Document: 435 U.S. 519 98 S.Ct. 1197 55 L.Ed.2d 460 VERMONT YANKEE NUCLEAR POWER CORPORATION, Petitioner,v.NATURAL RESOURCES DEFENSE COUNCIL, INC., et al. CONSUMERS COMPANY, Petitioner, v. Nelson AESCHLIMAN Nos. 76-419, 76-528. Argued Nov. 28, 1977. Decided April 3, 1978. Syllabus In No. after extensive hearings before the e Atomic Safety and Licensing Board (Licensing Board) over respondents' objections, Energy Commission (AEC) granted petitioner Vermont Yankee Nuclear Power Corp. a license to operate nuclear power plant, this ruling was affirmed by Appeal (Appeal Board). Subsequently, AEC, specifically referring Board's decision, instituted rulemaking proceedings deal with question of considering environmental effects associated uranium fuel cycle in individual cost-benefit analyses for light-water-cooled reactors. these not use full formal adjudicatory procedures. Eventually, as result proceedings, AEC issued so-called rule. At same time approved procedures used at hearing; indicated that record, including Environmental Survey, provided an adequate data base rule adopted; ruled extent differed from decision such had no further precedential significance, but since been shown be relatively insignificant, it unnecessary apply Yankee's reports submitted prior rule's effective date or statements circulated comment date. Respondents appealed both AEC's adoption its grant license. With respect license, Court Appeals first absence must impact reprocessing disposal licensing went on hold despite fact appeared employed all required Administrative Procedure Act (APA) 5 U.S.C. § 553 (1976 ed.) more, were inadequate overturned rule, accordingly determination also remanded proceedings. 76-528, examination report Advisory Committee Reactor Safeguards (ACRS) hearings, respondent intervenors' Consumers Co. permit construct two reactors, Board. about Council Quality revised regulations governing preparation so mention necessity energy conservation one alternatives proposed project. view development subsequent indicating evidence should necessarily barred threshold intervenors moved reopen could considered, declined granting construction permit. The held statement reactors fatally defective failure examine alternative plants size, ACRS have returned elucidation, understandable layman, case appropriate consideration waste other unaddressed issues. Held : 1. Generally speaking, establishes maximum procedural requirements Congress willing courts impose upon federal agencies conducting while are free additional rights exercise their discretion, reviewing generally them if chosen them. And, even apart APA, formulation basically left within discretion which has confided responsibility substantive judgments. Pp. 523-525. 2. cases seriously misread misapplied statutory decisional law cautioning against engrafting own notions proper entrusted functions Congress, moreover Appeals' agency action taken improperly intruded into agency's decision-making process. 535-558. (a) acted well authority when considered processes 538-539. (b) Nothing National Policy 1969 (NEPA), circumstances nature issues being past practice, mandate under operates permitted review overturn proceeding basis devices (or employed) long least minima, matter there is doubt. 539-548. (c) As whether challenged 76-419 finds sufficient justification administrative upheld court may APA provides. engage kind stray beyond judicial province explore format notion "best" most likely some vague, undefined public good. P. 549. (d) wrong holding rejection "threshold test" capricious arbitrary inconsistent NEPA's basic court's rationale misconceives only scope responsibility, process, thrust type trying raise. mischaracterized placing "heavy burdens intervenors." On contrary stated procedure requiring showing require reasonable minds inquire discretion. 549-555. (e) 76-528 elaboration erroneous unjustifiable intrusion nothing relevant statutes justify what did. 556-558. 178 U.S.App.D.C. 336, 547 F.2d 633, 325, 622, reversed remanded. 1 Thomas G. Dignan, Jr., Boston, Mass., 76-419. 2 Lawrence Wallace, Washington, D. C., Regulatory support petitioners. 3 Charles A. Horsky, 4 Richard E. Ayres, respondents Myron M. Cherry, Chicago, Ill., 6 [Amicus Curiae Information pages 522-523 intentionally omitted] 7 Mr. Justice REHNQUIST delivered opinion Court. 8 1946, enacted Act, we noted elsewhere "a new, comprehensive regulation many agencies," Wong Yang Sung McGrath, 339 33, 70 445, 94 L.Ed. 616 (1950), legislative enactment settled "long-continued hard-fought contentions, enacts formula opposing social political forces come rest." Id., 40, S.Ct., 448. Section ed.), dealing rulemaking, requires subsection "notice making shall published n Federal Register . .," describes contents notice, goes notice "shall give interested persons opportunity participate through submission written data, views, arguments without oral presentation. After presented, incorporate rules adopted concise general purpose." Interpreting provision United States Allegheny-Ludlum Steel Corp., 406 742, 92 1941, 32 453 (1972), Florida East Coast R. Co., 410 224, 93 810, 35 223 (1973), speaking section established procedures.1 Agencies This say would ever overturning because employ those statute. But circumstances, they exist, extremely rare. 9 Even more than four decades emphasized FCC Schreiber, 381 279, 290, 85 1459, 1467, 14 383 (1965), explicated principle, describing "an outgrowth congressional administrators will familiar industries regulate better position itself design adapted peculiarities industry tasks involved." relied earlier Pottsville Broadcasting 309 134, 138, 60 437, 439, 84 656 (1940), where conduct business Communications delegated resolve "subordinate questions [such as] inquiry, applications heard contemporaneously successively, parties allowed intervene another's similar questions." 10 It light background certiorari judgments District Columbia Circuit our concern Congress. 429 1090, 97 1098, 51 535 (1977). We conclude done just cases, therefore remand find necessary hearings. again decisionmaking makin us reverse part also. 11 * 12 Under 1954, 68 Stat. 919, amended, 42 2011 seq., Commission2 given broad regulatory energy. terms utility seeking plant obtain separate operation stage See §§ 2133, 2232, 2235, 2239. order permit, file preliminary safety analysis report, certain information regarding antitrust implications CFR 2.101, 50.30(f), 50.33a, 50.34(a) application then undergoes exhaustive Commission's staff (ACRS), group distinguished experts field atomic Both groups submit evaluations, become record utility's application.3 2039, 2232(b). undertakes 83 852, 4321 prepares draft statement, which, comment, 51.22-51.25 (1977), becomes final statement. 51.26. Thereupon three-member conducts hearing, 2241, reaches decision4 can Board, currently, itself. 2.714, 2.721, 2.786, 2.787 appeals. 2239; 28 2342. sort process occurs applies 50.34(b) except hearing need contested limited matters controversy. 2239(a); 2.105 (1977); pt. 2, App. A, V(f) (1977).5 13 These arise decisions Circuit. first, plant. Natural Resources Defense NRC, 633 (1976). second, agen y pressurized water generate electricity steam. Aeschliman 622. B December 1967, mandatory review, build Vernon, Vt. A.E.C. 36 (1967). Thereafter, applied operating Respondent (NRDC) objected however, commenced August 10, 1971. Excluded NRDC's objection, issue operations reprocess dispose wastes resulting operations.6 June 1972. 15 November 1972, Commission, specific reference "that cooled reactors." 352. offered alternatives, predicated prepared entitled Survey Fuel Cycle. quantitative evaluation hazards found slight. second specified numerical values cycle, incorporated table, along factors, determine overall balance each id., 356-357. 16 Much controversy revolves around February 1973. supplemental discovery cross-examination utilized, available documents cited therein. All participants present represented counsel desired. Written and, permitting, received record. giving subject questioning Commission. conclusion transcript made remain open 30 days allow filing statements. 361-363. More 40 individuals organizations representing wide variety interests comments. January 17, 1973, planning session schedule appearance witnesses discuss methods compiling participation number groups, th staff, Protection Agency, manufacturer reactor equipment, trade association industry, electric companies, called Consolidated Intervenors 79 NRDC. 17 filed document purpose clarifying revising Survey. Then forwarded rendering any decision. identified principal propriety declining major technical adequacy 18 1974, described above. hearing,7 "adequate adopted." 392. Finally, "those significance," 386, "the amendment applicant's Final Statements Draft date," 395. 19 C 20 1969, Midland, Mich. Power's examined ACRS. discussed problems recommended solutions. "other problems" generic suggested efforts projects.8 Two Saginaw another Mapleton, intervened opposed application.9 directed 300 interrogatories ACRS, attempted depose chairman requested various documents. denied requests Hearings numerous radiological health issues.10 119 contentions comments Saginaw's upcoming March Further conducted during May Saginaw, choosing appear latter "no conventional findings set forth" "chosen search respond submitting citations believe proved disproved." 190 n. 9. recognizing obligations "independently consider among conflicting factors record," nevertheless treated "as introduced affirmative engaged substantial cross examination." 205, 191. 21 now claimed raise "energy conservation." far demand up normal industrial residential use. 207. state "beyond customary uses society 'proper' 'improper.' " Ibid. claims stimulated advertising "[n]o point absent Applicant creating abnormal demand, did question." 207-208. failed radioactive wastes. ultimately matter. 22 time, 38 Fed.Reg. 20550 (1973). mentioned alternativ new guidelines 1974. 20557. 6, year closed pending Appeals, compel clear, follow threshold. re Niagara Mohawk 995 clarify 23 lengthy opinion, 'reasonably available,' aggregate effect curtail level facility needed, susceptible degree proof. 332. determined, thorough met tests. 334-340. determined times take contentions. simply evidence. criticized total disregard minimal formalities idea exactly issue. "[p]articularly complaint alleged comes ill grace."11 342. And response contention regardless properly raised issues, agreed, itself, reasoned workable 24 "in setting account novel evolving concept. NEPA 'does "crystal ball" inquiry.' Morton, [148 5, 15, 458 827, 837 (1972)]. led retroactively. gain experience case-by-case hopefully, feasible techniques emerge, applicant, boards develop intervenors. 25 "However, emergent principles, responsibilities. They clear reasonably timely fashion. Beyond that, burden coming forward wish explored further."12 344 (footnotes omitted). 26 D 27 challenge proceedings,13 U.S.App.D.C., 344, F.2d, 641. Accordingly, proceedings.14 358, 655. Power, Midland size. 331, 628. thought inadequate, although agree members way explication report. Instead, sua sponte sent back elucidation resolution. 335, 632. controlled NRDC above, opinion. II 29 Petitioner argues reprocessing. find, longer presented case. does contend spent plants. Indeed, publicly instant end LWR's [light-water reactors] represent candid assessment costs benefits consistent legal spirit NEPA." 41 45849 implicitly agreed proceedings: insignificant," thus incorporation change results licensin Thus, regard addition weight normally attaches question, reasons conclusion. produce annually 100 pounds wastes, highly toxic. pamphlet office, clearly recognizes "pose severe potential hazard ." Radioactive Wastes (1965). Many substances isolated anywhere 600 hundreds thousands years. hard argue do constitute "adverse cannot avoided proposal implemented," "irreversible irretrievable commitments resources." 4332(2)(C)(ii), (v). recognized, produced analytically indistinguishable stack gases coal-burning plant." 341, 638. For 31 next turn invalidation determining reached permissible result, reach, mean feat. invalidated inadequacy Brief pp. 30-38. Respondents, hand, labeling petitioner's "straw man," merely enable fulfilled obligation. 28-30, 40. unfortunately parties' characterization entirely reliable; appears here, Orloff Willoughby, 345 83, 87, 73 534, 537, 842 (1953), that"in changed positions nimbly dancing quadrille."15 doubt, majority struck down perceived inadequacies primary argument preclude 'discovery cross-examination' meaningful guaranteed due process." 346, 643. frame thus: 33 "Thus, decide ventilate issues." Ibid., 34 conceded extraordinary improper prescribe follow, likewise "scrutinize whole insure genuine opportunities 347, 644. refrained actually ordering procedures, 356-357, 653-654, little doubt ineluctable afforded inadequate. particularly buttressed testimony Dr. Pittman, declared insufficient, proceeded length "sensitive" exploration insufficiency might initially lead examining ufficiency evidence, remaining portions dispel certainly sole feel compelled address terms, wrong. opinions intimated 'quasi-judicial' very small 'exceptionally affected, grounds,' afford aggrieved process.16 U.S., 242-245, 819-821, quoting Bi-Metallic Investment State Equalization, 239 441, 446, 141, 142, 372 (1915). true, think it, totally unjustified departure well-settled standing correction.17 much absolutely clear. Absent constitutional constraints compelling "administrative 'should fashion pursue inquiry capable permitting discharge multitudinous duties.' 143, 441. hardly explicit regard. has, supra, principle applications,18 Court, instead inquiring validity authority, devised followed conception how private interest involved best served. Examining 4(j) 1934, unanimously erred upholding action. reason serious tenet procedure. continually repeated theme years, recently FPC Transcontinental Gas Pipe Line 423 326, 96 579, 46 533 (1976), decided Terms ago. case, occasion "exercise deciding how, internal organization considerations, proceed needed modified develops." 333, 583. emphasize: 37 "At doing otherwise, not, requisite dictating methods, dimension reported agency. Such runs risk 'propel[ling] domain aside exclusively agency.' SEC Chenery 332 194, 196, 67 1575, 91 1995 (1947)." lower bounds routinely minimum addresses complex factual "Issues Great Public Import." p. 49. have, previously reject view. Supra, 542 page. history, cites, bear out contention. Senate Report explains eventually became 39 "This states short hearing. confer advisory committees, consult organizations, informal 'hearings,' like. Considerations practicality, necessity, naturally govern go. Matters great import, facts either useful protection public, accorded elaborate procedures." S.Rep. 752, 79th Cong., 1st Sess., 14-15 (1945). House complete accord: '[U]niformity possible desirable classes equity actions seem demonstrate agencies, exercising fraction uniform practice quasi-legislative quasi-judicial power.' 43 "The bill outline essential affords means knowing protect 44 45 ". [The contains] essentials different forms H.R.Rep. 1980, 2d 9, 16-17 (1946). Attorney General's Manual 31, (1947), contemporaneous interpretation deference role played Department drafting legislation,19 confirms short, leaves intended exercised extra employed. 47 There construing manner. place, were, perfectly tailored reach perceives "correct" unpredictable. vague injunction facing threat reversal undoubtedly adopt every instance. Not disrupt scheme, rest," 450, inherent advantages lost.20 48 Secondly, obvious reviewed choice 644, structure way. Monday morning quarterbacking encourages almost compels panoply 49 perhaps importantly, fundamentally standard below uncritically assumed automatically contribute based solely 553(c) ed.). "record" correlated directly employed, rather turns statutes. If adopts promulgating sum, unwarranted shortcomings interfere prescribed 50 undertaken context somehow permits investigating rulemaking. apparently view, "develop accomplish innovative task implementing rulemaking." 356, 653. vain something result. observed "NEPA repeal implication statute." Aberdeen & Rockfish SCRAP, 422 289, 319, 95 2336, 2355, 191 (1975). 412 669, 694, 2405, 2419, 254 fact, ago, imposed plain language Act. Kleppe Sierra Club, 427 390, 405-406, 2718, 2728-2729, 576 serve revision carefully constructed specifications APA. NEPA, remains, course, court. Judge Tamm, concurring not. intimations suggest judges who joined insufficient predicate question. abundantly explanation "stand fall finding, judged, review. finding sustainable made, Comptroller's vacated h m consideration." Camp Pitts, 411 1241, 1244, 106 318 80, 63 454, 87 626 (1943). good.21 III 52 'threshold test' arbitrary," 332, 629, 53 presentation 330, 627. reasoned, umpire sits resolves adversary stage. intervenor's "bring 'sufficient attention stimulate it,' "undertake investigation proffered rational judgment worthy detailed EIS. Moreover, explain unwarranted." 628, Indiana Michigan Electric FPC, 163 334, 337, 502 (1974), cert. denied, 420 946, 1326, 424 54 While unappealing abstract proposition, commissions bodies empowered make initial power. 2021(k). prime area context, national security, health, safety. 2132, 2201. need, term conventionally used, thoroughly regulates sales interstate commerce, 824 seq. projected need. 56 altered slightly balance, responsible official action." 4332(C). But, moment's reflection, "alternatives" self-defining. To frivolous boilerplate concept bounded feasibility. recognized: 57 "There concluding meant discussion 'alternatives' put readily ascertained deeme remote speculative possibilities, changes policies available, all, protracted debate litigation meaningfully compatible time-frame needs underlying addressed." 148 15-16, 837-838 (1972). 58 Life Land Brinegar, 485 (CA9 1973), 416 961, 1979, 312 (1974). Common sense teaches "detailed alternatives" wanting include device conceivable mind man. Time resources too fails ferret alternative, uncommon unknown project approved. 59 principles conservation," omission "forcefully pointed EIS." 328, 625. Again, out, phrase 'energy conservation' deceptively simple ring context. Taken literally, suggests virtually limitless range developments might, another, reduce demands particular 331. practical matter, dispute observation largely events recent years large conservation. Prior drastic oil shortages incurred Government circles alternatives. promulgate remotely until 1, 1500.8(a)(4) 20554 applicable 20557, 21265. hydroelectric facilities 19, A., 8.2 15946, 15949 retroactive either. 15946. occurred half prepared, completed. amply one, fewer known understood. understood unlike recognized judged it. authority. indication indicate contrary. 61 criticism displays lack understanding historical took place test true places obligation significant aspect action, still incumbent meaningful, alerts especially requesting embark unchartered territory, late 1960's early 1970's. 62 "[C]omments enough step requirement materiality concern. mistake ; show why significance Portland Cement Assn. Ruckelshaus, 158 308, 327, 486 375, 394 sub nom. Administrator, EPA, 417 921, 2628, 226 game forum obstructionism cryptic obscure "ought be" then, failing bring attention, ground presented." here invited clarification willingness receive matters. decline focus participate, 64 11, 627, 11. contrary, explicitly stated: 65 "We equate civil prima facie unduly heavy setting. further." 27. 66 characterize "arbitrary capricious" deprive words meaning. said past: "Administrative always creates gap between promulgated [and, add, judicially reviewed]. litigants rehearings circumstance arisen, trend observed, discovered, hope consummated reopening." ICC Jersey City, 322 503, 514, 1129, 1134, 88 1420 (1944). 69 Northern Lines Merger Cases, 396 491, 521, 90 708, 722, 700 (1970). sufficiency statute mandating 71 "Neither nor history contemplates substitute consequences ac ions. 21, 2731 21. 72 forgotten reversed.22 elaboration, problems. 74 function concerned apprised facilities," layman replete cross-references previous detailed. elaborate, return development, entire studies, reviews, nullified. 75 Again unjustifiably publication served important function. shows subsidiary main function, providing advice body uniquely qualified provide assistance. 2039; 296, 85th (1957); U.S.Code Cong. Admin.News, 1803; Joint Energy, A Study Procedures Organization Facilities, 32-34 (Comm. Print 1957). conveyed exposition facet energy, ACRS's position, therefore, reactor. faulted 76 Of equal obfuscating findings. referred public-documents room. there. Furthermore, informed shortly list "generic concerns." inconceivable Our confirmed putative understand yet member supposedly uncomprehending asked surely is, claims, "judicial intervention run riot." 37. 77 als worth noting here. able clarification, explanation, 78 leads relevance remanding insubstantial gross understatement. permit—not underwent incredibly literally fill books. actual themselves weeks. nullify effort seven later refers problems, admittedly borders Kafkaesque. day cheap, safe source try establishing play role. fundamental policy appropriately resolved legislatures reexamination guise prove judgment. meantime perform appointed forth goals Nation, essentially procedural. 4332. 2355. fully well-considered unit other, mandated statute, Consolo FMC, 607, 620, 86 1018, 1026, 131 (1966), unhappy reached. single oversight peripheral issue, urged never cooperated indeed below, otherwise proceeding. Reversed 80 BLACKMUN POWELL cases. division constitutionality involving ratemaking, Douglas Stewart felt "adjudicatory" involve pristine sense. transferred (NRC) Reorganization 5801 (1970 ed., Supp. V). Hereinafter NRC informing "hazards existing standards." 2039. concludes assurance operated undue risk, 2241; 50.35(a) favors issuance When contested, inimical common defense security public. 2232(a); 50.57(a) fission takes light-water converts fuel, uranium, plutonium, separated products. recapture usable plutonium. Waste disposal, technological storage lived products detoxify sufficiently hazard. presently physical chemical steps render less toxic, passage time. "In adopted. heard. excluded. evidentiary material Nor proponent strict 'adjudicatory' approach offer proof—or suggest—what addition, note several weeks though so, drafts handwritten notes. warranted here." 389-390 (footnote quoted, 630, "Other related Staff reports. believes resolution items equally Plant Units above items, units public." included Valley Group, Citizens Michigan, Automobile Workers International, three groups. Mapleton five residents community near plantsite. relating Pursuant effect, refused last Calvert Cliffs' Coordinating Comm., Inc. 146 449 1109 (1971), regulations. One one. undertook plants, Thereafter text. highlighted problem propose conclusions greatly complicated impossible instances know contested." 10. charitable, "[p]articipation manner, subverts 257. dictum, ruled, factors—such represents reliance consequent rule—that enunciated retroactively progressed decided. 337. questioned adjudication. 345-346, 642-643. Neither anyone respect. interim 13803 N.R.C. 717 request New England Coalition Pollution, plant's favor. That appeal First brief intends currently progress looking toward outcome 36. Following argument, NRDC, relying facts, suggestion mootness motion dismiss writ improvidently granted. moot, deny Upon remand, panel disagree Tamm's pertaining meaning 10(e) 706 hold, invalid Should invalid, probability progress. likelihood required, compulsion order, If, unwilling reevaluated. So concerned, must, virtue reevaluation revocation finally depends. anything today limitation account, appropriate, additions consolidate already pending. remains makes "live." read special justifying course raises warrant Since vast challenges brought Circuit, precedent Appeals. continue press ahead infra, force challenging alleging citing binding effect. throughout litigation. parties, however. Government, Janus-like, positions. petition pending, behalf former believed 5-9 (filed Jan. 1977). announcing intention undertake promulgation "interim" said: "[T]he inadequately supported insofar aspects cycle—the impacts management." 45850 recently, opening replace original illumination suffice, "Accordingly, hereby reopened authorities responsibilities Hearing originally (38 49, 1973) entertain suggestions ask participants." 26988-26989 happily switches sides depending forum. Almost immediately rendered listed "necessary comply Court's [NEPA]." Petition Rulemaking, Docket RM-50-3 (Aug. 1976). proposals cross-examination, discovery, subpoena Attachment, Rules Conduct Effects Uranium Cycle, &Par; 5(a), 9(b), "defective developing Motion Hold Review Abeyance 77-1448 (D.C.Cir., 13, 1977; July re-run [by Appeals]." Reconsideration Ruling Reopening Cycle (June Constitution. purest form, see 244-245, 820-821, (1973); Bowles Willingham, 321 641, 892 (1944); "[a]gencies alter whim, grossly constricting deems impediment embarrassment views." 46. concedes ordinarily addressed 'generic' issue." 48. contends, safeguards cites provided. 69. Pretermitting substantially departs merit. predecessor establish longstanding deviation intervention. appears, moreover, aberrational. 1970 importance, none cross-examination. See, e. g., Assurance Criteria Plants, 10499 (1970); General Design 3255 (1971); Pre-Construction Permit Activities, 14506 (1974); Prot ction—Licensing Procedures. 26279. CAB Hermann, 353 322, 804, 852 Oklahoma Press Pub. Walling, 327 186, 494, 614 (1946); Wallace NLRB, 323 248, 238, 89 216 Endicott Johnson Perkins, 317 501, 339, (1943); Utah Bituminous Coal Comm'n, 306 56, 409, 483 (1939); Norwegian Nitrogen Products States, 288 294, 350, 796 (1933). Electricians, 367 396, 408, 81 1529, 1535, 924 (1961); Zucca, 351 91, 96, 671, 674, 964 (1956). Wright, Courts Rulemaking Process: Limits Judicial Review, Cornell L.Rev. 387-388 complied Preserve Overton Park Volpe, 401 402, 417, 814, 824, 136 (1971). compliance "this reopening recalculation benefits, assume Dow's [the customer steam] steam, continued fossil-fuel generating facilities." independent vacating reconsidered times, 346-347, 348-349, 350-351, possibly fourth, Nonfederal 19-20, 8. error

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