Document: 430 U.S. 112 97 S.Ct. 965 51 L.Ed.2d 204 E. I. du PONT de NEMOURS AND COMPANY et al., Petitioners,v.Russell TRAIN, Administrator, Environmental Protection Agency, al. Petitioners, v. Russell Agency. Petitioner, Nos. 75-978, 75-1473 and 75-1705. Argued Dec. 8, 1976. Decided Feb. 23, 1977. Syllabus The Federal Water Pollution Control Act Amendments of 1972 (Amendments) authorized a series steps to be taken eliminate all discharges pollutants into the Nation's waters by 1985. first are described in § 304 (as added Amendments), which directs Administrator Agency (EPA) (the agency charged under 101 with administering Amendments) develop publish various kinds technical data as guidelines for carrying out responsibilities Amendments. Section 301(a) proscribes discharge any pollutant unless complies certain sections, including 301 itself, 306, 402. 301(b) defines effluent limitations that must achieved existing "point sources" (conveyances from discharged) two stages: (1) No later than July 1, 1977, such point sources require application "best practicable control technology currently available," (2) 1983, "categories classes available economically achievable." 301(c) authorizes EPA grant variances 1983 source permit is filed after 306(b) regulations establishing national standards new within each category discharging pollutants, 306(e) makes it unlawful operate violation applicable standard. 402 issue permits individual sources, also review approve plan State desiring administer its own program. 509(b)(1)(E) provides Administrator's action approving or promulgating limitation s 306 may had courts appeals. EPA, empowered 501(a) make "such necessary carry out" functions, promulgated industrywide imposing three sets on petitioner inorganic chemical manufacturers' waters. impose progressively higher levels (a) (b) third set imposes limits "new constructed future. Petitioner manufacturers both suit District Court aside petition Appeals, contending not an independent authority setting regulation but merely description plant basis during permit-issuance process, only issuance enforceable plants. Appeals affirmed Court's dismissal ground exclusive jurisdiction consider validity regulations, held was "presumptively applicable" standards, required provide variance procedure sources. Held : 1. has limit plants through forth uniform 1977 provided some allowance made variations Pp. 126-136. Both language legislative history support view adopted they based primarily categories, take form regulations. 126-130. clear aimed at guiding discretion issuers plants, requires survey pollution industry assess effectiveness, then describe methodology intends use determine particular 130-132. (c) above construction supported §§ 101(d) 501(a). 132-133. 2. unambiguously court appeals 301, reference intended denial 301(c). Since typically same proceeding new-source there no doubt Congress forum. 136-137. 3. Variances unable comply issued authorized. clearly absolute prohibitions, indicated word "standards" well preferred standard one "permitting pollutants." 137-139. No. 528 F.2d 1136, affirmed; 75-1705, 541 1018, part reversed part. Robert C. Barnard, Washington, D. C., duPont Nemours & Co. others. Daniel M. Friedman, Train, etc., Mr. Justice STEVENS delivered opinion Court. 1 Inorganic manufacturing operated eight petitioners 75-978 therefore meaning (Act), amended 2 1972, 86 Stat. 816, 33 U.S.C. 1251 seq. (1970 ed., Supp. V).1 Agency2 industry-wide precise petitioners' discharges. respectively. future.3 These cases present important questions statutory construction: whether limiting plants; admittedly 509 concerning (3) allow 3 As preface our discussion these questions, we summarize relevant portions statute followed challenged Statute 4 statute, enacted October 18, achieve goal eliminating 1985, 101(a)(1). 5 304, guidance imposed other sections Act. Thus, 60 days, 120 180 days date enactment, promulgate assist States developing programs pursuant 304(h), (f), (g). Within 270 he information used formulating 306. 304(c). And year providing 304(b)4 goes great detail contents They identify degree reduction attainable best class "specify factors account" determining measures classes. A list considered follows. directed publish, year, elaborate criteria water quality accurately reflecting most current scientific knowledge, restore maintain quality. 304(a). title describes "information guidelines" portion statute. 6 captioned "effluent limitations."5 compliance enumerated this case 402.6 brief about necessary. 7 4027 him serve "to transform generally . obligations (including timetable compliance) discharger(s) ." California ex rel. Resources Board, 426 200, 205, 96 2022, 2025, 48 578. companies' position litigation It noteworthy, however, although section imposition permits, itself does mandate either method prescribing limitations. 8 3068 90 categories and, thereafter, performance category. contains provision exceptions contrary, subsection (e) expressly effective date. shall reflect greatest achievable demonstrated technology. 9 stages. By available; achievable. become sources"; phrase omitted While states "shall achieved," fails state who will establish 10 301(e) established applied 11 To summarize, achievement requiring practicable" available" refers definition terms. publication "regulations, limitations." Finally, Nowhere told limitations, precisely how relate permits. Regulations 12 deadlines were too ambitious meet. For reason, adopting somewhat different apparently contemplated Specifically, appear, did adopt before defining This illustrates approach implementing 13 began engaging private contractor prepare Development Document. document detailed study industry. divided categories. category, measured exemplary investigated. Based information, data, economic studies, determination could mandated public circulated interested persons. formed guideline" receiving comment proposed divide 22 subcategories. subcategory, numerical pollutants.9 subcategory contain clause, limitations.10 14 Eight companies petitions United Fourth Circuit regulations.11 rejected their challenge EPA's precise, single-number held, plants.12 We granted certiorari order scope existing-source 425 933, 1662, 174; 947, 3165, 49 1183. Government's cross-petition ruling presumptively applicable. Ibid. convenience, refer "petitioners." 15 broad outlines parties' respective theories stated briefly. contends 402, view, simply incorporate across-the-board except limited allowed themselves 304(b) guidelines, according guide effluent-limitation Because process proved more time consuming assumed when two-stage condensed stages single regulation.13 16 In contrast, contend regulation. Instead, seen process. Under function issuer 17 jurisdictional subsidiary critical question power 509(b)(1), 892, 1369(b)(1), "(r)eview (E) 301" On hand, judicial guidelines. If correct limitation(s) 301," directly reviewable Appeals. can probably brought Court, if anywhere.14 intertwined regulations.15 18 * think key problem. limitation, particular, leaves Subsection (b)(2)(A) "application class." (Emphasis added.) elimination technologically sources." "language difficult reconcile issued." American Meat Institute 526 442, 450 (C.A.7 1975). thus focuses characteristics "category class" rather sources.16 Normally, classwide determinations would regulation, course issuing member class.17 19 find Different respect Here, speaks sources," Nothing elsewhere Act, suggests radical difference mechanism deadlines. See Iron Steel 1027, 1042 n.32 (C.A.3 instance, indication play role Moreover, highly anomalous standards18 while administrative record magnitude character involved almost inconceivable have duplicate instance courts. conclude so long done clause limitations.19 20 tied answer question, passive voice establishment But parts leave little score. "(f)or purpose revising shall" guideline regulations; judicial-review section, "the .." infra, us resolve ambiguity score favor Administrator. "(e)xcept otherwise Act." sum, supports 21 reading 301. Senate Report "pursuant 301(b)(1)(A), 304(b)" base level given "(i)n should per unit production defined level." S.Rep. 92-414, p. 50 (1971), Leg.Hist. 1468;20 U.S.Code Cong. Admin.News pp. 3668, 3716. Conference impact (will made) distinguished determination." Sen.Conf.Rep. 92-1236, 121 (1972), 304; 3799. presenting Senate, Senator Muskie, perhaps Act's primary author, emphasized importance uniformity He explained focus Regarding requirement contained technology" stated: "The modification 304(b)(1) clarify what meant term 'practicable.' balancing test between total cost benefits where additional wholly proportion costs achieving marginal 23 Conferees agreed upon cost-benefit analysis subject avoid location ascertain controls, controls community." 118 Cong.Rec. 33696 170 (emphasis added). that: 24 intend 33697 172. 25 26 What, then, guidelines? noted earlier, amount methods classes." Act."21 read it, pollution-control effectiveness. complexity task prevented deadline,22 valuable issuers, industry, public, prior regulations.23 27 Our 501(a), gives 101(d), charges duty construing authority, Harlan wrote connection similar problem: 28 " '(C)onsiderations feasibility practicality certainly germane' issues us. Bowles Willingham, (321 503, 517, 64 641, 648, 88 L.Ed. 892). cannot, circumstances, inadequate reasonable effectiveness purposes acted." Permian Basin Area Rate Cases, 390 747, 777, 1344, 1365, 312. 29 place impossible burden EPA. give consideration circumstances 42,000 dischargers Brief Respondents 30 n.22, advance deadline install equipment. do believe failed conspicuously needed goals. numerous provisions fragments positions. conclusive, served discussing them detail. satisfied consistent rest scheme.24 Language recently employed another involving applies equally case: 31 "We Agency's interpretation 'correct,' extent said complete assurance complex 'correct' one. Given conclusion, facts administration undoubtedly been reliance parties affected whatever sufficiently preclude substituting judgment Agency." Train Natural Def. Council, 421 60, 87, 95 1470, 1485, 43 731.25 32 When, litigation, thorough, scholarly opinions written finest judges, received overwhelming Courts reluctant indeed upset judgment. examination confirms correctness statute.26 Consequently, hold II 34 holding authorize necessarily resolves well. For, already pointed out, 509(b)(1) 302, person district resides transacts business 35 Petitioners argued argument unpersuasive reasons addition those discussed Part I opinion. First, 509, referred specific subsections presumably specifically mentioned More importantly, produce truly perverse situation actions denying direct basic governing actions. F.2d, 452. 36 regard authorizing forum.27 III 37 remaining concerns "regulations 306(b)(1)(B). "standard performance" reflects determines technology, including, practicable, permitting 306(a)(1). standard, "(t)he distinguish among classes, types, sizes type batch continuous)." 306(b)(2). House states, "that class, categories." H.R.Rep. 92-911, 111 798. held: 38 "Neither nor rule presumptive applicability remand come forward escape Du Pont II, 1028. 39 court's rationale "(p)rovisions variances, modifications, appropriate regulatory process." 40 thinks process; prohibitions. implies much. So "unlawful owner operator source." striking contrast 301(c), inappropriate insure "maximum feasible 58 1476.28 41 That 1018 reversed. aspects, judgments affirmed. 42 ordered. POWELL took decision cases. source" "any discernible, confined discrete conveyance, discharged." 502(14), 1362(14) V). Throughout interchangeably itself. scheme follows: "Such restrictions facilitate enforcement making unnecessary work backward overpolluted body responsible abated. addition, discharger's now against strict technology-based specified treatment conform, derived polluters collectively conform." 204-205, 2024, 578 (footnotes omitted). provides: "(b) shall, consultation agencies persons, enactment title, least annually revise, appropriate, Such "(1)(A) identify, terms amounts constituents chemical, physical, biological (other publicly owned works); "(B) specify account practices works) Factors relating assessment (b)(1) include relation application, age equipment facilities involved, employed, engineering aspects types techniques, changes, non-water environmental energy requirements), deems appropriate; "(2)(A) innovations, operating methods, alternatives (b)(2) reduction, "(3) taking 851, 1314(b) pertinent part: "Sec. Except 307, 318, 404 unlawful. objective works, (i) result further progress toward determined accordance 304(b)(2) finds, developed 315), "(c) modify requirements showing satisfactory modified represent maximum capability operator; pollutants. "(d) Any paragraph reviewed every five years revised paragraph. "(e) Effluent 302 844, 1311 There section. 402(a)(1) "Except 318 may, opportunity hearing, pollutant, combination notwithstanding 301(a), condition meet 308, 403 requirements, conditions 880, 1342(a)(1) 402(b), delegate States, retains withdraw approval program, 402(c)(3) veto 402(d). 402(k), deemed Twenty-seven programs. 854, 1316 V), "(a) section: "(1) 'standard performance' means processes, alternatives, "(b)(1) soon included subparagraph (A) paragraph, propose "(2) continuous). apply States. After Some subcategories E.g., C.F.R. 415.70-415.76 (1976). Other less stringent restrictions. producing titanium dioxide chloride reduce average daily dissolved iron 0.72 pounds thousand product. cut half 415.220-415.225 "either stringent" "factors applied, related discharger fundamentally considered" See, e.g., n.9, supra, 415.72 415.222 (1976), closely see 124-125, challenging 383 F.Supp. 1244 (WD Va.1974), aff'd, Cir., 1136 (CA4 1975) (Du ). separate opinions. I, n.11, supra. standards. last Term, 174. II. petition, consolidated cross-petition, ordered tandem Issues calls passage. judicially timetable. Defense Inc. 166 U.S.App.D.C. 312, 510 692 (1975). Although Eighth court, Administrative Procedure CPC Int'l, 515 1032, 1038 (1975) (CPC suggested, even might still ancillary because close relationship resolved ways. Only Circuit, issues, accepted position. lacked Tenth Petroleum 540 1023 majority position, Third 1027 (1975); Seventh 442 Columbia Frozen Food 176 105, 539 107 Second Hooker Chemicals Plastics Corp. 537 620 exceed. Even agreement take. commentators Parenteau Tauman, Limitations Controversy, Ecology L.Q. (1976); Note, Judicial Maelstrom Waters, 45 Ford.L.Rev. 625 Comment, Application Guidelines Industrial Polluters, Houst.L.Rev. 348 Effective National Regulation Point Sources Ga.L.Rev. 983 Circuits significant appear. concluded: "Under ruling, unto substantially theory adopted. practical resulting often research conclusions Appeals." 1329, 1331-1332, n.1 (C.A.8 1976) Institute, 449 n.14. occasion decided Term suggestive answer. "serv(ing) U.S., S.Ct., 2025 implied general issued. 1029. Furthermore, shows plant. 1037 n.15. achievable" Otherwise, "economically beyond owner's "economic capability." 509(b)(1)(A) "intended bifurcated," forum 1141. acknowledged problems potential inconsistent rulings created bifurcated review. 1332 n.1. unlikely review, likely forums, depending 1983. agree 1028, proper premature. All citations Committee Public Works, Legislative History prepared Policy Division Congressional Research Service Library (Comm. Print 1973). rely heavily selected following passage 301: "It Committee's intention 301(b)(1)(A) interpret 'best practicable' industries specifying implemented January 1976 (now 1977). industrial expects number account. size processes applying controls. effect, define range levels, plant, cited case, level. sizes, ages, category." 1468; construed discussed, found language, fairly size, age, normally subcategory. response problem discretion. Accord, U.S.App.D.C., 128-129, 130-131. constitute procedural error, invalidate since achieved, n.23, prejudice shown. functions. promulgation Second, Third, afforded greater input final giving notice functions practice obtaining development furnish lacking expertise informing methods. 1463. Document supporting materials. 1037-1041; 450-452; 114-129, 116-131. noted, seem assume existence apart sectio(n) Similarly, 509(b), provision, separately "(E) (F) 402." Likewise, 505(f) limitation," citizen-enforcement Act," "(6) thereof recognizes distinction instance: (House) immediately bill. Nevertheless, unreasonable delay until necessary." 126 813. decisions thoroughly arguments persuasive. contrary these: impressed differences explicitly dif- ferences believed. stressed "standards," 1038. 316(b) "(a)ny 301." lack difficulty drafting heated debate able provides. believed "creation sense 1040-1041. disagree. "(A) just ensure grantors guidelines." 1041. especially large numbers promulgated. During interim period, inconsistency vetoing permit. (Moreover, disagree Circuit's contention object being outside 402(d)(2), 1038-1039. 304(h) permits; permit" violated guidelines.) unconvinced violates congressional intent major controlling pollution. receive deference contemporaneous fact initial notices rulemaking 304(b), authority. evidence originally 128 n.6, 130 n.6. fact, letter urging President sign bill fully incorporates central Administration's proposal groups ultimately system." 36777 149 entitled contemporaneous, "having mind nature statutes subjects regulate, obscurity unique experience dealing conditions." n.16. exemplifies wisdom allowing mature full many subsidiary, troubling, raised vastly simplified task, having underscored reasonableness view. principal proposition ultimate proceed aggregate effect thousands proceedings without surrendering over attach significance "deemed compliance, 309 federal section) 505 citizen section), 402(k). plainly cannot deviations promulgated, "upon 402(a)(1); performance. 306(e). 402(k) seems insulate holders changes period relieve litigate strict. short, serves finality.

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