Live Export

Federal Court rules 2011 livex ban invalid, condemns Ludwig decision

James Nason, 02/06/2020

THE June 2011 Labor Government’s ban on live exports to Indonesia has been ruled invalid in a decision handed down by Justice Stephen Rares this morning.

The decision represents a hard-won victory for the 300 or so plaintiffs who have pursued a class action filed in 2014 seeking up to $600m in compensation against the Federal Government for then agriculture minister Joe Ludwig’s 2011 suspension of the live trade to Indonesia.

Justince Rares handing down his decision.

There is no clear indication yet as to how much compensation the Commonwealth Government will have to pay out to the plaintiffs, an outcome that will be decided in coming months.

In his ruling announced via video conference minutes ago Justice Rares said a regulatory measure such as a ban order made by Minister Ludwig must be a “proportionate response to the situation it is intended to address”.

He said the law requires a decision maker when using a wide power such as the Export Control Act not to make unnecessary limitations on the common law right or a person to carry on their lawful business, and must also consider if there is an obvious and compelling alternative.

In the first instance the Minister used his powers to ban the 12 named abattoirs, but five days later in the ban order he imposed an absolute prohibition on all livestock exports to Indonesia for slaughter.

This he did without using the exemption power he held that would have allowed exports to continue to acceptable closed supply systems such as that operated by Elders and Santori.

Justice Rares said Minister Ludwig gave no reasons for omitting the exceptions power, and did so without any advice to do so by his Department.

He also knew the omission would have had a significant economic impact on people and businesses that would have or could relatively quickly been able to comply with what his intended regulatory and compliance regime would require, namely a closed loop supply chain animal welfare standards consistent with the OIE code.

“I have found that was invalid,” Justice Rares said.

“That was because it prohibited all exports without any provision allowing the minister to make exceptions so as to allow exporters to carry on with lawful businesses.

“Such a total prohibition was capricious and unreasonable and made the ban order invalid.

“When he made the ban order the Minister knew that first it would prohibit any exports to Indonesia without any exception in an industry that in 2011 exported live cattle there worth about $400 million.

“The industry representatives told him that there were supply chains that had or could be adjusted to have a closed loop system with animal welfare standards.

Justice Rares said the Minister made no attempt to explore appropriate solution with the Indonesian Government, and made the order knowing the prohibition would cause the Indonesian Government concern.

He said the Minister had no departmental advice to make an order in a form that affected only exports to Indonesia, had no legal advice that he could make lawfully an order in such a form, and knew there was a real risk that if he made the order it might be invalid yet “plunged ahead regardless”.

“He made the ban order shutting his eyes to the risk it might be invalid and to the damage it was calculated to cause,” he said.

“I am comfortably satisfied based on the whole of the evidence the minister acted recklessly indifferent.”

He said the minister committed misfeasance of public office when he made the ban order on 7 June 2011.

“I have found that had the minister acted lawfully he would have made a control order on about 9 or 10 June 2011 that contained an exceptions power and that Elders and Santori would have been able to obtain approval to export to Indonesia without delay.”

The sudden termination of access to the only market for which many northern properties were geared to supply in June 2011 was instantly catastrophic.

The decision left exporters and producers holding millions of dollars worth of cattle they could no longer sell, but still with mounting operating bills to pay, and and impacted hundreds of business, from small family companies to large corporates, including shipping companies, feed suppliers, export yards, transporters, agents, helicopter musterers and rural suppliers, and thousands of directly employed workers.

With nowhere to go in the dry season crowded paddocks were unable to be destocked as they normally would be leading to a greater animal welfare disaster; while the decision also caused the trashing of a relationship with a major and crucially important trading partner that has arguably never recovered.

An estimated 300 plaintiffs have been waiting some nine years for this morning’s decision. Justice Stephen Rares has deliberated over the case for over 18 months.

Addressing the media on behalf of the plaintiffs this morning, former NTCA CEO Tracey Hayes paid tribute to the lead applicants the Brett family from Waterloo  Station for their courage to see the case through.

These were her comments to the media this morning:

Our industry came under attack from our own Commonwealth Government.

Firstly on behalf of all the class members we thank and acknowledge the courage of Emily and the late Dougal, Brett, Alison and Colin and Georgia and Hamish, the Brett Cattle Company and Waterloo Station.

As the lead plaintiffs the Bretts were brave enough to bring the case. Emily, Dougal and their extended familes sought not only to right the injustices inflicted on their own family business, but those suffered by many northern Australian families.

It has been a decade of pain for the Bretts and others impacted, it has been a long, long road.

This case would not have been possible without the Australian Farmers Fighting Fund, the Northern Territory Cattlemen’s Association, and the National Farmers Federation.

The Australian Farmers Fighting Fund has been taking up the fight of injustices in agriculture since 1985, and farmers have for generations invested in the fighting fund to protect the future of industry.

Bringing a case against the Commonwealth is an expensive in the millions of dollars.

It is beyond the means of most farmers. 

And that is why farmers must continue to support and back the Australian Farmers Fighting Fund.

I would also like to thank the media, I would like to thank the media for telling our stories and for supporting rural and regional Australia.

This legal case was about a reckless Government decision and its devastating impact.

Today each Government at every level and their deciison making process is on notice.

Fair-minded Australians expect due and established process to be followed in Government.

The truth is the shutdown wasn’t required.

To enact the changes needed in some offshore facilities, it simply wasn’t necessary.

Had calm heads prevailed calm and established decision making processes been followed, both the livelihoods of our farmers and many many others in the supply chain and the welfare of our animals, would have been protected.

I am delighted to say when presented with the facts the Judge got it right.

Government needs to be accountable for the decisions it makes. 

This decision makes Government and decision makers more accountable and highlights the dangers of knee-jerk rejections and political stunts.

This will be a progression of the law, a new precedent in the law as it relates.

A new precedent in the law as it realtes to misfeasance in public office.

For the Bretts and other parties to the class action, today’s decision goes a long way to writing the wrongs of 2011.

Importantly, it represents closure, the closing of what has been a very difficult chapter for northern Australian producers.

The Minister followed all available process to him, leading up to Cabinet. We heard today that something happened that night and the Minister’s hand was forced.

In relation to an appeal, please don’t. 

This has been nine years, enough pain already.

And in closing, today also highlights the great strength agriculture and regional Australia has when it unites for a common cause.

It is a reminder to farmers of the importance of supporting their industry bodies like the Northern Territory Cattlemens’ Association, the National Farmers’ Federation and importantly the Australian Farmers’ Fighting Fund.

This has been a monumental battle and it woult be our last.



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  1. gary mexted, 08/09/2021

    The Gillard government decided to stop the export of “our cattle”.
    But those cattle didn’t belong to the Gillard government and thus they should rightly compensate the correct owners of that livestock. Since the government made such a grubby decision it should not leave others to pay.

  2. Greg Paul, 03/06/2020

    Sympathies to the businesses effected by live cattle export interruption, but sadly the Australian taxpayers are those being punished. The legal representatives will get a big chunk of the penalty and costs that will no longer be available for health, education, roads, rural infrastructure etc.
    On top of the drought, bushfires, covid19 and recession, it’s money we don’t have. Punishing the Australian community is the legal decision, but is not a reason to celebrate.

  3. Greg Paul, 03/06/2020

    Private donations and public support for farms to survive crippling drought amounted to many millions. The support came right down to local community clubs running raffles to buy hay to send north. Generosity of the humble Aussie taxpayers rewarded with another $600 million plus legal costs, for a 2011 five week interruption of live exports. Will be thinking about that class action and outcome next time I’m asked to dig deep.

    We can assure you that the recovery period was more like 18 months for most northern beef stakeholders affected by the closure, Greg – not simply the five weeks that the trade was officially ‘closed’, as you suggest. Many sold no cattle at all for at least a year. Editor

  4. Paul Wright, 02/06/2020

    A huge thank you to those who stepped-up and fought for this injustice. This outcome will benefit the future of the whole industry and demonstrates the power and importance of grass-roots contribution in achieving this victory. Congratulations to all those involved.

  5. George King, 02/06/2020

    The big step now is to convert the win into rightly deserved financial compensation to the plaintiffs.

    Wait to see if there is any justice left in the legal system…

  6. Malcolm G Jackman, 02/06/2020

    After nearly a decade it is a nice victory to know that what we told Ludwig and the government of the day that they got it wrong putting in place a blanket ban on live exports .. well done to Tracey and the Brett family for pursuing this. Those of us at Elders at the time fought hard but the pollies were more interested in what they would look like on the ABC than what was happening to Pastoral families in the top end. Good to know the judge got it right

  7. Charles Nason, 02/06/2020

    For a party who evolved in the bush and the shearers’ strikes of the 1890’s, Labor unfortunately has lost any understanding of the importance of rural and regional areas
    It is now seen as the enemy of the bush. This is not conducive to good government especially when many of its traditional voters would be the most vulnerable to neglect of regional and rural economies.
    Labor needs to restore its understanding of the bush and become a credible alternative government.
    The live export ban, the veg act etc have cost the bush dearly and this flows onto urban and national economies.
    Labor are you listening? As disruptive successionist movements are fuelled by neglect and ignorance of regional areas.

    • Roger Crook, 02/06/2020

      I would like to endorse the wise words of Charles Nason.

  8. Dick Slaney, 02/06/2020

    As Pres Dir of Elders Indonesia at that time, I wish to convey my gratitude to those in Australia who never laid down your arms in this fight. Without your determination and massive commitment, these kinds of decisions from Aust’n Ministers may very well happen again… thanks to you it will not .. Congrats to all, especially the Bretts.

  9. Katrina Goldsworthy, 02/06/2020

    This is wonderful news, and long overdue.

  10. Libby Homer, 02/06/2020

    What a relief to have this ruling and congratulations to all involved in the very long drawn out process for hanging in there. The irony is that Joe Ludwig is nowhere to be seen. Politicians can leave a trail of destruction with the stroke of a pen and just ride off into the sunset –

  11. Irene Wynne, 02/06/2020

    At last – a fair outcome from an unfair decision.
    Now Four Corners and Kerry O’Brien need to be brought to bear for incorrect and misleading reporting.

  12. Ted Callanan, 02/06/2020

    Congratulations to the Brett family and all plaintiffs on this powerful victory. A very brave and just fight.

  13. Jenny James, 02/06/2020

    Congratulations and thanks to Tracy, Luke and all who have contributed to bringing this about.

  14. Ray Patroni, 02/06/2020

    The Australian Labor Party do not have agriculture in their DNA!!

    • Doug Miles, 02/06/2020

      You’ve got that right Ray. They like to feast on the fruits of our labour, yet cannot find it within themselves to foster our greater success. I am sure compensation will be sought which should be paid for by Mr Ludwig, the Labor Party and the vitriolic ABC .

      • Mal Allan, 02/06/2020

        I hope Anastasia Palaszczuk reads this report and considers if the Qld tourist industry has a claim

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