Document: 426 U.S. 167 96 S.Ct. 2006 48 L.Ed.2d 555 Ed W. HANCOCK, Attorney General of Kentucky, Petitioner,v.Russell E. TRAIN, Administrator, Environmental Protection Agency, et al. No. 74-220. Argued Jan. 13, 1976. Decided June 7, Syllabus Although § 118 the Clean Air Act obligates federal installations discharging air pollutants to join with nonfederal facilities in complying state "requirements respecting control and abatement pollution," obtaining a permit from State federally approved implementation plan is not among such requirements. There cannot be found 118, either on its face or relation as whole, nor can there derived legislative history Amendments 1970, any clear unambiguous declaration by Congress that may operate without permit. Nor congressional intention submit activity implied claim under State's it only through system compliance schedules other requirements administratively enforced against installations. Pp. 178-199. 497 F.2d 1172, affirmed. David D. Beals, Frankfort, Ky., for petitioner. Daniel M. Friedman, Washington, C., respondents. Mr. Justice WHITE delivered opinion Court. 1 The question decision this case whether whose forbids an contaminant source require existing owned operated secure presents issue statutory construction requiring examination Act, amended, 42 U.S.C. 1857 Et seq., light established constitutional principles governing determination extent which have been subjected regulation.1 specific those pollution" must comply Act.2 2 * Last Term Train v. Natural Resources Defense Council, 421 60, 95 1470, 43 731 (1975), we reviewed development pollution legislation 1970 (Amendments)3 observed although "sharply increased authority responsibility continuing effort combat they "explicitly preserved principle" " '(e)ach shall primary assuring quality within entire geographic area comprising . ,' Id., at 64, S.Ct., 1474, L.Ed.2d, 737, quoting 107(a) added, 84 Stat. 1678, 1857c-2(a). Consistently principle, required nine months after Agency (EPA) promulgated secondary ambient standards 109(a) 1679, 1857c-4(a),4 certain pollutants,5 each EPA would implement maintain territory. 110(a)(1) 1680, 1857c-5(a)(1). See 40 CFR pt. 51 (1975). was approve long adopted public hearings satisfied conditions specified 110(a)(2). 3 For sources6 propose "emission limitations, schedules, timetables limitations" necessary meet standards. 110(a)(2)(B). As Train, supra, 78-79, 1481, 745, given EPA's nationwide standards, adopt setting 4 "the rules operators sources are subject, if should result meets national 5 "(The EPA) relegated role process determining enforcing specific, source-by-source emission limitations has set met. gives (the no wisdom choices part satisfies 110(a)(2) Thus, so ultimate effect choice air, liberty whatever mix deems best suited particular situation." (Footnote omitted.) 6 Along increasing "taking stick States"7 them pursuant authority, also intended "to strengthen strictures facilities."8 Before 111(a) simply declared intent Congress" "shall, practicable consistent interests United States available appropriations, cooperate with" authorities "in preventing controlling insofar discharge matter such" installation "may cause contribute area."9 7 Experience performance voluntary scheme10 led conclude admonishing agencies prevent inadequate, because "(i) nstead exercising leadership eliminating pollution"11 "Federal notoriously laggard abating pollution."12 Both provide private industry abate violations facilities, added Act. first sentence section provides: 8 "Each department, agency, instrumentality executive, legislative, judicial branches Federal Government (1) having jurisdiction over property facility, (2) engaged actity resulting, result, pollutants, Federal, State, interstate, local same person subject requirements." 1857f. 9 remainder authorizes President, upon paramount interest do so" several exempt "compliance requirement."13 10 After enactment longer measures. become how their enforced. II 11 In February 1972, Kentucky submitted EPA. On May 31, Administrator relevant part.14 Chapter included Pollution Control Commission (Commission) Regulation AP-1, 5(1), 12 "No construct, modify, use, operate, allow physical exist person, resulting presence contaminants atmosphere, unless therefor issued currently effect."15 13 An applicant complete form supplied and, "when specifically requested Commission, include analysis characteristics, properties, volume based stack samples taken normal operating conditions."16 review application hearings.17 Permits denied does supply "information deemed enable act application,"18 when will interfere attainment maintenance standards."19 When granted, "subject terms forth embodied deem insure standards."20 Once issued, revoked modified failure permit, applicable source, located. Reg. 5(5), CA App. 122. 14 Soon approved, official wrote numerous officials responsible various Army,21 Tennessee Valley Authority (TVA),22 Atomic Energy (AEC)23 requesting apply obtain permits EPA-approved plan. responses these requests were located Each response, however, offered did information data standard form.24 15 continued press permits. October Regional sent letter all region, including had addressed requests, Commission. Setting policy agency's interpretation Act,25 administrator stated: "It Section requires deadlines plans." 57. To aid accomplishing objections, facility develop schedule "reasonable specific" State. 58. permits, reiterated position (not) .(o)ur aim encourage states assess needs additional measures."26 Ibid. 16 then brought suit District Court Western Kentucky.27 complaint sought declaratory injunctive relief Army, TVA, AEC named defendants asked order commence appropriate actions 113 directing provisions 5(1).28 cross-motions summary judgment, ordered dismissed. ex rel. Hancock Ruckelshaus, 362 F.Supp. 360 (D.C.1973). 17 Appeals affirmed, 1172 (C.A.6 1974). Like Court, F.Supp., 363 n. 3, unnecessary determine Kentucky's adequate notwithstanding possible Plan formulated use permits." F.2d, 1174-1175. examining purposes court concluded: 18 "We believe scheme accomplishment subjection commit undisputed record cooperated toward end." 1177. 19 We granted petition certiorari, 420 971, 1390, 650 resolve conflict Courts Appeals,29 now affirm. III 20 It seminal principle our law "that constitution laws made pursuance thereof supreme; respective States, controlled them." McCulloch Maryland, Wheat. 316, 426, L.Ed. 579, 606 (1819). From deduced corollary 21 "(i)t very essence supremacy remove obstacles action own sphere, modify every power vested subordinate governments, operations influence." 427, L.Ed., 606. 22 corollary, derives Supremacy Clause30 exemplified Plenary Powers Clause31 giving exclusive enclaves purchased consent activities free regulation state."32 Holmes put Johnson 254 51, 57, 41 16, 17, 65 126, 129 (1920): 23 "(T)he immunity instruments duties extends requirement desist until satisfy officer competent ." 24 Taken "old well-known rule statutes general divest pre-existing rights privileges applied sovereign"33 "without expression implication effect,"34 means where "Congress affirmatively declare instrumentalities regulation," function left free" regulation.35 Particular deference accorded rule" where, here, stake find origin Constitution, but divested favor sovereign. Because fundamental importance shielding authorization "a mandate,"36 "specific action"37 makes "clear unambiguous."38 25 Neither Clause bars touch Government. Penn Dairies Pennsylvania Milk Comm'n, 318 261, 63 617, 87 748 (1943); Alabama King & Boozer, 314 1, 9, 62 43, 45, 86 (1941), cases cited. "Here, places prohibition Government."39 regulate amount discharge. Without forbidden even measure abatement. prohibiting operation seeks 14-17, tantamount 89-93. 26 like Fifth Circuit Seeber, 502 1238, 1247-1248 (1974), finds sufficient establish discharge, condition securing disagree convinced unable derive perform issues IV 27 parties rightly agree conform schedules.40 With came end era enough volunteer cooperation officials. view replaced one limit pollutant emissions neighbors, also, case-by-case Presidential exemption, themselves completely regime promulgate gathered collection enforcement accomplished. Respondents (hereafter sometimes take gone far. While governed develop, maintains compel carry out extended States. 28 Analysis begin 118.41 language provision notable what comparison predecessor,42 state. "shall All federal, state, person." plan." requirements; identify agreement pollution, comparable expected achieve levels Given duty state-established is, another case, "whether mechanisms plans, systems, be" enforce duty. 1247. before us concluded obligated substantive requirements, opposed procedural 1177, rejects distinction between saying "requirement" 118. 29 heart argument "requirement necessarily conceded Under plan, "is mechanism (it) able Compel production concerning sources, ability prescribe monitoring techniques employed, allows source's Insure followed."43 administrative implementing said utterly meaningless.44 30 difficulty threefold. First, assumes empowered installations' Second, grant Third, unduly disregards substantial change responsibilities 1857f(a) (1964 ed., Supp. V), Supra, 171. Contrary contention study discloses degree reveals significant indications preserving "primary (its) area" intend extend subjecting authority. 31 expressly plan.45 true virtually much see 52 gathering them. Also, enabling objectives EPA.46 Nonetheless firm treat met work actual reduction differently methods devices like. This spite absence definition word "requirements" phrase pollution."47 32 110(e)(1)(A), example, authorized two years three-year deadline attaining if, timely application, determined technology" unavailable. 1857c-5(e)(1)(A). compiling familiarity technology, plain refers technologically industrial processes might available. 110(e)(2)(A) contemplates meaning "requirements," 110(f) provides one-year postponement "essential security health." 1857c-5(f)(1)(D). U.S., 80-84, 1482-1484, 746-748.48 33 Stronger term used embrace incorporated appear emergence House bill Senate amendment derived. 34 provided Emission standards."49 Report stated "direct(s) standards."50 carrying Requirements manner person. "51 "requires well sections Title I."52 35 Thus while spoke standards," amendment, enacted, "requirements." accommodating different bills formulating Conference Committee combined provisions. If, argues, taking meant thereby measures obviously embraced bill, remarkable reference reconciled difference extending regation interchangeable standards" requirements" 52, predominance version enacted,53 mention disagreement bills, more probable than empower 36 impression strengthened Report, full: 37 "The departments emissions. 38 conference substitute modifies President rather agencies."54 39 central divided mobilization pollution. agrees persists differing division 'sources respect plans criteria enforcement.' "55 maintains, 'the instances (i. e., new hazardous pollutants) establishes criteria."56 Perhaps could regulatory petitioner seeks, said, "scheme reasonable one." 1244. But issue, implications draws evaluation persuade us. drawing pollutants57 pollutants58 separate though related arguments. wanted requirement, express exclusionary language. 111(c)(1) delegate "any he enforce" new-source (§ 111(b)(4)) "except States." 1857c-6(c)(1). 114(b)(1) 1688, inspections, monitoring, entry source. 1857c-9(b)(1). Similarly, 112(d)(1) finding task, (except stationary States)." 1857c-7(d)(1). exemptions has, matter, sta fails counts. demonstrated, itself claims. portions §§ 111, 112, 114 assume possesses 111(c)(2), 112(d)(2), 114(b)(2). just providing separated 111 112 naturally treated submission separately meeting 110 devised A 110(a). delegation 114, hand, permissive, "(e)ach procedure" section. (Emphasis added.) second differentiated treatment clearly implies t arise nature types explained follows: step region compute amounts attributable Next, assigned followed date prescribed coordinating throughout ready nonfederal. concededly major therefore well. contrast, "new sources" described straightforward task. "standards performance" feasible controls standards,59 categories uniform Nation. comprehensive coordinate unnecessary, especially musbe begins, 111(e). therefore, exempted kind coordinated submitted. belies contention. recognizes source," full performance, hinder located, procedures averting problems. 110(a)(2)(D), (a)(4). 44 arguments exception fail bear weight prevail. establishment collect 45 "(f)or purpose (i) developing assisting 111(d), (or) (ii) violation 1687, 1857c-9(a). 46 Unlike doubly permissive. "shall" publish air-pollutant-emission 114(a) "may," need not, keep records, make reports, install, equipment, sample "may" That slight possility obliged addition scarcely implies, suggests, measures, schedules. Rather exempting obligation otherwise thought regulation. 47 Finally, reject 304 part: "(a) Except subsection (b) section, civil his behalf 49 "(1) (including governmental agency permitted Eleventh Amendment Constitution) who alleged (A) limitation (B) 1857h-2. 50 302(e) includes "State" "person," 1857h(e), 304(f) "For 'emission Act' timetable compliance, limitation, reason 118) 1857h-2(f). argued sue violators remedy noncompliance both origins 304. property, seek Act."60 eliminated retained "state" 302(e), parenthetical "including 118." 304, short, court. close relationship sections, standard," circumscribed, scope strongly suggests similarly limited, seems most unlikely bring district enforceable Yet exactly saying: "There explanation existence imposes obligations imposed 304."61 53 defective count. Even standing alone, read matters 304(f), assumption independently impose conflicts history. 304(a) Conference, point removed 118.62 credithe broader too indication understanding overcome assertions contrary. V 54 undoubted awareness bind States,63 conclusion traditional evinced satisfactory clarity. Should nevertheless desire Congress, amend manifest.64 Absent considered enacting fashioned compromise which, prescribed, stopped short control. 55 mean persuaded administer possessed urged although, acknowledged oral argument, EPA, acting impetus Executive Order 11752, 380 guidelines Fed.Reg. 20664 lead agencies' entering "consent agreements identical been."65 judgment 56 Affirmed. 57 STEWART REHNQUIST dissent. They substantially reasoning reverse grounds opinion. California Water Board, 200, 2022, 578, Post, decided day, consider closely 1251 seq. (1970 IV). renumbered stat. 1689, Pub.L. 91-604, 1676. 8186 (1971). 50.1(e) (1975) defines "ambient air" portion external buildings, access." guided list 108(a) 1857c-3(a). range initiative assure somewhat greater involved sources." Infra, 190-194. 731, 737 Brief 27. 81 499, V). called efforts reduce 1959, 86-365, 73 646. H.R.Rep.No.91-1146, p. (1970), U.S.Code Cong. Admin.News pp. 5356, 5360, Legislative History (Comm. Print compiled Public Works Library Congress), 894 (1974) Leg.Hist.). S.Rep.No.91-1196, Leg.Hist. 437. text appears 41, Infra. 10842, 10868-10869 (1972). Approval later vacated interested persons opportunity participate consideration Buckeye Power, Inc. 481 162 1973). resubmission publication proposed rulemaking, 10277 pertinent here. 29357. Pet. Cert. 46a. 5(1) explicitly "person" 2(32) "government entity whatsoever." 73-2099 (CA6), App.). applicability disputed. AP-1 5(2)(a), (c), 120. generally AP-10, 209-227. 5(2)(c), 5(3)(a), 121. 5(4), Army Armor Center Fort Knox, Campbell, Lexington Blue Grass Activities, Lexington-Blue Depot. Two TVA involved, Shawnee Paradise Power Plants. Paducah Gaseous Diffusion Plant enriched uranium, contract Union Carbide Corp. Since initiated contractor, Research Development Administration succeeded AEC's plant. 93-438, 88 1233; 3242, 3250 Campbell officials, asserting "current Department regulations permit," "pertinent heating plants covered your regulations" "advise(d) further desired." 48. likewise disclaimed (TVA) forms designed elicit applicants continue operations." Commission's convenience, forms. 52. referred 11507, 889 (1966-1970 Comp.), antedates Amendments, Order, cited complaint, superseded (1974). 199. "advice time, to: recommend initiate immediate discussion, already accomplished, states, regarding met, equipment constructed, corrective taken, deadlines. Your conduct records. Whenever request open-door data." 57-58. concurrence Court's ruling challenged 113, 1686, 1857c-8, empowers widespread ineffective notice, issuing plan's bringing 113(b) ruled that, Administrator's proceed discretionary. unreviewable. 701(a)(2); 304(a)(2) 1706, 1857h-2(a)(2). Our disposition reach alternative ground filed, panel "enforcement mechanisms." 1238 cert. pending, 74-851. Stastny, 382 222 (CD Cal.1972). Art. VI, cl. 2. I, 8, 17: to) exercise Legislat(ive) Places Consent Legislature Same be, Erection Forts, Magazines, Arsenals, dock-Yards, needful Buildings Mayo 319 441, 445, 1137, 1139, 1504, 1507 (1943) (footnote omitted). Mine Workers, 330 258, 272, 67 677, 686, 91 884, 902 (1947) Herron, Wall. 251, 263, 275, 279 (1874); Knight, 301, 315, 465, 473 (1840). Wittek, 337 346, 359, 69 1108, 1115, 93 1406, 1414 (1949) 447, 448, 1140, 1141, 1509 Kern-Limerick, Scurlock, 347 110, 122, 74 403, 410, 98 546, 556 (1954). Paul 371 245, 83 437, 292, (1963). Board 511 963, 968 (C.A.9 1975), rev'd grounds, 200. Pub. Util. Comm'n 355 534, 544, 78 446, 453, 470, 477 (1958). 51.1(p) schedule" dates category contained increments progress compliance." Basically phases achieved. 68-69, 1476-1477, 739-740. executive branch determines so, except exemption accordance 112(c). No due lack appropriation budgetary failed appropriation. Any period excess year, periods exceed year President's making determination. report January during preceding calendar together granting exemption." 4. Petitioner (emphasis added). 30. Several filed briefs Amici curiae recognizing installation. Amicus Curiae 4, 5, 37-38; 9. "encouraged" "preferred approach," 739-740, never mandatory closest come 6680, 6682 (1971), eliminated, 15486, interpreted modifications Compare 1857c-6(a)(2), (b), Fed.Reg., proposing 420.11(a)(4). Among eight conditions, 110(a)(2)(A)-(H), are: "(A)(i) standard, expeditiously (subject (e) section) three approval (or revision account revised standard); specifies time attained; "(B) standard(s), including, limited to, land-use transportation controls; (and) "(C) devices, methods, monitor, compile, analyze request, .." 116 1857d-1. exceptions pre-empting moving "nothing preclude deny right Or Requirement pollution; less stringent section." italicized Committee, H.R.Conf.Rep.No.91-1783, 198, entirely clear, employed synonymous limitations." 1245, 'or' disjunctive." agreed limitations; indeed argues synonymous. suggested logical 'standard pollutants' subcategory class 'requirement(s) pollution.' 20. contrary, "standards" together, compose enforce. Circuit, 1245-1246, elucidates draw support reaffirm, 116, inherent employ police pre-empted regulation, constitute enforcement. Provision basis "paramount States" imply H.R. 17255, 91st Cong., 2d Sess., 111) 938 11, 5370, S. 4358, 118(a) ) 573 12, 23, 423 Throughout requirements," interchangeably. ("requirements") ("emission standards") 111(a)(2)(D) requirements"), 545. equated installation's person's duty, feature enacted. 118(b) (1 574), 118(a). 55, Leg. Hist. 205. 304(a), 77 400, 1857h(e). H.R.Conf.Rep.91-1783, 48, Cong.& 5381, 198. replacing "responsible agencies" implicates "exempt requirement." Reports quite plainly referring Administrator's) basis. S.Rep.No. 91-1196, 423; H.R.Rep.No. 91-1146, 15, 905. merely expresses some control, instance regimen primarily administered rests Government, 33, EPA-promulgated (see 59), 1683, 1857c-6. 58 "hazardous pollutants" 1685, 1857c-7. 59 111(a)(1) "standard reflects achievable (taking into cost achieving reduction) adequately demonstrated." 1857c-6(a)(1). 60 118(b)), 574. 53, Supra. 61 Reply 15-16. of, 304(a)(1)), 704. previously enacted defining "an individual, corporation, partnership, association, municipality, political subdivision State," confirms, virtue 37, 273, 902. 64 recently reported legislation. S.Rep.No.94-717 (1976). Tr. Oral Arg. 22.

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