Document: 490 U.S. 360 109 S.Ct. 1851 104 L.Ed.2d 377 John O. MARSH, Jr., Secretary of the Army, et al., Petitioners,v.OREGON NATURAL RESOURCES COUNCIL al. No. 87-1704. Argued Jan. 9, 1989. Decided May 1, Syllabus The Elk Creek Dam is part a three-dam project designed to control water supply in Oregon's Rogue River Basin. Army Corps Engineers (Corps) completed an Environmental Impact Statement (EIS) for 1971, and, 1980, released its final Statement, Supplement 1 (FEISS). Since premier fishing ground, FEISS paid special heed quality, fish production, and angling predicted that would have no major effect on but Lost Dams turbidity might, occasion, impair fishing. After reviewing FEISS, Corps' Division Engineer decided proceed with 1985, Congress appropriated funds construction dam, now one-third completed. Respondents, four Oregon nonprofit corporations, filed action District Court enjoin Dam, claiming had violated National Policy Act 1969 (NEPA) by failing, among other things, describe adequately environmental consequences project; include "worst case analysis"; prepare second supplemental EIS review information two documents developed after 1980. first—the Cramer Memorandum—is internal memorandum, prepared Department Fish Wildlife (ODFW) biologists based draft ODFW study effects suggesting will adversely affect downstream fishing; United States Soil Conservation Service (SCS) soil survey containing might be taken indicate greater than did FEISS. denied relief all claims held, inter alia, decision not address new was reasonable. Appeals reversed, holding, defective because it complete mitigation plan analysis," regard failure EIS, SCS brought light significant probably accurate experts failed evaluate sufficient care. Held: 1. Appeals' conclusions analysis" are erroneous reasons stated Robertson v. Methow Valley Citizens Council, 332, 1835, 351. Pp. 369-370 2. need supplemented arbitrary capricious should set aside. 370-385. (a) An agency must apply "rule reason" if there remains "major Federal actio[n]" occur, quality human environment manner or extent already considered. Although expressly addressed NEPA, such duty supported NEPA's approach protection manifest concern preventing uninformed as well Council Quality regulations, both which make plain at times supplementation required. ---- - ----. (b) controlled "arbitrary capricious" standard Administrative Procedure Act, 5 U.S.C. § 706(2)(a). Respondents' supposition determination "significant" either question law ultimate fact thus, "deserves deference" incorrect since resolution this dispute involves primarily issues concerning contentions undermines FEISS' conclusions, incomplete, inconclusive, inaccurate. Because analysis requires high degree technical expertise, defer informed discretion responsible agency. However, courts without carefully record satisfying themselves has made reasoned evaluation information. 375-378. (c) conducted relevant formal Supplemental Information Report (SIR) reached capricious. scrutinized Memorandum—which reflect neutral stand ODFW's official position—and, disputing accuracy significance, hired independent who found fault methodology underlying study. SIR comment survey, in-depth studies 1974 1979, conclusion "turbidity expected differ from those escribed 1980 EISS" provided legitimate reason preparing discuss turbidity. 378-385. 832 F.2d 1489 (CA9 1987), reversed remanded. STEVENS, J., delivered opinion unanimous Court. Solicitor Gen. Charles Fried, Washington, D.C., petitioners. David A. Bricklin, Seattle, Wash., respondents. Justice STEVENS This companion It arises out controversial construct dam Basin southwest Oregon. In addition whether pursuant (NEPA), 83 Stat. 852, 42 4321 seq., contain we answered Robertson, presents completion before may continue. 2 * 1930's response recurring floods Basin, federal state agencies began planning Basin.1 See, e.g., ch. 346, 49 439. 1961 multiagency recommended three large dams: River, Applegate near confluence River. See H.R. Doc. 566, 87th Cong., 2d Sess., 7-89 (1962). following year, authorized accordance recommendations Flood Control 1962, Pub.L. 87-874, 203, 76 1192-1193. 1977, 1981. 3 Plans 238-foot-high concrete structure run-off 132 square miles 135-square-mile watershed. When full, artificial lake behind cover 1,290 acres land, 18-mile shoreline, hold 101,000 acre-feet water. cost approximately $100 million produce annual benefits almost $5 million. operated coordination nearby where center dams located. Its "multiport" structure, permit discharge any five levels, makes possible regulate, within limits, temperature, turbidity,2 volume flow. flooding along additional goals enhanced fishing, irrigation, recreation. 4 portion development acquiring 26,000 land relocating residents, county road, utilities. Acknowledging incomplete information, further project's likely developed. results these were discussed 1975. request Governor Oregon, work suspended, analyze actual nearing completion, continuing project. Following receipt statement he "extremely interested pursuing Dam,"3 (FEISS), December one Nation's grounds, angling. chapter proposed project, explained 1979 "[w]ater temperature received most attention." 33. Using computer simulation models, times, increase degrees Fahrenheit JTU's.4 Ibid. took look potential comparing study's predictions measurements became operational, "increased confidence mathematical model . reinforced [study]." Id., 33-34. Based studies, changes regime" production,5 combined fishing.6 6 Other adverse described displacement wildlife population—including 100 black-tailed deer 17 elk—and loss forest vegetation resulting inundation creation lake. 26, 38, 46. Most significantly, perfectly clear itself interfere migration spawning number anadromous fish,7 been mitigated hatchery.8 35. Finally, endangered threatened species affected 27. 7 On February 19, 1982, "subject approval Congress." App. Pet. Cert. 53a. his decision, identified measures respect habitat, "most likely" compensate habitat. 56a-57a. He concluded realized "outweigh economic costs" serve "the overall public interest." 58a. August necessary funds.9 Aug. 15, 99-88, 99 314. about creek rechanneled through dam. II 8 October corporations10 Distri t seeking Dam. Their principal NEPA failing (1) consider cumulative single EIS; (2) (3) uncertain effects; (4) 9 conducting hearing respondents' motion preliminary injunction, Judge each claims.11 628 F.Supp. 1557 (1986). first held employ "reasonableness" agency's compliance NEPA. Under review, court " 'make pragmatic judgment EIS's form, content preparation foster decision-making participation.' 1562 (quoting California Block, 690 753, 761 1982)). Applying standard, had, fact, sufficiently "hard look" individual F.Supp., 1563-1565. also required used state-of-the-art thus avoiding scientific uncertainty fill gaps worst scenario. 1567. "reasonable." 10 relied upon respondents documents. first, memorandum study, suggested second, (SCS), contained As documents, acted reasonably relying opinions discounting significance 1567-1568. At opinion, directed consolidated trial merits Rule Civil 65(a)(2), claim permanent injunction well. 11 reversed. 1987). same employed Court, contrary conclusion, holding evaluated impact entire 1497. seek do it. 'worst analysis." 1493-1494, 1496-1497. These holdings our 351, discussed. With "significant information" turbidity, epizootic12 disease; although "not conclusive," "probably accurate;" F.2d, 1494-1496. prepared. Wallace, writing dissent, issue majority's view, reasonable concluded, own expert evaluation, document inaccurate, insignificant. 1500 (opinion concurring dissenting part). III 12 subject postdecision statements NEPA.13 Preparation statements, however, satisfy Act's "action-forcing" purpose.14 does mandating achieve particular substantive results. Rather, promotes sweeping commitment "prevent eliminate damage biosphere" focusing Government attention action. 4321. By so attention, ensures act only regret too late correct. U.S., 349, S.Ct., 1845. Similarly, broad dissemination mandated permits government react meaningful time. 349-350, 1845-1846. incongruous protection, action, blinders effects, once unequivocally removed, restored prior simply proposal initial approval. TVA Hill, 437 153, 188, n. 34, 98 2279, 2299, 57 117 (1978), "it sense inapplicable some point life longer opportunity weigh versus detrimental environment," up point, "NEPA cases generally file when remaining governmental environmentally 'significant.' "15 13 reading statute (CEQ) CEQ entitled substantial deference, see 355-356, 1849; Andrus Sierra Club, 442 347, 358, 2335, 2341, 60 943 (1979), impose supplements "are circumstances concerns bearing impacts."16 implementing regulations require "new criteria considerations action."17 14 parties essential agreement governs EIS. They agree reason," they cite support st ndard explicate rule basic terms. supplement every time comes finalized.18 To otherwise render decisionmaking intractable, always awaiting updated find outdated made.19 hand, petitioners concede, take their planned even Brief Petitioners 36. Application turns value still pending process. similar instance: If show "affec[t] environment" considered, prepared.20 Cf. 4332(2)(C). 15 disagree, applied asked decision. argue decide capricious," whereas reasonableness ascertain complied law. determining proper 10(e) (APA), 706, empowers "hold unlawful aside findings, conclusions" fail conform six specified standards.21 We conclude narrow us 706(2)(A). 16 Respondents contend suffices establish or, minimum, such, review. 29. Apparently, maintain centers legal meaning term alternative, predominantly established uncontested historical facts presented administrative standard. Characterizing manner, posit strict appropriate under "in law" clause 706(2)(A) "without observance procedure provision 706(2)(D). disagree. classic example factual implicates expertise. rests accurate, turn application settled facts. fact.22 "requires level expertise," agencies." Kleppe 427 390, 412, 96 2718, 2731, 576 (1976). Baltimore Gas & Electric Co. Natural Resources Defense Inc., 462 87, 103, 103 2246, 2255, (1983) ("When examining kind deferential"). circumstances, cannot accept deference." Accordingly, long aside.23 18 observed Preserve Overton Park, Inc. Volpe, 401 402, 416, 91 814, 823, 28 136 (1971), making inquiry "must consideration factors error judgment." "be searching careful," one." specialists express conflicting views, rely qualified if, original matter, views more persuasive. context automatically reliance interest finality significance—or lack significance—of A judicial meaningless, demand ensure decisions founded "of factors." IV 19 argument written so-called "Cramer Memorandum," intraoffice 21, scientists ODFW. Memorandum 3a.24 Memorandum, turn, describing production. actually series maps 1982 illustrate composition shoreline. use managing data prediction dam's purport shed subject. Nor conditions changed responded demonstrate Report, dated January 10, 1986. Engineers, Portland District, Lake 2, p. 7a (hereinafter SIR).25 explained: "While documentation, provide can disseminate points regarding impacts forth EIS."26 20 doubt. Before commenced litigation constituted Indeed, indicates copy until lawsuit filed. probative depends largely qualification authors, fit promptly apprise concern—or persuade so—tends discount concerns. absence pretrial expression characteristics consistent view little, any, Yet, given rise prompt expressions concern, good concluding convey requiring 21 attached ignificance Memorandum: danger during fall early winter cause emergence reduce survival spring chinook fry mortality epizootic disease. Both partly speculation. 22 reported authors warming caused reduced fry; reduction stated, nor estimate due closure Instead, estimated centigrade river decrease "from 60-80%." 3a. "before sets position project." acknowledged "biological reasoning sound recognized time," then why exaggerated. 10a. stressed validated, predictive capability uncertain. subsequently recalculated one-degree adjusting 60-to-80 percent downward between 30 40 percent. 9a. Moreover, supplied variable missing would, cases, leave unchanged Discernible increases July, August, months maximum 0.6 centigrade. into account beneficial including ability peak flow periods egg incubation rearing outflow multiport structure.27 9a-10a. Given positive factors, 0.6-degree offset. 23 emphasized Appeals, Memor ndum "an unprecedented 76% 32% died spawning" speculated contributing unusual mortality.28 4a. pointing epizootics evidence prespawning closing inconsistent hypothesis Memorandum. 10a-11a. addition, noted certain diseased organisms thought unusually rates Dam.29 11a. 24 present proffered experts. premised study.30 think "adopted Dam" argued raised "our continue remain neutral."31 disclosed apparently serious abandon position. 25 expressed demonstrating watershed different assumed indicated 1495. believe logging road building increased disturbance higher forecast latter 1980's logging, "watershed recovery appears occurred levels back 1970's." 12a. implications less concern. using models. JTU's result verified result. samples site drawing conclusions. 18-19, 21-22, surely 26 There little doubt that, regardless eventual assessment hard evidence. having done determined careful exaggerated importance, dictates unnecessary. Even another decisionmaker result, "a judgment" accurate. demonstrates, perhaps disputable, capricious." 27 accordingly remanded proceedings opinion. ordered. Engineers: "Lying corner drains 5,060 mile area Jackson, Josephine, Coos, Klamath Counties, small portions Del Norte Siskiyou Counties California. passes vastly settings course journey upper reaches Crater Pacific Ocean Gold Beach, climatological basin frequently experienced." (Dec. 1980) FEISS). "Turbidity optical property causes scattered absorbed rather transmitted straight lines. Turbidity presence suspended matter." E, 3. commonly measured Jackson Unit (JTU). "A general thumb g ideline JTU limit drinking water, impairs flyfishing, methods, long-term 50 alters behavior." 21. Letter Atiyeh reprinted id., F. supra. sediments production clogging injuring gill structures, causing abrasions, reducing food supply, difficult locate what available visibility. 37. nonetheless concluded: "Much heavy materials settle reservoir siltation expected. Average "No regime Minor reach normal years lower multi-level withdrawal built minimize production." follows: "Increases magnitude extended duration operation could salmonids lures flies impaired Fly-fishing resident trout summer steelhead vulnerable fly-fishing season runs July October. According guides [Oregon Wildlife] biologists, success declines greater. methods productive exceeds JTU. fisheries winter, short periods. conditions, ever exceed JTUs fall." "salmonid" soft-finned, elongated upturned vertebrae. Webster's Third International Dictionary 2004 (1981). Salmon common salmonids. "Anadromous spend open sea, return adults freshwater streams spawn." Puyallup Tribe, Washington Game Dept., 433 165, 168, 97 2616, 2619, 53 667 (1977). FEISS: "Cole M. Rivers Hatchery constructed mitigate fish-spawning habitat Creek, rainbow kokanee stocking reservoirs lost hatchery located 0.2 design capacity 355,000 pounds salmon 71,000 kokanee. Production utilize total capacity. ." accompanying legislation Senate Appropriations Committee "included specific language directing acting Chief award contract main S.Rep. 99-82, (1985). herein, Guides Packers Association, Fly-fishers, Association. complaint included Wild Scenic (WASRA), 1278, Freedom (FOIA), 552. hearing, withdrew WASRA claim. order facilitate claims, postponed FOIA later date. considering entry 54(b) appellate disease affects many animals 1496, 5. provides pertinent part: "The authorizes directs fullest shall— "(C) recommendation report proposals actions significantly affecting environment, detailed on— "(i) "(ii) avoided implemented, "(iii) alternatives "(iv) relationship local short-term uses man's maintenance enhancement long-t rm productivity, "(v) irreversible irretrievable commitments resources involved implemented." 853, 4332. Andreen, Pursuit Promise: Role Executive Oversight Implementation Policy, 64 Ind.L.J. 205, 247-248 (1989) (Supplementation "[t]he efficacy process called publication statement"). "action forcing" introduced Senate's 409, 18, 2730 (1976), refers notion "infused ongoing programs Government," 115 Cong.Rec. 40416 (1969) (remarks Sen. Jackson). CFR 1500.1(a) (1987) ("Section 102(2) contains 'action-forcing' provisions sure according letter spirit Act"). proposition, cited Fund TVA, 468 1164 (CA6 1972), upheld barring continued Little Tennessee filing adequate notwithstanding initially approved effective date regulation provides, "Agencies: "(1) Shall if: concerns; impacts. "(2) determines purposes furthered doing so." 1502.9(c) (1987). "Supplements. whenever 1502.9(c). prepared, circulated supplement. 33 230.11(b) Compare Warm Springs Task Force Gribble, 621 1017, 1024 (cited 32), Stop H-3 Assn. Dole, 740 1442, 1463-1464 1984) (same), cert. denied, 471 1108, 105 2344, 85 859 (1985), Cuomo NRC, 249 U.S.App.D.C. 54, 57, 772 972, 975 (1985) (per curiam) Reply 14), Friends FERC, 231 329, 345, 720 93, (same). contexts observed: 'Administrative creates gap closed promulgated. coming down litigants rehearing matter circumstance arisen, trend observed, discovered, hope consummated reopening.' Vermont Yankee Nuclear Power Corp. 435 519, 554-555, 1197, 1211-1212, 55 460 (1978) ICC Jersey City, 322 503, 514, 1129, 1134, 88 L.Ed. 1420 (1944)). Northern Lines Merger Cases, 396 491, 521, 90 708, 723, 700 (1970) define "significantly" 'Significantly' intensity: "(a) Context. means analyzed several society whole (human, national), region, interests, locality. Significance varies setting "(b) Intensity. severity impact. considered Impacts adverse. exist believes balance beneficial. health safety. "(3) Unique geographic proximity historic cultural resources, park lands, prime farmlands, wetlands, wild scenic rivers, ecologically critical areas. "(4) highly controversial. "(5) involve unique unknown risks. "(6) precedent future represents ecision principle consideration. "(7) Whether related individually insignificant cumulatively "(8) districts, sites, highways, objects listed eligible listing Register Historic Places destruction scientific, cultural, resources. "(9) "(10) threatens violation Federal, State, 1508.27 Title 706(2) shall be— "(A) arbitrary, capricious, abuse discretion, law; "(B) constitutional right, power, privilege, immunity; excess statutory jurisdiction, authority, limitations, right; "(D) "(E) unsupported sections 556 557 title reviewed statute; "(F) unwarranted de novo court. "In foregoing determinations, parts party, prejudicial error." controversy §§ 706(2)(E) 706(2)(F), involving rulemaking adjudication. exceeded authority 706(2)(B) 706(2)(C). Of course, reviews APA, involved. Otherwise, "no apply" basis APA 410, 820, (1971) (discussing 701(a)(2)). note Courts Ninth Circuit articulated adopted see, Club Froehlke, 816 210 (CA5 1987); Enos Marsh, 769 1363, 1373 1985); Federation 721 767, 782 (CA11 1983); Massachusetts Watt, 716 946, 948 (CA1 Monarch Chemical Works, Thone, 604 1083, 1087-1088 (CA8 1979), upset well-settled doctrine. Circuits. Wisconsin Weinberger, 745 417 (CA7 (adopting standard). recognized, difference standards great consequence. Manasota-88, Thomas, 799 687, 692, 1986) ("As practical differences 'reasonableness' 'arbitrary capricious' often discern"); Road Alliance, 764 445, 449 1985) ("[W]e how much 'abuse discretion' 'unreasonable' "), 475 1055, 106 1283, 89 590 today reworking long-established brief Page references appendix brief. provide: "Whenever clearly understood [it] EPA." 230.11(d) respect, floodflows partially fully offset negative survival," "further intake tower regulate temperatures." sent 1985 supports system temperature. letter, reporting attempt asserts: experimental temperatures last November, conjunction improved stage. lowest spawning, yet highest abundance record. low density spawners, contributed eggs. know October-November release previous closure." Dr. R. Donaldson Admin. Record, 109. identifiable nexus epizootics: "We suspect them documented previously." Wallace possibility fish, epizootics. 1489, 1501 1987) 29 "[a]nglers complained flows 'washed out' favorite riffles fly areas deep swift." September spawn gravel bars chances redds dewatered February-April." unavoidable suggest been, be, dewatering minimized outflow. experts, agreeing "contains considerable statistical inaccuracies, over-extension undue biological speculation detracts very laudable professional effort." S.B. Mathews, Critique Fisheries Evaluation 112. providing udy, comparisons predam postdam "is yield conclusive results." L. Calvin, Evaluation, Phase I Completion 114. 31 "Harry, all-time point. Anglers becoming increasingly frustrated runs, shortened seasons smaller bag limits. vocal. feel stands lose credibility knowing adult returns Commission aware middle road." 5a.

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