Summary:
On 13 August 2025, the Western Cape High Court (South Afria) delivered a judgment in a successful judicial review application that was brought by two public interest organisations, Green Connection NPC and Natural Justice, against the decisions to grant environmental authorisation to TotalEnergies and Shell for offshore oil and gas exploration drilling in Block 5/6/7, an area which is approximately 10,000km² off South Africa’s South-West coast between Cape Town and Cape Agulhas. The court upheld five of the six grounds of review and declared the decisions unlawful, remitting the matter to the Director-General (“the DG”) of the South African Department of Mineral Resources and Energy, for reconsideration.
The review application concerned the granting of an environmental authorisation (“the EA”) to TotalEnergies and Shell in terms of the National Environmental Management Act 107 of 1998 (“NEMA”), for the purpose of conducting exploration drilling to determine whether geological structures contain oil or gas – fossil fuels – in potentially extractable amounts. The application for an EA was lodged with the Department of Mineral Resources and Energy and it was granted by its DG on 17 April 2023. On 24 September 2023, the Minister of Forestry, Fisheries and the Environment dismissed the applicants’ internal joint appeal against the DG’s decision.
More details on the challenge:
Total and its co-venture partners, Shell and PetroSA, are co-holders of Exploration Right 12/3/224, granted under the Mineral and Petroleum Resources Development Act 28 of 2002 for Block 5/6/7. The block is situated 60-170km offshore at water depths of 700 and 3,200m. Following seismic surveys, Total sought to drill one exploration well and up to four additional wells.
The EA application triggered listed activities under the Environmental Impact Assessment Regulations of 2014. Total commissioned technical modelling (drilling discharges, oil spill, underwater noise) and specialist studies (marine ecology, fisheries, socio-economic, cultural heritage, climate change). The Petroleum Agency SA reviewed the studies and recommended an approval. The DG granted the EA on 17 April 2023. The Minister dismissed an internal appeal on 24 September 2023, prompting the review application.
Rights at Stake:
- Section 24(a) of the Constitution, the right to an environment not harmful to health or well-being.
- Section 24(b) of the Constitution, the right to have the environment protected through reasonable measures preventing pollution and ecological degradation, promoting conservation, and securing ecologically sustainable development.
- Interests of the whole community in coastal public property, including future generations and other living organisms dependent on the National Environmental Management: Integrated Coastal Management Act 24 of 2008 (“ICMA”).
- Rights of small-scale fishers and coastal communities to livelihood and cultural practices.
Claim:
The applicants’ review challenged the final environmental and social impact assessment report (“Final EIR”) prepared on behalf of TotalEnergies and the review grounds may be summarised as follows:
(a) Firstly, the Final EIR failed to properly assess and the state respondents failed to properly consider the socio-economic impact of the proposed project because it did not assess the socio-economic impact which a well blowout and consequent oil spill may cause on the fishing industry and small-scale fishers.
(b) Secondly, the decision-makers failed to consider the factors prescribed by ICMA.
(c) Thirdly, the Final EIR failed to assess and the state respondents failed properly to consider the need and desirability of the proposed project because no consideration was given to the climate change impacts which will be caused by burning any gas discovered by the proposed project.
(d) Fourthly, the Final EIR failed to assess and the state respondents failed to consider the transboundary impacts of the proposed project, both on Namibia and on international waters.
(e) Fifthly, neither the Final EIR nor the Environmental Management Programme Report included TotalEnergies’ Oil Spill Contingency Plan or Blow Out Contingency Plan.
(f) Sixthly, PASA delivered an appeal response report which at face value was submitted on behalf of the DG and was treated as such by the Minister.
Judgment:
On 13 August 2025, Judge Mangcu-Lockwood delivered judgment in favour of the applicants on the first five grounds of review and dismissed the sixth.
First Ground: The court held that once the Final EIR identified a potential blowout and oil spill as a potentially significant impact or risk, it was obliged to assess the consequences and probability of the impact or risk including those with a low degree of probability. The court rejected TotalEnergies’ distinction between a “risk” and an “impact” stating this was “against the spirit and purport of these Regulations. Both are required to be assessed in terms of the legislation, in equal measure.”
Second Ground: The court found that the DG’s decision made no specific mention of ICMA. Even based on a generous reading of the record, the court was unable to conclude that the Final EIR, and by extension the DG, considered ICMA factors. The court held:
“As the applicants point out, ICMA introduces concepts which are not present in NEMA or other aspects of environmental law, by conferring a special legal status on coastal public property, which afforded the environment a particularly high level of protection. It expressly provides that the State holds the coastal public property in trust for current and future generations. It creates the concept of the interests of the whole community, which specifically recognises the need to take into account the interests of other living organisms which are dependent on the coastal environment. As such the ICMA’s requirements cannot be satisfied by generic consideration of NEMA.”
The court found that the DG then failed to consider the ICMA factors and that his decision stood to be reviewed and set aside. The Minister’s decision was described as “woefully deficient” as it did not explicitly identify the ICMA factors to be considered and failed to set out any findings in respect thereof.
Third Ground: The court held there is “no doubt that climate change impact assessment must form part of the assessment to be conducted and considered before the grant of an environmental authorisation.” Regarding the distinction between exploration and production phases, the court stated: “Whilst it is correct that the specific activity for which the EA in this case is granted is exploration and not production… the two processes are intertwined. There would be no point in conducting an exploration activity unless an entity hoped to proceed to the next phase of production.”
Fourth Ground: Applying sections 232 and 233 of the Constitution, which require consideration of customary and international law, the court held:
“There is accordingly an obligation arising from customary international law and international law upon South Africa to not allow its territory to be used in a manner which causes transboundary harm. The duty includes a requirement for an environmental impact assessment to be conducted where an activity such as the present exploration activity, which poses a risk of transboundary harm, is to be conducted.”
Fifth Ground: The court found that given more focused information would be provided in the Oil Spill Contingency Plan and Blow Out Contingency Plan in another round of submissions it was “difficult to conclude that there had been a full assessment.” Even more problematic was the lack of public participation regarding these plans.
Sixth Ground: The court dismissed this ground and found that PASA as an organ of state designated under section 70 of the MPRDA to perform public functions was entitled to submit an appeal response.
Remedy:
The court made the following order:
- Shell Exploration and Production South Africa BV was joined as the fifth respondent. There were no costs in relation to the joinder application.
- The applicants’ late service of the review application was condoned.
- The decision taken by the third respondent on 17 April 2023 to grant an environmental authorisation to TotalEnergies to conduct exploratory operations in Block 5/6/7 was reviewed and set aside.
- The decision taken by the first respondent on 24 September 2023 dismissing the appeal of the first and second applicants was reviewed and set aside.
- The decision of granting an environmental authorisation to TotalEnergies was remitted to the third respondent for reconsideration, which process must provide for the following:
- TotalEnergies must be afforded the opportunity to submit new or amended assessments to cure the deficiencies identified in the first to fifth grounds of review.
- Public participation must be conducted in regard to the new and/or amended assessments submitted by TotalEnergies before decision is made by the third respondent.
- The first to third respondents were ordered to pay the costs of this application, jointly and severally, on a scale C, including the costs of three counsel.
Status of the case:
The High Court judgment has set aside the environmental authorisation and the matter remitted for reconsideration. The State and Shell have filed applications for leave to appeal, either before the Supreme Court of Appeal or a full bench of the High Court of South Africa.
Case Documents:
Judgment of the High Court of South Africa can be found here.
Commentary:
Academic and professional commentary on the cases is available here, here, and here.
Related case:
For related case-law, see:
Suggested Citation:
High Court of South Africa, Western Cape (Cape Town), Division Green Connection NPC and Another v Minister of Forestry, Fisheries and the Environment and Others, case no. 5676/2024, 13 August 2025, Judge Mangcu Lockwood.
Last updated:
3 August 2026.
Credits:
This database entry was contributed by Camagu Luvo, LLD Candidate in the Urban Law and Sustainability Governance Chair, Stellenbosch University, South Africa.