CEDH · CASELAW;JUDGMENTS;GRANDCHAMBER;ENG — 9 avril 2024

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SWITZERLAND (Application no. 53600/20)   JUDGMENT   Art 34 • Victim • Locus standi • Separate key criteria set out for establishing victim status of individual applicants and locus standi (representation) of associations in climate-change context • Need for effective protection of Convention rights taking into account special features of this phenomenon without undermining the exclusion of actio popularis from the Convention system • In case-circumstances victim-status criteria not fulfilled by individual applicants • Especially high threshold for fulfilling criteria not met (incompatible ratione personae ) • Applicant association fulfilled relevant criteria ( locus standi ) and thus had standing to act on behalf of its members • Importance of collective action and intergenerational burden-sharing in climate-change context Art 8 • Positive obligations • Private and family life • Respondent State’s failure to comply with positive obligation to implement sufficient measures to combat climate change • Art 8 applicable • Art 8 encompassing a right for individuals to effective protection by the State authorities from the serious adverse effects of climate change on their lives, health, well-being and quality of life • Need to develop a more appropriate and tailored approach as regards the various Convention issues arising in the climate-change context not addressed by Court’s existing environmental case-law • Importance of intergenerational burden ‑ sharing • Reduced margin of appreciation as regards State’s commitment combating climate change, its adverse effects and the setting of aims and objectives in this respect • Wide margin of appreciation as to the choice of means designed to achieve those objectives • Contracting State’s primary duty to adopt, and to effectively apply in practice, regulations and measures capable of mitigating the existing and potentially irreversible, future effects of climate change • Enumeration of requirements to which competent authorities need to have due regard • Need for domestic procedural safeguards • Mitigation measures to be supplemented by adaptation measures aimed at alleviating the most serious or imminent consequences of climate-change • Existence of critical lacunae in Swiss authorities’ process of putting in place the relevant domestic regulatory framework • Failure to quantify, through a carbon budget or otherwise, national GHG emission limitations • Failure to act in good time and in an appropriate and consistent manner regarding the devising, development and implementation of the relevant legislative and administrative framework • Wide margin of appreciation exceeded Art 6 § 1 (civil) • Access to court • Applicability of civil limb concerning the effective implementation of mitigation measures under domestic law • Domestic courts’ failure to engage seriously or at all with applicant association’s action • Lack of convincing reasons for non-examination of merits of complaints • Failure to consider compelling scientific evidence concerning climate change and to examine applicant association’s legal standing • Lack of further legal avenues or safeguards • Very essence of right of access to court impaired • Emphasis on domestic courts’ key role in climate-change litigation and of access to justice in this field Art 46 • Execution of judgment • General measures • Respondent State to assess specific measures to be taken with the assistance of the Committee of Ministers   Prepared by the Registry. Does not bind the Court.   STRASBOURG 9 April 2024   This judgment is final but it may be subject to editorial revision.   TABLE OF CONTENTS PROCEDURE THE FACTS I.   THE CIRCUMSTANCES OF THE CASE A.   The applicants’ particular situation 1.   The first applicant 2.   The second to fifth applicants (a)   The second applicant (b)   The third applicant (c)   The fourth applicant (d)   The fifth applicant B.   Proceedings instituted by the applicants 1.   The applicants’ requests to the authorities 2.   Proceedings in the Federal Administrative Court (a)   The applicants’ appeal (b)   The FAC’s decision 3.   Proceedings in the Federal Supreme Court (a)   The applicants’ appeal (b)   The FSC’s decision II.   FACTS CONCERNING CLIMATE CHANGE A.   Submissions by the applicants 1.   General observations on climate change 2.   The situation in Switzerland 3.   Measures taken by the Swiss authorities B.   Submissions by the Government 1.   The first phase 2.   The second phase C.   Facts in relation to climate change emerging from the material available to the Court RELEVANT LEGAL FRAMEWORK AND PRACTICE I.   DOMESTIC LEGAL FRAMEWORK A.   Constitution B.   Federal Act on the Protection of the Environment C.   CO 2 Act D.   Climate Act E.   The Federal Administrative Procedure Act F.   Relevant domestic case-law II.   RELEVANT INTERNATIONAL MATERIALS A.   United Nations 1.   The system of the United Nations Framework Convention on Climate Change (a)   United Nations Framework Convention on Climate Change (b)   The Kyoto Protocol (c)   The Paris Agreement (d)   COP26 and COP27 (e)   COP28 2.   The Aarhus Convention 3.   The United Nations General Assembly (a)   Resolution on the human right to a clean, healthy and sustainable environment (b)   Other General Assembly material 4.   The Secretary ‑ General of the United Nations 5.   The Human Rights Council (a)   Resolutions (b)   Special procedures (i)   Special Rapporteur on the promotion and protection of human rights in the context of climate change (ii)   Special Rapporteur on the issue of human rights obligations relating to the enjoyment of a safe, clean, healthy and sustainable environment (iii)   Independent expert on human rights and international solidarity (iv)   Independent Expert on the enjoyment of all human rights by older persons 6.   The Human Rights Committee 7.   Committee on the Elimination of Discrimination against Women 8.   Committee on the Rights of the Child 9.   Committee on Economic, Social and Cultural Rights 10.   Office of the High Commissioner for Human Rights 11.   Other developments B.   Council of Europe 1.   Parliamentary Assembly of the Council of Europe 2.   Committee of Ministers 3.   Council of Europe Commissioner for Human Rights 4.   Other materials C.   European Union 1.   Primary legislation 2.   Legislative acts (a)   Concerning GHG emissions (b)   Concerning access to information, public participation and access to justice in environmental matters 3.   Case ‑ law of the Court of Justice and the General Court of the European Union D.   Material from other regional human rights mechanisms 1.   Inter-American system (a)   Relevant instruments (b)   The Inter-American Court of Human Rights (c)   The Inter-American Commission on Human Rights 2.   African system III.   COMPARATIVE LAW A.   Relevant comparative materials concerning the Aarhus Convention B.   Overview of domestic case ‑ law concerning climate change 1.   France (a)   The Grande-Synthe case (b)   Applications for judicial review seeking to secure compliance with the limit values for concentrations of particulate matter and nitrogen dioxide (c)   Full administrative-law actions seeking to secure compliance with GHG emissions reduction targets (d)   Examples of orders and coercive fines imposed in climate cases 2.   Germany 3.   Ireland 4.   The Netherlands 5.   Norway 6.   Spain 7.   The United Kingdom 8.   Belgium THE LAW I.   PRELIMINARY ISSUES A.   The second applicant B.   Scope of the complaint 1.   The parties’ submissions 2.   The Court’s assessment C.   Jurisdiction 1.   The parties’ submissions 2.   The Court’s assessment D.   Compliance with the six-month time-limit II.   INTRODUCTORY REMARKS REGARDING THE COMPLAINTS RAISED IN THE PRESENT CASE III.   ALLEGED VIOLATION OF ARTICLES 2 AND 8 OF THE CONVENTION A.   The parties’ submissions 1.   The applicants (a)   Preliminary remarks (b)   Victim status (i)   The applicant association (ii)   Applicants nos. 2-5 (c)   Applicability of the relevant Convention provisions (i)   Article 2 of the Convention (ii)   Article 8 of the Convention (d)   Merits 2.   The Government (a)   Preliminary remarks (b)   Victim status (i)   The applicant association (ii)   Applicants nos. 2-5 (c)   Applicability of the relevant Convention provisions (i)   Article 2 of the Convention (ii)   Article 8 of the Convention (d)   Merits B.   The third ‑ party interveners 1.   Intervening Governments (a)   The Government of Austria (b)   The Government of Ireland (c)   The Government of Italy (d)   The Government of Latvia (e)   The Government of Norway (f)   The Government of Portugal (g)   The Government of Romania (h)   The Government of Slovakia 2.   United Nations High Commissioner for Human Rights 3.   United Nations Special Rapporteurs on toxics and human rights; on human rights and the environment; and the Independent Expert on the enjoyment of all human rights by older persons 4.   International Commission of Jurists (ICJ) and the ICJ Swiss Section (ICJ ‑ CH) 5.   European Network of National Human Rights Institutions (ENNHRI) 6.   The coordinated submission of the International Network for Economic, Social and Cultural Rights (ESCR ‑ Net) 7.   The Human Rights Centre of Ghent University 8.   Professors Evelyne Schmid and Véronique Boillet (University of Lausanne) 9.   Professors Sonia I. Seneviratne and Andreas Fischlin (Swiss Federal Institute of Technology Zurich) 10.   Global Justice Clinic, Climate Litigation Accelerator and Professor C. Voigt (University of Oslo) 11.   ClientEarth 12.   Our Children’s Trust, Oxfam France and Oxfam International and its affiliates (Oxfam) 13.   Group of academics from the University of Bern (Professors Claus   Beisbart, Thomas Frölicher, Martin Grosjean, Karin Ingold, Fortunat   Joos, Jörg Künzli, C. Christoph Raible, Thomas Stocker, Ralph Winkler and Judith Wyttenbach, and Doctors Ana   M.   Vicedo ‑ Cabrera and Charlotte Blattner) 14.   Center for International Environmental Law and Dr   Margaretha Wewerinke ‑ Singh 15.   The Sabin Center for Climate Change Law at Columbia Law School 16.   Germanwatch, Greenpeace Germany and Scientists for Future C.   The Court’s assessment 1.   Preliminary points 2.   General considerations relating to climate ‑ change cases (a)   Questions of causation (b)   Issues of proof (c)   Effects of climate change on the enjoyment of Convention rights (d)   The question of causation and positive obligations in the climate-change context (e)   The issue of the proportion of State responsibility (f)   Scope of the Court’s assessment (g)   Relevant principles regarding the interpretation of the Convention 3.   Admissibility (a)   Victim status/ locus standi (representation) (i)   General principles (ii)   Victim status/locus standi in the climate-change context (iii)   Application of these principles to the present case (b)   Applicability of the relevant Convention provisions (i)   General principles (ii)   Application of these principles to the present case 4.   Merits (a)   General principles (b)   The States’ positive obligations in the context of climate change (i)   The States’ margin of appreciation (ii)   Content of the States’ positive obligations (c)   Application of the above principles to the present case (i)   Preliminary remarks (ii)   The respondent State’s compliance with its positive obligations (iii)   Conclusion IV.   ALLEGED VIOLATION OF ARTICLE 6 § 1 OF THE CONVENTION A.   The parties’ submissions 1.   The applicants 2.   The Government B.   The Court’s assessment 1.   Admissibility (a)   Victim status (b)   Applicability of Article 6 § 1 of the Convention (i)   General principles (ii)   Applicability of Article 6 § 1 in the climate ‑ change context (iii)   Application of the above principles and considerations to the present case 2.   Merits (a)   General principles (b)   Application of the above principles to the present case V.   ALLEGED VIOLATION OF ARTICLE 13 OF THE CONVENTION VI.   APPLICATION OF ARTICLES 41 AND   46 OF THE CONVENTION A.   Article 41 of the Convention 1.   Damage 2.   Costs and expenses 3.   Default interest B.   Article 46 of the Convention 1.   The parties’ submissions 2.   The Court’s assessment OPERATIVE PROVISIONS PARTLY CONCURRING PARTLY DISSENTING OPINION OF JUDGE EICKE Introduction Background The Court’s role and evolutive interpretation “Victim” status/standing Article 6 – access to court Articles 2 and 8 – the creation of a new right Conclusion     In the case of Verein KlimaSeniorinnen Schweiz and Others v.   Switzerland, The European Court of Human Rights, sitting as a Grand Chamber composed of:   Síofra O’Leary,   Georges Ravarani,   Marko Bošnjak,   Gabriele Kucsko-Stadlmayer,   Pere Pastor Vilanova,   Arnfinn Bårdsen,   Pauliine Koskelo,   Tim Eicke,   Jovan Ilievski,   Darian Pavli,   Raffaele Sabato,   Lorraine Schembri Orland,   Anja Seibert-Fohr,   Peeter Roosma,   Ana Maria Guerra Martins,   Mattias Guyomar,   Andreas Zünd , judges , and Søren Prebensen, Deputy Grand Chamber Registrar, Having deliberated in private on 30 March 2023, 6 and 7 December 2023 and 14 February 2024, Delivers the following judgment, which was adopted on the latter date: PROCEDURE 1.     The case originated in an application (no. 53600/20) against the Swiss Confederation lodged with the Court under Article 34 of the Convention for the Protection of Human Rights and Fundamental Freedoms (“the Convention”) by an association registered under Swiss law, Verein KlimaSeniorinnen Schweiz, and by four Swiss nationals, Ms   Ruth   Schaub, Ms   Marie ‑ Eve   Volkoff   Peschon, Ms   Bruna   Giovanna   Olimpia   Molinari and Ms   Marie   Gabrielle   Thérèse   Budry (“the applicants”), all members of that association, on 26 November 2020. 2.     The applicants were represented by Ms   C.C.   Bähr and Mr   M.   Looser, lawyers practising in Zürich, Ms   J.   Simor   KC and Mr   M.   Willers   KC, lawyers practising in London, and Mr   R.   Mahaim, a lawyer practising in Lausanne. The Swiss Government (“the Government”) were represented by their Agent, Mr   A.   Chablais, of the Federal Office of Justice. 3.     The applicants alleged, in particular, various omissions of the Swiss authorities in the area of climate ‑ change mitigation. They relied on Articles   2, 6, 8 and   13 of the Convention. 4.     The application was allocated to the Third Section of the Court (Rule   52 §   1 of the Rules of Court). On 26   April   2022 the Chamber to which the case had been allocated relinquished jurisdiction in favour of the Grand Chamber, none of the parties having objected to relinquishment (Article   30 of the Convention and Rule   72). 5 .     The composition of the Grand Chamber was determined according to the provisions of Article   26 §§   4 and   5 of the Convention and Rule   24. The President of the Court decided that in the interests of the proper administration of justice the case should be assigned to the same composition of the Grand Chamber as the cases of Carême v.   France (application no.   7189/21) and Duarte Agostinho and Others v.   Portugal and 32   Others (application no.   39371/20) (Rule   24, Rule 42   §   2 and Rule   71), which were also relinquished by Chambers of the Fifth and Fourth Sections respectively. 6.     The applicants and the Government each filed memorials on the admissibility and merits of the case. In addition, having been given leave by the President to intervene in the written procedure (Article   36 §   2 of the Convention and Rule   44 §   3), third ‑ party comments were received from the Governments of Austria, Ireland, Italy, Latvia, Norway, Portugal, Romania and Slovakia. 7.     Upon the leave granted by the President, third ‑ party comments were also received from the following entities: the United Nations High Commissioner for Human Rights; the United Nations Special Rapporteurs on toxics and human rights, and on human rights and the environment, and the Independent Expert on the enjoyment of all human rights by older persons; the International Commission of Jurists (ICJ) and the ICJ Swiss Section (ICJ ‑ CH); the European Network of National Human Rights Institutions (ENNHRI); the coordinated submission of the International Network for Economic, Social and Cultural Rights (ESCR ‑ Net); the Human Rights Centre of Ghent University; Professors Evelyne   Schmid and Véronique Boillet (University of Lausanne); Professors Sonia   I.   Seneviratne and Andreas   Fischlin (Swiss Federal Institute of Technology Zurich); Global Justice Clinic, Climate Litigation Accelerator and Professor C.   Voigt (University of Oslo); ClientEarth; Our Children’s Trust, Oxfam France and Oxfam International and its affiliates (Oxfam); a group of academics from the University of Bern (Professors Claus Beisbart, Thomas   Frölicher, Martin Grosjean, Karin   Ingold, Fortunat Joos, Jörg   Künzli, C. Christoph Raible, Thomas   Stocker, Ralph Winkler and Judith   Wyttenbach, and Doctors Ana   M.   Vicedo ‑ Cabrera and Charlotte   Blattner); the Center for International Environmental Law and Dr Margaretha Wewerinke ‑ Singh; the Sabin Center for Climate Change Law at Columbia Law School; and Germanwatch, Greenpeace Germany and Scientists for Future. 8.     On 11 January 2023 the Grand Chamber decided that in the interest of the proper administration of justice, after the completion of the written stage of the proceedings in the above-mentioned cases, the oral stage would be staggered so that a hearing in the present case and in the Carême v. France case would be held on 29 March 2023, and a hearing in the Duarte Agostinho and Others v. Portugal and 32 Others case would be held before the same composition of the Grand Chamber at a later stage (the hearing was held on 27 September 2023). At a later stage, Armen Harutyunyan, who was prevented from sitting in the present case, was replaced by Jovan Ilievski, substitute judge (Rule 24 § 3). 9.     A hearing took place in public in the Human Rights Building, Strasbourg, on 29 March 2023 (Rule   59 §   3). There appeared before the Court: (a)     for the Government Mr   A. Chablais,   Agent , Mr   F. Perrez,   Ms   M. Beeler-Sigron, Ms   L.L. Paroz, Ms   R. Burkard, Ms   S. Nguyen-Bloch, Ms   I. Ryse     Advisers ; (b)     for the applicants   Ms   J. Simor KC,   Mr   M. Willers KC,     Ms   C.C. Bähr,     Mr   M. Looser,     Mr   R. Mahaim,   Counsel ,   Mr   R. Harvey,     Ms   L. Fournier,   Advisers ,   Ms   B. Molinari,     Ms   M. Budry,   Applicants ,   Ms   A. Mahrer,     Ms   R. Wydler-Wälti,   Co-Presidents of the applicant association ; (c)     for the Government of Ireland     Mr   B. Lysaght,   Agent ,   Ms   C. Donnelly SC,     Mr   D. Fennelly,   Counsel ,   Mr   M. Corry,     Ms   E. Griffin,   Advisers ; (d)     for ENNHRI   Ms   J. Sandvig,     Ms   K. Sulyok,     Ms   H.C. Braenden,     Mr   P.W. Dawson,   Advisers .   The Court heard addresses by Mr Chablais, Mr Perrez, Ms Simor KC, Mr   Willers KC, Ms Donnelly SC and Ms Sandvig, and the answers by Mr   Chablais, Mr Perrez and Ms Simor KC to questions put by the Court. THE FACTS I.         THE CIRCUMSTANCES OF THE CASE A.    The applicants’ particular situation 1.      The first applicant 10 .     The first applicant – Verein KlimaSeniorinnen Schweiz – is a non ‑ profit association established under Swiss law (“the applicant association”). According to its Statute, the applicant association was established to promote and implement effective climate protection on behalf of its members. The members of the association are women living in Switzerland, the majority of whom are over the age of 70. The applicant association is committed to reducing greenhouse gas (“GHG”) emissions in Switzerland and their effects on global warming. The activity of the applicant association is stated to be in the interests of not only its members, but also of the general public and future generations, through effective climate protection. The applicant association pursues its purpose in particular through the provision of information, including educational activities, and by taking legal action in the interests of its members with regard to the effects of climate change. The applicant association has more than 2,000 members whose average age is 73. Close to 650 members are 75 or older. 11 .     For the purposes of the proceedings before the Grand Chamber, the applicant association solicited submissions by its members about the effects of climate change on them. The members described how their health and daily routines were affected by heatwaves. 2.      The second to fifth applicants 12.     The second to fifth applicants (“applicants nos. 2 ‑ 5”) are women who are members of the applicant association. The second applicant, Ms   Schaub, was born in 1931. She died in the course of the proceedings before the Court (see paragraph 273 below). The third applicant, Ms Volkoff Peschon, was born in 1937 and lives in Geneva. The fourth applicant, Ms Molinari, was born in 1941 and lives in Vico Morcote. The fifth applicant, Ms Budry, was born in 1942 and lives in Geneva. (a)    The second applicant 13.     In a written declaration, the second applicant submitted that she had experienced difficulties enduring the heatwaves and had more than once collapsed while exposed to the sun on a balcony in her flat. She had had to adapt her lifestyle to the heatwaves, for instance when going to the shops, and had to stay indoors almost the entire day. She had also received assistance from a nurse, who had given her special clothing to keep cool. She had needed to get medical attention and had suffered extremely painful episodes of gout, which intensified during hot days. She had even been hospitalised once after she had collapsed during a heatwave, but then she had adapted her habits to the heat by going to the shops earlier and getting fresh air at night. All these limitations had led to problems in her social environment. 14 .     The second applicant also provided a medical certificate of 15   November 2016 describing how in August 2015, during a warm summer’s day, she had collapsed in the doctor’s waiting room owing to the high temperature. The medical certificate also indicated that the applicant wore a pacemaker. (b)    The third applicant 15.     In a written declaration, the third applicant submitted that she had difficulties enduring the heatwaves, such that she needed to organise her life according to the weather forecast. When it was very hot, she had to stay at home the entire day, with the blinds down and the air conditioning turned on. She was also required to refrain from recreational activities and was obliged to regularly measure her blood pressure and then take her medication accordingly. She had also had to see a cardiologist. She would like to move and live somewhere at altitude, but her cardiovascular problems limited her in that respect. She had never been hospitalised, but on several occasions she had felt severely unwell. In addition, owing to the pollution, she had experienced breathing difficulties and extreme sweating. In conclusion, the third applicant stressed that between May and September, the thermometer determined the way she led her life, including her relations with family and friends. 16 .     The third applicant provided a medical certificate of 19 October 2016 indicating that for the previous two summers she had suffered significantly as a result of the heatwaves. They affected her physical capacities as she had cardiovascular health issues. Another medical certificate of 11 February 2019 indicated that the applicant’s health condition and the medication she took were not compatible with heatwaves. During heatwaves she had to stay at home and take the appropriate medication (which needed to be adjusted). 17 .     A medical certificate of 23 September 2021 confirmed that the applicant suffered from cardiovascular health issues. During heatwaves she generally felt weak and had been unable to continue with her usual therapy. Moreover, she was required to adjust her daily routines. Another medical certificate of 26 November 2022, which was based on a telephone interview with the applicant and the inspection of her medical file, confirmed that the applicant suffered physically and psychologically during the heatwaves. (c)    The fourth applicant 18.     According to a written declaration of the fourth applicant, her mobility was restricted during heatwaves as excessive heat exacerbated her asthma and chronic obstructive pulmonary disease. 19 .     She provided medical certificates of 7 October 2016 and 15 July 2020 attesting to her medical condition and to the adverse effects of periods of hot weather on it. This was confirmed in a medical certificate of 26   November   2022 according to which it was highly probable that the aggravation of the applicant’s health condition was in correlation with the occurrence of climate change ‑ induced heatwaves. Moreover, during heatwaves, the applicant suffered because she had to reduce her activities and she felt isolated. (d)    The fifth applicant 20 .     In a written declaration, the fifth applicant complained that the heatwaves had the effect of taking away all her energy. During summer she could not face leaving her home and going for a swim. At the same time, she could not afford to take longer holidays in a hotel with a swimming pool. She had never been hospitalised and had not seen a doctor in relation to the heatwaves. Previously she had also worried about her 90 ‑ year ‑ old mother, until the latter had moved away to a place with a better climate. 21 .     The fifth applicant provided a medical certificate of 4 October 2016 attesting that she suffered from asthma. B.    Proceedings instituted by the applicants 1.      The applicants’ requests to the authorities 22 .     On 25 November 2016, relying on section 25a of the Federal Administrative Procedure Act of 20 December 1968 (“the APA”), and Articles 6 and 13 of the Convention, the applicants requested the Federal Council, the Federal Department of the Environment, Transport, Energy and Communications (“the DETEC”), the Federal Office for the Environment (“the FOEN”) and the Federal Office for Energy (“the SFOE”) to take a formal decision on “real acts” (acts based on federal public law that affect rights and obligations, but do not arise from formal rulings) with a view to addressing alleged omissions in climate protection. Their requests for a legal remedy read as follows: “1.     By 2020, the Respondents [the above-noted authorities] shall take all necessary actions within their competence to reduce [GHG] emissions to such an extent that Switzerland’s contribution aligns with the target of holding the increase in global average temperature to well below   2 o C above pre ‑ industrial levels, or at the very least, does not exceed the 2 o C target, thereby putting an end to the unlawful omissions undermining these targets. Specifically: a.     Respondent 1 shall examine the duties of the Confederation under Article   74 §   1 of the Federal Constitution and their implementation in the climate sector [under] the current climate goal and regarding compliance with: –     Article 74 § 2 and Article 73 of the Constitution and the constitutional duty of the government to protect the individual in accordance with Article   10 §   1 of the Constitution; and –     Articles 2 and 8 of the European Convention on Human Rights (ECHR); and shall develop, without delay, a new plan to be implemented immediately and through 2020 that will permit Switzerland to achieve the ‘well below 2 o C’ target or, at the very least, not [to] exceed the 2 o C target, which requires a reduction of domestic [GHG] emissions by at least 25% below 1990 levels by 2020; b.     Respondent 1 shall communicate to the Federal Assembly (Parliament) and the general public that – in order to comply with Switzerland’s obligation to protect and [with] the principles of precaution and sustainability – a reduction of [GHG] emissions is necessary by   2020 in order to meet the ‘well below   2 o C’ target or, at the very least, not exceed [the] 2 o C target, which requires a domestic [GHG] reduction of at least 25% below   1990 levels by   2020; c.     Through a decision at the level of the Federal Council, department or federal office, Respondents   1, 2, or   3 shall initiate, without delay, a preliminary legislative procedure for an emission reduction target as laid out in the request [at]   1   (a); and d.     Respondent 1 shall inform Parliament as stated in the request   [at]   1   (c) [whether] the proposed emissions reduction target is in compliance with the Constitution and the ECHR. 2.     The respondents shall take all necessary mitigation measures within their competence to meet the [GHG] reduction target defined in the request [at] 1, namely reducing [GHG] emissions by at least 25% below 1990 levels by 2020, thereby putting an end to their unlawful omissions. In particular: a.     Respondent 1 shall consider measures to achieve the target as defined in the request [at] 1   (a); b.     Respondent 1 shall communicate the appropriate measures to reach the target as stated in the request [at]   1   (b); c.     Respondents 1, 2, or 3 shall, with regard to the request [at] 1 (c) above, include measures to achieve the target in the preliminary legislative procedure. 3.     Respondents shall carry out all acts, within their competence, required to lower emissions by 2030 to such an extent that Switzerland’s contribution aligns with the ‘well below 2 o C’ target or, at the very least, does not exceed [the] 2 o C target, thus ending the unlawful omissions inconsistent with these targets. In particular: a.     Respondents 1, 2, or 3 shall, in the course of the preliminary legislative procedure, carry out all actions that allow Switzerland to do its share to meet the ‘well below 2 o C’ target or, at the very least, to not exceed [the] 2 o C target, which means a domestic reduction of [GHG] emissions of at least 50% below 1990 levels by 2030; b.     Respondents 1, 2, or 3 shall include in the preliminary legislative procedure all necessary mitigation measures required to meet the [GHG] reduction target as defined in the request [at]   3   (a). 4.     The respondents shall implement all mitigation measures, within their c