REPUBLIC OF SOUTH AFRICA
THE SUPREME COURT OF APPEAL
OF SOUTH AFRICA
Case number 531/03
Reportable
In the matter between:
WDJ LUBBE APPELLANT
and
BWB LOUW RESPONDENT
CORAM
: FARLAM, CLOETE et HEHER JJA
HEARD: 8 NOVEMBER 2004
DELIVERED: 25 NOVEMBER 2004
SUMMARY: Veld fire – failure by landowner to prevent fire spreading to
neighbouring farms – whether omission unlawful – whether presumption of negligence
rebutted.
________________________________________________________
JUDGMENT
________________________________________________________
FARLAM JA
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INTRODUCTION
[1] The respondent in this matter, who was the le ssee of three
farms in the souther n Free State, namely Boven-Dwarsrivier,
Smartryk and Oaklands, instituted acti on in the magi strate’s court
for the district of Philippolis agai nst the appellant, the owner of an
adjoining farm Oranjevlei, for damages sustained when a fire
which started on Oranjevlei spread over the boundary on to the
three farms of which the resp ondent was the lessee. (In what
follows I shall refer to these farms as ‘the respondent’s farms’.)
[2] At the commencement of the trial the magistrate was
requested to adjudicate only on the question as to whether the
appellant was li able to compensate the respondent for the
damages sustained by him. The question as to the quantum of
those damages stood over for later decision if necessary.
[3] After hearing the evidence of the respondent and his
witness, the appellant having clos ed his case without leading any
evidence, the magistrate dismissed the respondent’s claim on the
ground that there had been no negligence by the appellant and
that he was not vicariou sly liable for the conduct of his labourers
who were responsible for the fire.
[4] An appeal to the Bloemfontei n High Court was successful.
Ebrahim J, with whom Beckley J concurred, held that although the
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magistrate had correctly held that the appellant was not vicariously
liable for the conduct of his labou rers, he had been under a legal
duty to prevent the fire from spreading onto his neighbour’s
property and he ha d not rebutted the presumption of negligence
arising from the provis ions of section 84 of the Forest Act 122 of
1984 which applied in the circumstances.
EVIDENCE
[5] It was common cause at the tria l that in the co urse of the
afternoon of Saturday 8 November 1997 a fire started on the
appellant’s farm Oranjevlei and spread to the respondent’s farms
causing damage.
[6] The following summary of what happened is based on the
evidence of one of the appellant’s employees, Elias Kotelo, who
testified on behalf of the respondent and whose evidence was not
challenged in cross-examinat ion. Kotelo had at the appellant’s
request gone to Oranjevl ei from the farm on which the appellant
lived, Pypersfontein, to turn off the ir rigation system. On the way
he gave a lift to two other labourers, Rolls, who was also an
employee of the appellant, and Draadmaker, an independent
contractor, who said that he wanted to fetch clothing from
Oranjevlei. After Kote lo had turned off the irrigation system and
while he was driving back to Py persfontein he stop ped the utility
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vehicle he was driving, at Draadm aker’s request. Draadmaker and
Rolls then alighted from the vehicl e and proceeded to a poplar
tree, from which they tried to smoke out bees to collect honey.
Koleto had told them not to do it as the veld could catch alight and
he would get into trouble with the appellant, but they paid no heed.
Koleto remained in the vehicle while Draadmaker and Rolls went
to the tree. They retu rned without any honey and said that they
had put out the fire, which had been ma de in a grainbag. When
they reached the b oundary of Pypersfon tein, Draadmaker and
Rolls said that there was a fire burning behind them . Koleto drove
back to the fire and saw that it was burning where Draadmaker
and Rolls had lit the fire to smok e out the bees. They tried to
extinguish the fire but had n othing with which to beat it out. They
tried with bluegum branches but without success. Koleto then
turned on the irrigation system but the pipes were too short to
reach the fire. He t hen raced back to the house where he reported
the fire to the ap pellant. He thereafter retur ned to the scene of the
fire in a tractor, accompanied by the appellant who drove the utility
vehicle, but when they got there the fire was out of control.
[7] Koleto said that if he had had proper equi pment in the
beginning the fire would have b een extinguished because it was
not very big at that s tage. In fact according to him it had almost
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been extinguished.
[8] In cross-examination Koleto said that he had trusted
Draadmaker and Rolls to put out the fire they ha d lit and that if he
had suspected that the y had not done so, he would have gone
himself to satisfy himself tha t the fire had been extinguished.
Koleto also said in cross-examin ation that the appel lant came on
the scene with other people wi th hoses and other fire-fighting
equipment. A number of other people came la ter with utility
vehicles and helped to put out the fire.
APPELLANT’S CONTENTIONS
[9] Mr Van Rooyen, who appeared on behalf of the appellant,
pointed out that the negligence of the appellant relied on by the
respondent consisted of omissions. The allegations made by the
respondent in this regard were that the appellant failed to prevent
the spread of the fire to the re spondent’s farms when he
reasonably could have done so, that he failed to give his
employees sufficient training in the prevention and fighting of fires
as a result of which the fire sp read to the re spondent’s farms and
that he failed to have sufficient proper and adequate equipment
available so as to be able to extinguish a fire that had arisen on his
property or to prevent it spreading. Mr Van Rooyen contended that
it was accordingly incumbent on the respondent not merely to
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allege but also to prov e that the conduct relie d on was wrongful.
He pointed out that conduct taking the form of an omissio is prima
facie lawful (BOE Bank Ltd v Ries 2002 (2) SA 39 (SCA) at 46 G –
H) and that the o nus to prove wrongfulness rests on the
respondent, despite the provisions of section 84 of the Forest Act
122 of 1984, which wa s in force at the time and provided 1 that in
the case of a fire such as the one presently under consideration
negligence was presumed un til the contrary was proved. The
section however said nothing about wrongfulnes s, with the result,
submitted counsel relying on th e decision of this Court in HL & H
Timber Products (Pty) Ltd v Sappi Manufacturing (Pty) Ltd 2001
(4) SA 814 (SCA) at 820 E–G, that the onus to prove wrongfulness
remained on the plaintiff in a claim based on a veld fire.
[10] Mr Van Rooyen submitted t hat the respond ent had not
succeeded in proving that the ap pellant’s conduct in the present
case was wrongful. He referr ed to the appr oach to the
wrongfulness ques tion adopted in this Court in Minister van
Justisie v Ewels, 1975 (3) SA 590 (A) at 597 A–C, where Rumpff
CJ said:
‘Dit skyn of dié stadium van ontwikkeling bereik is waarin 'n late as
onregmatige gedrag beskou word ook wanneer die omstandighede van die
1 Section 84, which was repealed by the National Forests Act 84 of 1998, has effectively been replaced
by s 34 of the National Veld and Forest Fire Act 101 of 1998.
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geval van so 'n aard is dat die late nie alleen morele verontwaardiging ontlok
nie maar ook dat die regsoortuiging van die gemeenskap verlang dat die late
as onregmatig beskou behoort te word en dat die gelede skade vergoed
behoort te word deur die persoon wat nagelaat het om daadwerklik op te tree.’
[11] Relying on the decisi on of this Court in Administrateur,
Transvaal v Van der Merwe, 1994 (4) SA 347 (A), Mr Van Rooyen
contended that the fact that the appellant wa s in control of
Oranjevlei from which the fire spread to the respondent’s farms
was not in itself enoug h to impose a legal duty on him to prevent
the spreading of the fire. He referred in parti cular to the following
passage in the judgment of Olivier JA in the Van der Merwe case
(supra, at 361 F-362 B):
‘In die afwesigheid van 'n gevaarskeppende positiewe handeling, is blote
beheer van eiendom en versuim om dit uit te oefen met gevolglike benadeling
van 'n ander, dus nie per se onregmatig nie. Die kernvraag is steeds of die
voorsorgmaatreëls wat die beheerder volgens die benadeelde moes geneem
het om die nadeel te voorkom, onder die omstandighede redelikerwys en uit 'n
praktiese oogpunt, van hom geverg kan word. Die onderliggende filosofie is
dat 'n gevolg slegs onregmatig is indien in die lig van al die omstandighede
redelikerwys van die verweerder verwag kan word om positief op te tree en
die voorgestelde voorsorgmaatreëls, vir die versuim waarvan hy deur die
eiser verwyt word, te tref.
Ten einde vas te stel of 'n positiewe handeling of late sodanig is dat dit as
onregmatig aangemerk kan word, moet gevolglik onder andere die onderskeie
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belange van die partye, die verhouding waarin hulle tot mekaar staan en die
maatskaplike gevolge van die oplegging van aanspreeklikheid in die betrokke
soort gevalle, versigtig teen mekaar opgeweeg word. Faktore wat 'n
belangrike rol speel in die opwegingsproses is, onder andere, die
waarskynlike of moontlike omvang van nadeel vir andere; die graad van risiko
van intrede van sodanige nadeel; die belange wat die verweerder en die
gemeenskap of beide gehad het in die betrokke dadigheid of late; of daar
redelik doenlik maatreëls vir die verweerder beskikbaar was om die nadeel te
vermy; wat die kanse was dat gemelde maatreëls suksesvol sou wees; en of
die koste verbonde aan die neem van sodanige maatreëls redelikerwys
proporsioneel sou wees tot die skade wat die eiser kon lei. Sien Coronation
Brick (Pty) Ltd v Strachan Construction Co (Pty) Ltd 1982 (4) SA 371 (D) op
384C ev. Sien ook, vir vergelykende doeleindes, die uitspraak van Lord
Denning MR in Spartan Steel & Alloys Ltd v Martin & Co (Contractors) Ltd
[1973] QB 27 (CA) ([1972] 3 All ER 557) te 37 ev waarin die soort feitelike
oorwegings wat die betrokke juridiese beleidsbeslissing ten grondslag lê,
duidelik na vore gebring word.’
[12] He submitted further that the evidence showed that in the
area where the appellant and the respondent conducted their
farming operations it would be very expensive effectively to control
fires that arose because of the size of the farms; that it was not
customary for either the appellant or the respondent to make
firebreaks to prevent fires spre ading; and that the topography of
the area where the fires spread was of such a nature that it was
9
not possible effectively to control fires there. In ad dition he relied
on the fact that the app ellant, with the assis tance of others, fought
for a very long period to extinguish the fire on his ow n farm. In the
alternative, Mr Van Rooyen submitted that the respondent did not
place facts before the Court which showed that any omission on
the part of the appellant was of such a nature th at the legal
convictions of society demand that any such omission should be
regarded as wrongful.
DISCUSSION
(A) WRONGFULNESS
[13] In my opinion the submissions by Mr Van Rooyen cannot be
accepted. As Mr De Wet, who appeared for the respondent,
correctly submitted, it has rep eatedly been decided by our courts
that a landowner in our law is under a duty to control or extinguish
a fire burning on his land. Am ong the cases cited by Mr De Wet in
support of this pr oposition was Minister of Forestry v Quathlamba
(Pty) Ltd 1973 (3) SA 69 (A), where Og ilvie Thompson CJ said (at
81 G-82 A):
‘Once such an owner or occupier [ie, an owner or occupier of landed property
in a rural area which is under his control, either personally or through his
servants] (hereinafter for convenience referred to as a landowner) as is
mentioned in the preceding paragraph becomes aware that fire has broken
10
out on or spread to his property, and he foresees or ought reasonably to have
foreseen, the likelihood that, if not controlled or extinguished, it might spread
to and cause damage to or on another’s property, I am, for the reasons which
follow, firmly of the opinion that our law requires him, with such means as are
at his disposal, to take reasonable steps to control or extinguish the fire. For,
under such circumstances, “the duty to take care” mentioned in Paine’s case,
supra [Cape Town Municipality v Paine 1923 AD 207 at 216-217], is, in my
view, established. Purely as a matter of language, it is no doubt correct to say
that where the landowner bears no responsibility for the origin of a fire which
is burning on his property, his failure to take steps to endeavour to control or
extinguish it is an “omission” which is not “connected with prior conduct”. To
relieve such a landowner of all legal liability solely upon that ground would,
however, in my opinion, be to ignore both practical realities and what I
conceive to be our law. For, in the circumstances postulated above, the law,
in my opinion, imposes a duty upon the landowner to take, within the range of
his capacities, reasonable steps to control or extinguish a fire liable to cause
is, in my view damage to another.’
[14] Mr De Wet also relied on HL & H Timber Products, supra, in
which Nienaber JA said (at 823 C):
‘Landowners in areas outside fire control areas are saddled with the primary
responsibility, falling short of an absolute duty, of ensuring that such fires
occurring on their land do not escape their boundaries.’
[15] The fact that the d uty cast upon a l andowner in these
circumstances is not an absolute duty was also re ferred to by
Ogilvie Thompson CJ in the Quathlamba case, supra (at 83 G-H)
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where he said:
‘The scope of the duty, and whether it has been breached, must inevitably
depend upon the circumstances of the particular case. When adjudicating
upon an allegation of negligence against a landowner regarding his failure to
control a fire on his property, a variety of considerations must – at any rate in
a civil action – necessarily be taken into account in assessing what fire-
fighting action could reasonably be expected of him.’ (The italics are
mine.)
It is accordingly clear, in my view, that the fa ctors relied on by the
appellant in this regard are relevant to the issue of negligence, with
which I shall deal presently, and not the issue of wrongfulness.
[16] In my view the Van der Merwe decision, supra, on which Mr
Van Rooyen strongly relied will not bear the weight which he
sought to place upon it. Mr De Wet correctly distinguished that
case on the ground that it was concerned with someone, viz the
Administrator of the Transvaal, who was n ot the owner of the land
from which the fire in question had spread but merely a person
under whose control and supervision the land fell. Van der
Merwe’s contention that the Administ rator was under a legal duty
to take precautionary m easures against veld fires breaking out on
the side of a public road and spr eading therefrom to the land of
others was based on section 4 of the Roads Ordinance 22 of 1957
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(Transvaal) which provided that ‘[a]ll public roads within the
province should be under the control and supervision of the
Administrator’. The road in question was an unnumbered and
unproclaimed road, seldom used by motor vehicles, about whose
condition nobody had complained and in re spect of which no
requests for the taking of precautionary meas ures against veld
fires had been made to the Administ rator. This Court held (at 360
H) that the fact that the Administ rator had control and supervision
over the road was a ne cessary factor for th e establishment of
liability on his part but was not in itself sufficient. It was also
pointed out (at 359 H-I) that the c ontrol and supervision vested in
the Administrator by the Ordinance was merely of a permissive
nature and that the ordinanc e imposed no duty on the
Administrator, at least not in relati on to the making of firebreaks or
the taking of other precautionary measures. In my opinion the case
should not be regarded as authority for the proposition that the
wide recognition of a duty to take care in re lation to veld fires
approved in such cases as Quathlamba, supra, and HL & H
Timber Products, supra, is to be qualified in cases where the
control of the landow ner in question is on e of the incidents of
ownership of the property concerned.
[17] I am aware of the fact that the decision in the Van der Merwe
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case has been criticised on the gr ound that it contains a test of
wrongfulness formulated in such broad terms as to blur the
distinction between wrongfulness and culpability (see the
discussion of this case by Mr Mervyn Dendy in 1994 Annual
Survey of South African Law 240-241). In view of my conclusion
that the case is distinguishable in the present m atter it is not
necessary to consider whether this criticism is correct.
(B) NEGLIGENCE
[18] I turn to the question of negligence. Mr Van Rooyen
submitted that the evidenc e led at the trial by the respondent
showed that the ap pellant had not been negl igent and that it was
unnecessary for him to lead any further evidence himself. In this
regard he argued t hat it was probable th at the appellant when the
fire raged constantly foresaw that the fire would spread to the
respondent’s properties but he was clearly not in a position
effectively to prevent or limi t the damage which the respondent
suffered. The difficulty with this su bmission is that we do not know
precisely what the appellant could ha ve done to fight the fire or
what he in fact did. Wh at we do know, as Mr De Wet pointed out,
was that there had been at least five fires in the area shortly before
the fire in question and that the grass where the fire raged was
long, dry and highly inflammable. No precautionar y measures had
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been taken to prevent any fire that arose on the appellant’s land
from spreading to that of his neighbours and his workers were not
equipped with the most elementar y firefighting equipment. In all
the circumstances I cannot find that the appell ant rebutted the
presumption of negligence created by s 84 of Act 122 of 1984.
CONCLUSION
[19] I am accordingly satisfied that the decision of the High Court
in this matter was correct.
[20] The following order is made:
The appeal is dismissed with costs.
……………..
IG FARLAM
JUDGE OF APPEAL
CONCURRING
CLOETE JA
HEHER JA