Verde Terra Pty Ltd v Central Coast Council; Central Coast Council v Environment Protection Authority (No 9) [2022] NSWLEC 29

Land and Environment Court New South Wales

Medium Neutral Citation: Verde Terra Pty Ltd v Central Coast Council; Central Coast Council v Environment Protection Authority (No 9) [2022] NSWLEC 29 Hearing dates: 28 October, 18, 19, 20, 21, 22 and 25, 26, 27, 28, 29 November, 2, 3, 4, 5, 6 December 2019, 6, 14, 22, 24, 30 April, 5 May, 21 September, 19, 20, 21, 22, 23 and 26, 27, 28 October, 2, 3, 4, 5, 6 November and 13 and 18 November 2020 (further written submissions) Date of orders: 25 March 2022 Decision date: 25 March 2022 Jurisdiction: Class 4 Before: Pepper J Decision: See orders at [551]. Catchwords: CIVIL ENFORCEMENT: whether consent orders made and entered in 2014 can be set aside on the grounds of illegality, improper purpose or contrary to public policy – whether the Court had jurisdiction to make the orders – construction of consent orders – construction of development consent – whether variations to environment protection licence issued by EPA modified the development consent – application of doctrines of res judicata, issue estoppel, Anshun estoppel and abuse of process – whether the Court has statutory or implied power to set aside the consent orders – whether as an exercise of its discretion the Court ought to set aside consent orders – delay – detriment, including to third parties – consent orders not set aside – agreement procuring consent orders not void or voidable for illegality – whether further development consent required to carry out the works the subject of consent orders – no further development consent required – whether development the subject of consent constitutes "development (whether existing or approved)" within the meaning of cl 35 of Sch 3 of the Environmental Planning and Assessment Regulation – meaning of "development (whether existing or approved)" – utility of granting declaratory relief – declaratory relief granted. JUDICIAL REVIEW: whether variations made by the EPA to an environment protection licence were invalid – whether doctrines of estoppel, res judicata and abuse of process applied to a party not the subject of earlier related proceedings – meaning of "(other than on the initiative of the EPA)" – variations not on the initiative of the EPA but on the initiative of the licence holder – no power to issue the variations because no development consent for the works the subject of the variations as required – variations invalid – whether invalid variations can be severed – invalid variations severed. Legislation Cited: Civil Procedure Act 2005, ss 56 Environmental Planning and Assessment Act 1979, ss 1.4, 1.5, 9.45, 76A, 76C, 80(4), 96, 124 Environmental Planning and Assessment Regulation 1994, cl 45 Environmental Planning and Assessment Regulation 2000, cll 35, 37A Interpretation Act 1987, ss 3(1), 32 Land and Environment Court Act 1979, ss 20(2), 20(2)(c) Local Government Act 1919, Pt XIIA Local Government (Council Amalgamations) Proclamation 2016, cl 17 Protection of Environment Operations Amendment Act 2005, item 9 of Sch 1 Protection of the Environment Operations Act 1997, ss 3(e), 45, 50, 58, 88 Protection of the Environment Operations (Waste) Regulation 2014, cl 92 Recovery of Imposts Act 1963, s 2(1)(b) Uniform Civil Procedure Rules 2005, rr 36.15, 36.16, 59.10 Waste Reduction and Recycling Act 2011 (QLD), s 36 Cases Cited: A v Hayden (No 2) (1984) 156 CLR 532; [1984] HCA 67 Agricultural Equity Investments Pty Ltd v Westlime Pty Ltd [2013] NSWLEC 122 Allandale Blue Metal Pty Ltd v Roads and Maritime Services (2013) 195 LGERA 182; [2013] NSWCA 103 Anastasiou v Wallace [2020] NSWLEC 14 Athens v Randwick City Council (2005) 64 NSWLR 58; [2005] NSWCA 317 Attorney-General for the State of New South Wales v Quin (1990) 170 CLR 1; [1990] HCA 21 Autodesk Inc v Dyason (No 2) (1993) 176 CLR 300; [1993] HCA 6 AVS Group of Companies Pty Ltd v Commissioner of Police (2010) 78 NSWLR 302; [2010] NSWCA 81 Bass v Permanent Trustee Co Ltd (1999) 198 CLR 334; [1999] HCA 9 Baulkham Hills Shire Council v O'Donnell (1990) 69 LGRA 404 Beck v Weinstock (2012) 8 BFRA 279; [2012] NSWCA 289 Blacktown City Council v Pearce [2013] NSWLEC 175 Blair v Curran (1939) 62 CLR 464; [1939] HCA 23 Botany Bay City Council v Pet Carriers International Pty Ltd (2013) 201 LGERA 116; [2013] NSWLEC 147 Botany Bay City Council v Saab Corp Pty Ltd (2011) 82 NSWLR 171; [2011] NSWCA 308 Brown Brothers Waste Contractors Pty Ltd v Pittwater Council (2015) 90 NSWLR 717; [2015] NSWCA 215 Burrell v The Queen (2008) 238 CLR 218; [2008] HCA 34 Cando Management and Maintenance Pty Ltd v Cumberland Council (2019) 237 LGERA 128; [2019] NSWCA 26 Caroona Coal Action Group Inc v Coal Mines Australia Pty Ltd (No 2) (2010) 172 LGERA 25; [2010] NSWLEC 1 Casa v Ryde City Council (2009) 172 LGERA 348; [2009] NSWLEC 212 CB Investments Pty Ltd v Colo Shire Council (1980) 41 LGRA 270 CBRE (V) Pty Limited v Trilogy Funds Management Limited [2021] NSWCA 316 Chamberlain v Deputy Commissioner of Taxation (1988) 164 CLR 502; [1988] HCA 21 Chamwell Pty Ltd v Strathfield Council (2007) 151 LGERA 400; [2007] NSWLEC 114 Chief Environmental Regulator of the Environment Protection Authority v The Forestry Corporation of New South Wales [2018] NSWLEC 10 City of Sydney Council v Waldorf Apartments Hotel Sydney Pty Ltd (2008) 158 LGERA 67; [2008] NSWLEC 97 Clark v Robards (No 3) [2016] NSWCA 354 Cudgegong Australia Pty Limited v Sydney Metro [2018] NSWCA 298 Cudgegong Australia Pty Ltd v Transport for New South Wales [2018] NSWSC 929 Cutcliffe v Lithgow City Council (2006) 147 LGERA 330; [2006] NSWLEC 463 D'Orta-Ekenaike v Victoria Legal Aid (2005) 223 CLR 1; [2005] HCA 12 Darley Australia Pty Ltd v Walfertan Processors Pty Ltd (2012) 188 LGERA 26; [2012] NSWCA 48 DEXUS Funds Management Limited v Blacktown City Council (No 3) [2011] NSWLEC 230 Director of Public Prosecutions (NSW) v Yigit [2008] NSWCA 226 Discount and Finance Ltd v Gehrig's NSW Wines Ltd (1940) 40 SR (NSW) 589 El Cheikh v Hurstville City Council (2002) 121 LGERA 293; [2002] NSWCA 173 Elanor Investments Limited v Sydney Zoo Pty Ltd (No 5) [2020] NSWLEC 93 Ex parte Amalgamated Engineering Union (Australian Section); Re Jackson (1937) 38 SR (NSW) 13 Foodbarn Pty Ltd v Solicitor-General (1975) 32 LGRA 157 Ford Motor Company of Australia Limited v Tallevine Pty Ltd (as Trustee of the Thornleigh Trading Trust) [2019] NSWSC 1914 Great Lakes Council v Lani [2007] NSWLEC 681; (2007) 158 LGERA 1 Harvey v Phillips (1956) 95 CLR 235; [1956] HCA 27 Hawkesbury City Council v Sammut (2002) 119 LGERA 171; [2002] NSWCA 18 Hill Top Residents Action Group Inc v Minister Administering the Sporting Venues Authorities Act 2008 (No 4) [2011] NSWLEC 6 Hornsby Shire Council v Vitone Devleopments Pty Ltd (2003) 132 LGERA 122; [2003] NSWLEC 272 House of Peace Pty Ltd v Bankstown City Council (2000) 48 NSWLR 498; [2000] NSWCA 44 Huang v Wong (No 2) [2019] NSWCA 18 Hunter Industrial Rental Equipment Pty Ltd v Dungog Shire Council (2019) 101 NSWLR 1; [2019] NSWCA 147 James v Australia and New Zealand Banking Group Ltd [2020] NSWCA 101 JK Williams Staff Pty Ltd v Sydney Water Corporation (2021) 249 LGERA 109; [2021] NSWLEC 23 Jonah Pty Ltd v Pittwater Council (2006) 144 LGERA 408; [2006] NSWLEC 99 Kendell v Carnegie (2006) 68 NSWLR 193; [2006] NSWCA 302 Kouflidis v Corporation of the City of Salisbury (1982) 29 SASR 321 Kuligowski v Metrobus (2004) 220 CLR 363; [2004] HCA 34 Ku-ring-gai Council v Minister for Planning [2008] NSWLEC 174 Lizzio v The Council of the Municipality of Ryde (1983) 155 CLR 211; [1983] HCA 22 Logwon Pty Ltd v Warringah Shire Council (1993) 33 NSWLR 13 Macquarie International Health Clinic Pty Ltd v University of Sydney (1998) 98 LGERA 218 Makhoul v Barnes (1995) 60 FCR 572 Marshall Rural Pty Ltd v Basscave Pty Ltd (No 3) [2018] NSWLEC 62 Marshall, Inner West Council v Balmain Rentals Pty Ltd [2019] NSWLEC 24 Maurice Blackburn Cashman v Brown (2011) 242 CLR 647; [2011] HCA 22 Minister for Immigration and Ethnic Affairs v Kurtovic (1990) 21 FCR 193 Minister for Natural Resources v New South Wales Aboriginal Land Council (1987) 9 NSWLR 154 Mison v Randwick Municipal Council (1991) 23 NSWLR 734 Newcastle & Hunter Valley Speleological Society Inc v Upper Hunter Shire Council (2010) 210 LGERA 126; [2010] NSWLEC 48 Newcastle City Council v Leaway Pty Ltd [2005] NSWLEC 619 North Sydney Municipal Council v Boyts Radio & Electrical Pty Ltd (1989) 16 NSWLR 50 O'Connor v State of New South Wales [2017] NSWCA 335 P E Bakers Pty Ltd v Yehuda (1988) 15 NSWLR 437 Page v Manningham City Council (2010) 27 VR 642; [2010] VSC 267 Patsalis v Attorney General for the State of New South Wales [2013] NSWCA 98 Pattni v Ali [2007] 2 AC 85; [2006] UKPC 51 Penrith City Council v Dincel Construction System Pty Ltd and Gaonor Pty Limited (OSSM case) [2019] NSWLEC 198 Penrith City Council v Waste Management Authority (NSW) (1990) 71 LGRA 376 Permanent Trustee Co (Canberra) Ltd (Executor estate of Andrews) v Stock & Holdings (Canberra) Pty Ltd (1976) ACTR 45 Perpetual Trustees Australia Ltd v Heperu Pty Ltd (No 2) (2009) 78 NSWLR 190; [2009] NSWCA 387 Port of Melbourne Authority v Anshun Pty Ltd (1981) 147 CLR 589; [1981] HCA 45 Presrod Pty Ltd v Wollongong City Council [2010] NSWLEC 192 Queanbeyan City Council v Sun (No 2) (2013) 195 LGERA 14; [2013] NSWLEC 64 Rafailidis v Camden Council [2015] NSWCA 185 Ralph Lauren Pty Ltd v New South Wales Transitional Coastal Panel (2018) 235 LGERA 345; [2018] NSWLEC 207 Ramsay v Pigram (1968) 118 CLR 271; [1968] HCA 34 Randren House Pty Ltd v Water Administration Ministerial Corporation (No 4) [2019] NSWLEC 5 Re Wakim; Ex parte McNally (1999) 198 CLR 511; [1999] HCA 27 Regional Express Holdings Ltd v Dubbo City Council (No 2) [2013] NSWLEC 113 Reysson Pty Ltd v Roads and Maritime Services (No 4) [2016] NSWLEC 159 Ross v Lane Cove Council (2014) 86 NSWLR 34; [2014] NSWCA 50 Royal Agricultural Society of New South Wales v Sydney City Council (1987) 61 LGRA 305 Settlers Estate Pty Ltd v Penrith City Council (2021) 247 LGERA 84; [2021] NSWCA 13 Shire of Perth v O'Keefe (1964) 110 CLR 529; [1964] HCA 37 Somanader v Minister for Immigration and Multicultural Affairs (2000) 178 ALR 677; [2000] FCA 1192 St Alder v Waverley Local Council (2010) 172 LGERA 147; [2010] NSWCA 22 Taylor v Ansett Transport Industries Ltd (1987) 18 FCR 342; [1987] FCA 127 Telstra Corporation Ltd v Hornsby Shire Council (2006) 67 NSWLR 256; [2006] NSWLEC 133 The Owners Strata Plan No 57164 v Yau (2017) 96 NSWLR 587; [2017] NSWCA 341 Timbercorp Finance Pty Ltd (in liquidation) v Collins (2016) 259 CLR 212; [2016] HCA 44 Tomlinson v Ramsey Food Processing Pty Ltd (2015) 256 CLR 507; [2015] HCA 28 UBS AG v Tyne as Trustee of the Argot Trust (2018) 265 CLR 77; [2018] HCA 45 Verde Terra Pty Ltd v Central Coast Council; Central Coast Council v Verde Terra Pty Ltd (No 2) [2020] NSWLEC 10 Verde Terra Pty Ltd v Central Coast Council; Central Coast Council v Verde Terra Pty Ltd (No 3) [2020] NSWLEC 40 Verde Terra Pty Ltd v Environment Protection Authority [2018] NSWLEC 159 Verde Terra Pty Ltd v Environment Protection Authority (No 3) [2018] NSWLEC 161 Victoria v The Commonwealth (1996) 187 CLR 416; [1996] HCA 56 Walton v ACN 004 410 833 Ltd (formerly Arrium Limited) (in liquidation) [2022] HCA 3 Warlam Pty Ltd v Marrickville Council (2009) 165 LGERA 184; [2009] NSWLEC 23 Wende v Horwath (NSW) Pty Ltd (2014) 86 NSWLR 674; [2014] NSWCA 170 Wingecarribee Shire Council v Uri Turgeman trading as Uri T Design [2018] NSWLEC 146 Wong v Minister for Immigration and Multicultural and Indigenous Affairs (2004) 146 FCR 10; [2004] FCAFC 242 Woollahra Municipal Council v Minister for the Environment (1991) 23 NSWLR 710 Texts Cited: J D Heydon, M J Leeming and P G Turner, Meagher, Gummow & Lehane's Equity Doctrines and Remedies (5th ed) (LexisNexis, 2015) K R Handley, Spencer Bower and Handley Res Judicata (5th ed) (LexisNexis, 2019) M Aronson, M Groves and G Weeks, Judicial Review of Administrative Action and Government Liability (6th ed) (Thomson Reuters, 2019) Macquarie Dictionary (online ed) Oxford English Dictionary (online ed) Category: Principal judgment Parties: Proceedings 2019/101279 Verde Terra Pty Ltd (Applicant/First Cross Respondent) Central Coast Council (First Respondent/Cross Claimant) Environment Protection Authority (Second Respondent) Mangrove Mountain Landfill Pty Ltd (Second Cross Respondent) Mangrove Properties (NSW) Pty Ltd (Third Cross Respondent) Proceedings 2019/203552 Central Coast Council (Applicant) Environment Protection Authority (First Respondent) Verde Terra Pty Ltd (Second Respondent) Representation: Counsel: Proceedings 2019/101279 P Larkin SC with G Tsang and J Stuckey-Clarke (Applicant) T Howard SC with M Astill (First Respondent/Cross Claimant) H El-Hage (Second Respondent) P Larkin SC with J Stuckey-Clarke and G Tsang (First, Second and Third Cross Respondents) Proceedings 2019/203552 T Howard SC with M Astill (Applicant) H El-Hage (First Respondent) P Larkin SC with J Stuckey-Clarke and G Tsang (Second Respondent)