Summary:
On 28 January 2026, the Commerce team of the Hague District Court issued a judgment in a case brought by Greenpeace and seven residents of the Caribbean island of Bonaire against the Dutch government. In examining the case, which concerned both alleged mitigation and adaptation failures, the Court found several violations of the human rights guaranteed in the European Convention on Human Rights (ECHR). In particular, and extensively discussing the European Court of Human Rights’ (ECtHR) KlimaSeniorinnen judgment of 9 April 2024, the Court found that the Dutch State had failed to fulfil its positive obligations towards the inhabitants of Bonaire under Article 8 ECHR, because the authorities’ mitigation and adaptation measures taken as a whole in relation to them did not meet the Netherlands’ obligations under the international climate regime (the UNFCCC and the Paris Agreement, discussing also the Kyoto Protocol). Additionally, given that the Dutch State took mitigation and adaptation measures for the inhabitants of Bonaire much later and less systematically than for the inhabitants of the European Netherlands, it found violations of the ECHR’s non-discrimination norms.
Background to the case:
On 11 May 2023, Greenpeace and seven residents of the Caribbean island of Bonaire sent a pre-litigation letter (Dutch: sommatie) to the office of the Prime Minister of the Netherlands. The letter claimed that the Netherlands does not sufficiently protect the authors from climate change and thereby violates their human rights. Since 2010, Bonaire has been a special municipality of the Netherlands and part of the Caribbean Netherlands. In the pre-litigation letter, the plaintiffs claim that the duties of care arising from Articles 2 and 8 of the European Convention on Human Rights (ECHR), the right to life and the right to family life, have been breached. The inaction of the Netherlands in sufficiently addressing climate change, they argue, violates these human rights. Therefore, they made the following demands:
- The Netherlands must implement the necessary measures to protect Bonaire from the consequences of climate change.
- The State shall develop and implement a policy which guarantees a 100% reduction of Dutch emission of all greenhouse gases in 2030 when compared to 1990 levels.
- Lastly, as part of and to realize the demands above, the State must implement all necessary measures to ensure that, in January 2040 at the latest, the joint volume of the national emission of all greenhouse gases will have been reduced by 100% when compared to 1990 emissions levels.
With the pre-litigation letter to the Prime Minister, the plaintiffs asked for negotiations to find a mutually agreeable decision on their demands. Given the lack of successful negotiations, the plaintiffs initiated proceedings under the Dutch Act on Redress of Mass Damages in Collective Action (WAMCA, alternatively translated as the Settling of Large-scale Losses or Damage (Class Actions) Act), which restructured the Dutch legal system’s approach to mass litigation and collective redress since coming into force in 2020.
Admissibility:
On 25 September 2024, Greenpeace announced that a court in the Hague had ruled that its action on behalf of the public interest of the people of Bonaire was admissible. A hearing was set to follow in 2025.
Judgment of 28 January 2026:
The District Court of Hague (Court) found that individuals residing in Bonaire were owed positive obligations arising from the application of Article 8 of the ECHR in the context of climate-related risks as identified in the judgment in Verein KlimaSeniorinnen et al. v. Switzerland. It further found that the non-discrimination norms found in Article 14 of the ECHR and Article 1 of Protocol 12 to the ECHR were applicable to the case in light of the difference in treatment of the residents of Bonaire arising out of the lack of a climate adaptation applicable to Bonaire, when in contrast, a coherent and integrated climate adaptation policy was being implemented for the European Netherlands since 2016.
In its reasoning, it assessed the Netherlands’ and the EU’s climate mitigation laws as falling short of the minimum requirements of ambition and stringency, which it derived from decisions of the Conference of Parties (COP) to the UNFCCC read with provisions of the UNFCCC and the Paris Agreement. It negatively appraised the Netherlands’ reliance on a ‘grandfathering’ approach, which it found to be ‘controversial’ although not prohibited. These shortcomings informed its negative ‘overall assessment’ of the Netherlands’ climate mitigation framework for compliance with Article 8 of the ECHR, as interpreted by the European Court of Human Rights in the Verein KlimaSeniorinnen judgment. Next, regarding the positive obligation to effectively implement climate mitigation measures, it held that the State’s admission that the 2030 emissions reduction was ‘highly unlikely’ to be met as a decisive factor in determining a breach of that obligation.
Regarding adaptation measures, the Court found that although initial steps have been taken (for instance, the setting up of a local project for the development of an adaptation plan) the fact that no concrete timeline for the implementation of adaptation measures exists despite the known climate risks (especially that of partial submergence significant parts of land territory by 2050), and that the State has carried out insufficient scientific research and committed no financial resources for certain adaptation-related policies in Bonaire were assessed negatively. On this basis the Court concluded that the State had breached its positive obligation to sufficiently and in a timely manner, take appropriate adaptation measures in Bonaire. Finally, it found that the State did not fulfil its obligations to provide relevant environmental information to the residents of Bonaire and allow for their participation in climate-related decision making at least until 2023.
The Court found that the State did not provide an adequate justification of the unequal treatment of Bonaire as it related to its inclusion within the Netherland’s overall climate adaptation policy and the commitment of resources for the implementation of adaptation measures. It thus found that the State had breached its obligation of non-discrimination under Article 14 of the ECHR and Article 1 of Protocol 12 to the ECHR.
Order:
Based on the above, the Court partially allowed the plaintiffs’ claim for specific performance against the state and ordered the State to ensure incorporate ‘absolute’ emissions reduction targets compatible with the minimum requirements arising out of COP decisions and the Paris Agreement into its national climate legislation and provide insight into Netherlands’ ‘remaining emission allowance’; to draft and implement an appropriate national adaptation plan that also includes Bonaire; and pay legal costs to the plaintiffs. It rejected the plaintiffs’ requests that the Court order the State to adopt specific emissions reduction targets, and a binding national carbon budget determined in accordance with its fair share of the global carbon budget for 1.5˚C.
In doing so, it held that the State has considerable policy-making discretion in choosing its measures to comply with its international obligations under the UN climate treaties, meaning that the Court ordered the State to take effective measures to fulfil its UN obligations in a timely manner, without issuing any concrete orders as to the measures to be taken, deferring to the other branches of government and the separation of powers in this regard (trias politica).
Further reading:
English translation of the judgment of 28 January 2025:
Judgment of 28 January 2025 (Dutch):
Pre-litigation letter of 11 May 2023:
Suggested citation:
The Hague District Court, Greenpeace Netherlands v. State of the Netherlands (Bonaire), Judgment of 28 January 2026, ECLI:NL:RBDHA:2026:1347.
Date last updated:
29 January 2026.