Document: 411 U.S. 655 93 S.Ct. 1804 36 L.Ed.2d 567 UNITED STATES, Petitioner,v.PENNSYLVANIA INDUSTRIAL CHEMICAL CORPORATION. No. 72—624. Argued March 27, 1973. Decided May 14, Syllabus After the District Court refused respondent's offers of proof reliance on Army Corps Engineers regulations limiting violations to those impeding navigation, respondent was convicted violating § 13 Rivers and Harbors Act 1899 by discharging industrial pollutants into a navigable river. The Appeals reversed ground that did not apply absent formalized permit procedures or, alternatively, should have been allowed prove it affirmatively misled believe no needed for these pollutants. Held: 1. Section prohibitions without regard authorizes but does mandate, Congress intend discharges specifically prohibited when enacted 1965 1970 water quality acts directing States create pollution prevention abatement programs. Pp. 662—670. 2. Although bars all only constitute obstructions consistently limited its such thus may deprived fair warning as what conduct Government intended make criminal. 670—675. 3 Cir., 461 F.2d 468, modified remanded Court. William Bradford Reynolds, Washington, D.C., petitioner. Harold Gondelman, Pittsburgh, Pa., respondent. Mr. Justice BRENNAN delivered opinion 1 We review here reversal Third Circuit conviction violation 131 1899, 30 Stat. 1152, 33 U.S.C. 407. Two questions are presented. first is whether prosecute an alleged polluter under in absence promulgation formal regulatory-permit program Secretary Army.2 second whether, if prosecution maintainable despite nonexistence program, this entitled assert defense Engineers' longstanding administrative construction deposits impede or obstruct navigation. 2 On April 6, 1971, United filed criminal information against respondent, Pennsylvania Industrial Chemical Corp. (PICCO), alleging four separate occasions August corporation had discharged refuse matters3 Monongahela River4 Act. By terms, 135 prohibits discharge deposit waters 'any matter any kind description whatever other than flowing from streets sewers passing therefrom liquid state.' proviso provides, however, 'the . deposit'6 deemed be injurious 'provided application made (the Secretary) prior depositing material ..'7 At trial, stipulated PICCO operated manufacturing plant bank River, PICCO-owned concrete iron pipes mater river, obtained question. argued, violate because (1) solution tis 'sewage' exempt statutory proscription; (2) 'refuse matter' within meaning would 'impede nevigation'; (3) term 'refuse' used must defined light standards established pursuant Water Pollution Control 1948 amendments.8 In addition, sought introduce evidence show failure obtain excusable instance December 19709 issuing permits and, moreover, construed thereby misleading believing required condition involved case. rejected each PICCO's arguments scope 13, disallowed they were relevant issue guilt intstructed jury accordingly. counts assessed maximum fine $2,500 count. 329 F.Supp. 1118 (WDPa.1971). appeal, affirmed Court's holdings river,10 conclusion prohibition operative procedures. 468 (CA3 1972). reasoned interpretation tantamount reading absolute 'foreign substance' country 'drastic impact nation's economy even 1899,' id., at 473, could reasonably imputed Congress. Instead, concluded enforcement creation operation program. stated: 4 'Congress contemplated regulatory which persons position able discretion Army. It penalties who failed comply with not, people non-existent program.' Id., 475. 5 seems found support 'Congress' subsequent enactments field.' 473. court stated '(t)here appear something fundamentally inconsistent between developing enforcing Quality section 407 (§ 13), effect latter prohibit waste waters.' Ibid. As viewed matter, '(w)hat makes two statutes compatible 13.' Accordingly, held error opportunity time offenses. 6 alternative reversal, majority erred disallowing offer bene necessary effluents If facts true, stated, unfair allow stand. 7 Thus, set aside case give present proffered proofs 8 granted Government's petition certiorari. 409 1074, 689, 34 662 (1972). agree tht judgment reversed, we cannot Appeals' foreclosing existence 9 * creates offenses: (with streets-and-sewers exception); 'material kind' waterway tributary where might washed La Merced, 84 444, 445 (CA9 1936); v. Consolidation Coal Co., 354 173, 175 (N.D.W.Va.1973). certain him material.' exercising authority, requires rely Chief anchorage navigation will injured deposits. But, situation concedes injure need necessarily deposit, Secretary's authority discretionary—i.e., provides 'may permit' deposit. further issued prescribe limits conditions, unlawful. crucial our inquiry, neither nor provision statute general criteria governing issuance permits. 10 while nothing precludes establishment Secretary, equally clear rendering operative. Granite State Packing 470 303, 304 (CA1 contrast, provisions 1899,11 do include requirement regulations. Consequently disagree itself 11 Similarly, there legislative history supports read section. one comprehensive law codify pre-existing designed protect preserve Nation's waterways. Standard Oil 384 224, 226, 86 1427, 1428, 16 492 (1966). 12 begins decision 1888 Willamette Iron Bridge Co. Hatch, 125 1, 811, 31 L.Ed. 629. federal common prohibiting nuisances waters. response decision, passed series laws later reenacted 1899. law, 1890, provided part: 'That shall lawful cast, throw, empty, unlade, cause, suffer, procure thrown, emptied, unladen, either out ship, vessel, lighter, barge, boat, craft, shore, pier, wharf, furnace, establishments, mills whatever, ballast, stone, slate, gravel, earth, rubbish, wreck, filth, slabs, edgings, sawdust, slag, cinders, ashes, refuse, port, road, roadstead, harbor, haven, tend place deposited placed, same liable waters, ordinary high tides, storms floods, othrwise, whereby impeded obstructed: Provided, That herein contained extend prevent substance above mentioned War, he hereby authorized grant, designated obstructed thereby.' 26 453. 14 Four years later, 1894. 15 place, discharge, process manner, dirt, mud, sand, dredgings, sludge, acid, streets, sewers, state, harbor river States, improvement money has appropriated Congress, elsewhere permitted War; person move, destroy, manner seawall, bulkhead, jetty, dike, levee, work built whole part, preservation boundary marks, tide gauges, surveying stations, buoys, marks ..' 28 363.12 1896, commissioned War compile various protecting 'to submit together recommendation revision, emendation, enlargement said as, his judgment, advantageous public interest.'13 turn, delegated task Engineers, February 1897, draft proposal cover letter 17 'I honor herewith compilation (of existing waters) act embodying revision aforesaid experience office shown interest.'14 18 compilation, combined essentials 1890 1894 form virtually debate contains mention 13. quite clear, wider narrower predecessor statutes. U.S., 227—228, S.Ct., 1428—1429. course, recommend 'revision' 'enlargement' accompanying referred 'a laws.' But relating removal wrecks,'15 subject changes minor. Indeed, Senator Frye, Chairman Senate Committee, question great change compilation: 'Oh, no. There ten words changed entire thirteen sections. (with) (v)ery slight remove ambiguities.'16 19 Plainly, their turn contrary, ban enumerated substances prevent' granting, discretion, And direct authorization whatsoever.17 20 then, assertion supported congressional field. regard, placed primary reliance18 amendments 1948—the 1965, 79 903, Improvement 1970, 91.19 since Acts meet minimum standards, forth state agencies, 'fundamentally inconsistent' imposing pollutant discharges. F.2d, agree. attempt enlist local aid concentrated control directive officials, working cooperation establish Nothing parent otherwise new 'affecting impairing 1899).'20 21 legislation expressly complements although authorizing deposits, followed legislation, hand, calls setting qualify once established, vested extent—i.e., unless met applicable standards. 103, 107. essence, therefore, limitation undermining See Maplewood Poultry 327 686, 688 (D.C.Me.1971); Steel Corp., 328 354, 357 (N.D.Ind.1970); Interlake 297 912, 916 (N.D.Ill.1969). 22 We, find declares simple absolutes characterized 'almost insult sophisticated wastes modern technology'21 '(i)t lawful' whatever' except enacting field, took special precautions broad way implied language conditions past, related dealing free- rivers 'forbids narrow, cramped reading' 1428; Republic 362 482, 491, 80 884, 889, 903 (1960). II 23 reversing conviction, namely, longstanding, official 'affirmatively misled' criminal.22 defense. 24 outset, observe fact applies tendency affect For, much dispute past,23 supra, 'serious injury' watercourses remedied (by Act) caused part obstacles pollution,' 'includes foreign 228—229, 230, 1429, 1430.24 also Illinois City Milwaukee, 406 91, 101, 92 1385, 1391, 712 Since lower courts almost universally agreed, below, accordance plain flat unauthorized regardless See, e.g., 343 57, aff'd, 303 1972); Esso Puerto Rico, 375 621 1967); 173 (N.D.W.Va.1973); Genoa Cooperative Creamery 336 539 (W.D.Wis.1972); 686 (D.C. Me.1971); 912 (N.D.Ill.1969); contra, Guthrie Alabama By-Products 1140 (N.D.Ala.1971), 456 1294 (CA5 25 Nevertheless, undisputed affected Oil, published regulation pertaining follows: 's 209.395. Deposit refuse. River Harbor 3, (30 1152; 407), generally jurisdiction Department Army, derived Federal protection directed right Action therefore principally materials obstructive navigation.' CFR 209.395 (1967). 27 1968, complete §§ 401 403, excavation consider conservation environmental factors applications sections 'work 209.120(d) (1969). notwithstanding reference spite intervening continued construe navigation: 'Section 407) whenever thereby, prescribed him. exercised time, considered preferable 1905 (33 1147; 419). means assisting determining vessels, views Coast Guard solicited coordination Commander District.' 209.200(e)(2) (1969).25 29 offered that, consistent, good-faith belief permissible law. contend, ignorant impermissibly vague, see Connally General Construction 269 385, 46 126, 70 322 (1926); Bouie Columbia, 378 347, 1697, 894 (1964), rather responsible agency situation. Cf. Raley Ohio, 360 423, 1257, 1344 (1959); Cox Louisiana, 379 559, 85 476, 487 (1965). Of can look guidance. Act, rulings, interpretations opinions (responsible agency) ., controlling upon reason body informed litigants properly resort guidance.' Skidmore Swift & 323 134, 140, 65 161, 164, 89 124 (1944); Maritime Board Isbrandtsen 356 481, 499, 78 851, 862, 926 (1958). Moreover, themselves purport define offense question, Mersky, 361 431, 459, 423 (1960), certainly true purpose guide requirements statute. extent criminal, think doubt traditional notions fairness inherent system justice proceeding prosecution. Newman, Should Official Advice Be Reliable?—Proposals Estoppel Related Doctrines Administrative Law, 53 Col.L.Rev. 374 (1953); Note, Applying Principles Criminal Cases, Yale L.J. 1046 argues, pronouncement asserting event, revised pertinent factors,26 position. respond here, pertains, availability defense, issues so, reasonable circumstances decided trial court. stage, sufficient hold claim 32 remand proceedings consistent opinion. so ordered. THE CHIEF JUSTICE, STEWART, POWELL dissent given non-existence 35 BLACKMUN REHNQUIST Part I, (1966), absolutely reach respect River; contrary attitude express implication, unwarranted; correct rejecting irrelevant, reverse directions reinstate conviction. 407, provides: 'It discharged, floating craft kind, establishment, mill float water; water, otherwise, to, operations connection works, proper officers supervising work: further, him, material; thereof strictly complied with, unlawful.' 411, 'Every every violate, knowingly aid, abet, authorize, instigate 408, title guilty misdemeanor, punished exceeding less 500, imprisonment (in natural person) thirty days more year, both imprisonment, court, one-half paid giving lead conviction.' A dates n. 9, infra. October 18, 1972, piece providing national Amendments Pub.L. 92—500, 816. 402 1972 1342, designates Administrator Environmental Protection Agency exclusive matters identified 'iron, aluminum, compounds containing chemicals, chlorides, phosphates, sulfates solids.' App. 3. 128-mile-long, flows through western northern West Virginia. sometimes 'Refuse post-1970 label past present. some authors use refer see, Refuse 1899: New Tasks Old Hastings 782 (1971), others Rodgers, Act: Second Chance Quality, 119 U.Pa.L.Rev. 761, 766 (1971). suggested 'discharge, deposit' appropriate distinguish 'discharge' 'deposit' Secretary. Hearings before Subcommittee Environment Committee Commerce, 92d Cong., 1st Sess., However, distinction history. terminated 1972. 2, supra. 62 1155, amended July 17, 1952, c. 927, 66 755; 1956, 498; 1961, 87—88, 75 204; 234, 903; Clean Restoration 1966, 753, 1246; 91—224, 91. 23, President announced Executive Order 11574, Fed.Reg. 19627 (Dec. 25, 1970). 30, proposed 20005 31, Final implementing President's grogram became effective 7, 1971. 209.131 changes, now become This us review. Brennan Arnheim Neely, Inc., 410 512, 516, 1138, 1141, 463 (1973); NLRB International Van Lines, 48, 52 4, 74, 77, 201 404, instructs lines beyond works extended 'except him.' 1905, 1147, 419, regarding transportation dumping dredging material. well modeled after 1886 York Harbor. 226—228, 1428—1429, June 314, 234. H.R.Doc. 293, 54th 2d Sess. (1897). 414. Cong.Rec. 2297 (1899). 'elsewhere War,' contemplate discretionary nonimpeding purported curtail earlier grant 'limits Secretary' refers merely provision. Inferentially, 419. 475 7. provision, originally amendment clearly (although require established), tends confirm conditioned For explains desirable promulgate permissive bodies (such Boston Harbors) large amount illegal going night impossible detect' violators, making 'impossible secure convictions.' 39 3078 (1905). words, lesser evils insufficient facilities personnel effectively enforce implication discovered, remedy, though offenses, existed No explanation ultimate separately Possibly, hoped sparingly eviscerate antidumping regulatory-program requirement, particular remain intact completely enforceable. These superseded amemdnemts 1948, 1161, 507, 113. conceded purposes nature 478. seeming ambiguity sparse over clause 'bank' off semicolon, own navigation-impeding not. hardly conclusive issue. Comment, Discharging Wine Wineskins: Metamorphosis U.Pitt.L.Rev. 483 construing 444 Coolidge, 101 638 1939); Ballard Hartford, 195 369 (CA2 1952). Crouch (1922) (unreported, 229 5, 1429; Warner-Quinlan 273 F. 503 1921); Nicroli Den Norske Afrika-Og Australielinie, etc., 332 651 1964). accidental aviation gasoline finding 'was 291, O.T.1965, 8—11. govern garbage, 'in interest Corps' signify argues taken consideration post-1968 acts, press releases periodic publications. Brief 35—38.

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