, burdens associated with reducing GHG emissions must be distributed evenly between members of society. The Federal Climate Protection Act does not meet these requirements: Art 3 para 2 of the Act violates the principle of fair burden sharing as the lack of binding reduction pathways causes a rapid consumption of the remaining CO2 budget, which could be used up entirely already in 2025. Consequently, the GHG reduction burden is transferred to younger generations and not equitably distributed between all members of society. In addition, the applicants noted that it is impossible to achieve the Act’s objective (to comply with international and EU mitigation obligations) without legally binding GHG reduction pathway. Art 3 of the Federal Climate Protection Act hinders the adoption of a legally binding pathway in providing a pure negotiation obligation paired with references to past commitment periods only. Overall, Art 3 thus undermines the objective of the Federal Climate Protection Act.  
The applicants further alleged that Art 3 para 2 of the Federal Climate Protection Act provides for unequal treatment of children compared to adults. This is because the current formulation and design of the Federal Climate Protection Act (especially the lack of legally binding reduction pathways) allow for rapid consumption of the remaining CO2 budget (probably until 2025). Consequently, the burdens associated with emission reduction are largely transferred to the future and, thus, to younger generations. Younger generations are treated unequally compared to older generations as they bear the brunt of restrictions of freedom associated with emission reduction, especially as restrictions of freedom will be more severe the more time passes without action. According to the plaintiffs, such unequal treatment is not justified and thus violates their right to equality before the law.   

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An aim to achieve a quantifiable outcome within a given time-frame, set by an institution such as a national government.

Policy instruments are techniques or tools used by governing authorities to promote certain policies in order to achieve predetermined goals. Put simply, instruments are how a government tries to achieve its goals, with this taxonomy being focused on national policy instruments.

Risk is the potential for adverse consequences resulting from the dynamic interplay between (climate-related) hazards, exposure, and vulnerability of affected human or ecological systems.

Groups  of people who are adversely affected by climate change or the response to it

A set of principles, processes, and practices that build economic and political power to shift from an extractive economy to a regenerative economy.

Justice is the ethical and political framework that addresses fairness, including issues of responsibility, rights, and structural inequity.

Renewable energy means all forms of energy produced from renewable sources in a sustainable manner.

Fossil fuel is a generic term for non-renewable energy sources such as coal, fossil gas, and oil (including crude oil, and petroleum products), that can be used for electricity and heat generation. Fossil fuels are hydrocarbons formed from pressurised and heated organic material buried over millions of years.

Molecules in the atmosphere that play a key role in the greenhouse effect by trapping heat radiating from Earth’s surface.

Area of the economy in which actors engage in identical or related activities.

In human systems, the process of adjustment to actual or expected climate change and its effects, in order to moderate harm, increase resilience or exploit beneficial opportunities. In natural systems, the process of adjustment to actual climate change and its effects; human intervention may facilitate adjustment to expected climate change and its effects.

The management and allocation of funds, assets and investments to meet various objectives

People who are less able to respond to the effects of climate change due to having limited financial or physical assets

Zoning and spatial planning are both methods for guiding the distribution of people and activities in a space, and are regulatory restriction.

A ban is a legal action that prevents the sale or supply of a product or service, or that recalls a product from the market. Examples are bans on SF6, greenwashing, fossil fuel advertisement or single-use plastics.

Either money or something of monetary value is transferred between two or more organisations, people or countries.

Actions or measures to adapt freshwater systems to climate change.

Actions or measures to adapt freshwater, coastal and marine systems to climate change.

Hot temperature extremes are daily maximum temperatures  that were exceeded on average once in a decade or once in 50 years, and includes heatwaves.

Actions to reduce emissions in energy generation and supply.

Extreme weather refers to events where a weather variable exceeds (or falls below) a threshold. Meaning it is significantly different from the average or usual weather pattern.

A drought is an extended period of unusually dry weather marked by a significant and sustained lack of precipitation, falling below a specific threshold over a large area for more than a month

Social protection systems consist of policies that help people manage social risks in order to prevent poverty and maintain decent incomes and living standards

Fossil gas, commonly known as natural gas, is a fossil fuel consisting chiefly of methane with smaller amounts of other hydrocarbons and trace gases, found in underground deposits.

People who have left their homes, whether through force, voluntarily, or a mixture of both

Any compulsory, unrequited payment to the government levied on corporations or individuals. This can be for environmental reasons, such as introducing a Carbon tax to set a price that emitters must pay for the greenhouse gases they emit.

The activities of industries involved in the production, distribution, and sale of energy, including electricity, gas, and renewables.

Activities that involve planning, designing and building infrastructure, residential, and commercial structures.

This sector involves activities that impart knowledge and skills to individuals, including formal schooling, vocational training and educational support.

Activities of government agencies and institutions that provide public services, enforce laws and manage public resources.

Activities that involve the cultivation of crops and raising of livestock for food, fibre, and other products essential for human life and industry.

This sector involves the distribution, treatment, and conservation of water resources.

Slow onset events evolve gradually from incremental changes over many years or from increased frequency or intensity of recurring events. As defined in the Cancun Adaptation Framework (2010), slow onset events include risks and impacts from rising temperatures, desertification, biodiversity loss, land and forest degradation, glacial retreat, ocean acidification, sea level rise, and salinization.

Heavy precipitation refers to any form of weather where substances fall from the sky, including rain, snow, sleet, or hail.

Children of Austria v. Austria - complaint

Policy instrument

Risk

Impacted group

Just transition

Renewable energy

Fossil fuel

Greenhouse gas

Economic sector

Adaptation/resilience

Finance