Document: 463 U.S. 680 103 S.Ct. 3274 77 L.Ed.2d 938 William D. RUCKELSHAUS, Administrator, Environmental Protection Agency, Petitioner,v.SIERRA CLUB et al. No. 82-242. Argued April 25, 1983. Decided July 1, Syllabus Section 307(f) of the Clean Air Act provides that in a proceeding for judicial review an emission standard promulgated under Act, court may award reasonable attorney's fees "whenever it determines such is appropriate." Respondents filed petitions Court Appeals Agency's standards limiting sulfur dioxide by coal-burning powerplants. The rejected respondents' claims challenging validity standards. Subsequently, granted request incurred proceedings, awarding specified amount to each respondent. Held: Absent some degree success on merits claimant, not "appropriate" federal § 307(f). Pp. 682-694. (a) There nothing indicate Congress meant abandon historic fee-shifting principles and intuitive notions fairness when enacted section. Instead, appears term modifies but does completely reject traditional rule fee claimant must "prevail" before recover fees. This result most interpretation congressional intent. 682-686. (b) legislative history support argument section was intended as radical departure from rule. Moreover, relation between 304(d), which like "appropriate," refutes argument, since if were accepted would mean unsuccessful suit brought 304 private citizen against business alleged violations winning defendant could be required pay losing plaintiff's fees, certainly did intend. 686-693. 217 U.S.App.D.C. 180, 672 F.2d 33 (1982), 221 450, 684 972 reversed. Kathryn A. Oberly, Washington, D.C., petitioner. Harold R. Tyler, Jr., New York City, respondents. Justice REHNQUIST delivered opinion Court. 1 In 1979, following year study public comment, Agency (EPA) power plants. Both respondents this case—the Defense Fund (EDF) Sierra Club—filed agency's action United States District Columbia. EDF argued EPA tainted ex parte contacts with representatives industry, while Club contended lacked authority issue type did. lengthy opinion, all both Club. v. Costle, 657 298 (CADC 1981). 2 Notwithstanding their lack merits, action. They relied 42 U.S.C. 7607(f), permits certain proceedings [the court] that, despite failure obtain any relief they requested, them receive contributions goals Act. agreed respondents, ultimately $45,000 $46,000 EDF. Gorsuch, 1982); 1982). We certiorari, --- ----, 254, 74 198 consider important question decided Appeals.1 3 * presented case whether within meaning party achieved no its claims. conclude language section, read light other countries, requires conclusion obtained becomes eligible only that: 4 "In costs litigation (including attorney expert witness fees) whenever 7607(f) (emphasis added). 5 It difficult draw meaningful guidance 307(f)'s use word means "specially suitable: fit, proper." Webster's Third International Dictionary.2 Obviously, order decide should awarded 307(f), first what suitable," "fit," or "proper" for. alone begin answer question, application provision thus reference sources, including rules developed different contexts. As demonstrated below, inquiry into these sources shows requiring defendant, successful issues, legal long-standing adhered wide range B 6 Our basic point "American Rule," see Alyeska Pipeline Co. Wilderness Society, 421 240, 247, 95 1612, 1616, 44 141 (1975) added), even "the prevailing litigant ordinarily entitled collect attorneys' loser." clear generations American judges, lawyers, legislators, departure, regard quite "inappropriate" "loser" "prevailing litigant." Similarly, has chosen depart statute, virtually every one more than 150 existing provisions predicates awards claimant; statutes contain varying precise necessary party,"3 "substantially prevailing" party,4 "successful"5—the consistent complete will justify shifting party. Also instructive Congress' reaction draft Equal Access permitted parties Government, "in interest justice," S. 2354, 95th Cong., 2d Sess. (1978). provision, criticized Department "radical" principles, Congress.6 Finally, English courts have counsel litigants 750 years, Alyeska, supra, at n. 18, S.Ct., never gone so far force vindicated expenses. 7 While foregoing treatments differ many respects, reflect consistent, established rule: need adversary's uniform acceptance reflects, least part, litigants. Put simply, ordinary conceptions just returns idea who wrongly charges someone law able wholly it. Before we abandoned principle fees—rooted widely manifested numerous contexts—a showing required.7 8 relevant deciding accept reading urged fact affects States, well individuals. Except extent waived immunity, Government immune 267-268, 42, 1626, 42. Waivers immunity "construed strictly favor sovereign," McMahon 342 27, 72 17, 19, 96 L.Ed. 268 (1951), "enlarge[d] . beyond requires" Eastern Transp. 272 675, 686, 47 289, 291, 71 472 (1927). determining sorts are care taken "enlarge" waiver fair requires. 9 Given foregoing, fail find requisite indication believe Congressional II 10 make relatively little effort dispute much devoting principal attention Respondents' arguments rest primarily excerpt 1977 House Report 307(f):8 11 "The committee bill also contains express attorneys [sic] two situations. 307 act appropriate [sic]. 12 litigation, purposes discourage frivolous encourage assure proper implementation administration otherwise serve interest. intend court's discretion restricted cases seeking 'prevailing party.' fact, amendment expressly committee, largely grounds set forth NRDC EPA, 484 1331, 1388 (1st Cir.1973)" H.R.Rep. 95-294, 1st 337 (1977) U.S.Code Cong. & Admin.News 1977, p. 1416 13 Senate Report's rejection party" ascertain understood mean. When enacted, had been interpreted variety rather narrow ways. See, e.g., Taylor Safeway Stores, 524 263, 273 (CA10 1975); Pearson Western Electric Co., 542 1150 1976); Best Medium Pub. National Insider, Inc., 385 384 (CA7) (the " party' prevails substantial part litigation"), aff'g, 259 F.Supp. 433 (1967); Dobbins Local 212, 292 413, 450 (SD Ohio 1968); Goodall Mason, 419 980 (ED Va.1976); Clanton Allied Chemical Corp., 409 282 Va.1976). Some courts—although, sure, minority—denied plaintiffs formal granting relief, others showings success, "substantial" success. Indeed, today, require party," succeed "central issue," Coen Harrison County School Bd., 638 24, 26 (CA5 1981), "essentially succeed[ ] obtaining he seeks his merits," Bagby Beal, 606 411, 415 (CA3 1979). See Hensley Eckert, 461 ---- 8, 1933, 1939 76 40 (1983). 14 These various interpretations provide ready, sensible, explanation discussion expand class partially parties—parties achieving major success.9 differently, enacting eliminate restrictive readings adopted cited above necessity case-by-case scrutiny prevailed "essentially" issues." 15 view "when appropriate" confirmed forerunner 307, 36 252: "(d) shall party's participation proceeding, easonable costs." 252, (1976). 16 described, history, follows: 17 "This amends law. party, proceeding. Where cost."10 18 distinction drawn passages that—as discussed fairly indicated—Congress "partially things, former encompassing limited category lawsuits. thought extend part. 19 this, statement [not] party,' little, any, theory Rather, sentence, read, prevail those full: rejects Pearson, cases, questions constitutes "central" issue, "essential" Report, however, give real long-established winners losers suing them.11 20 straightforward finds 1331 (CA1 1973), Report. There, considered denied 304(d) "because issues adversely petitioners." rejected, because "petitioners several respects; penalized having advanced points lesser weight." Needless say, holding still opponent. decision view, above, adoption permit parties. After all, facts EPA. 21 aspects history. For example, regarded narrower which, mentioned A section-by-section analysis 252 stated "conference report [setting out current standard] contained provision" 252. Section-by-Section Analysis, 37. Yet, quotation 689, shows, parties, "narrower" strongly suggests "narrow" hardly comports somewhat well-settled 22 addition, §§ instructive. Like "appropriate." Importantly, suits violation requirements clear, explained whatever general apply similar applies 304(d). Northcross Memphis Bd. Ed., 412 427, 93 2201, 37 48 (1973), held pari passu, 1617 identical 2000a-3(b). Hensley, 1939, generally applicable authorized Bankamerica Corp. 2266, 2271, 75 Thus, principle, circumstances 23 available encounters yet further difficulties. businesses citizen. Such frequently involve novel theories, theories rejected. protracted payment expensive associated money manpower, refuting charge proving compliance detail defendant's reward second lawyer's bill—this payable accused violating simply do without clearly saying so.12 24 shown margin,13 central purpose check 'multiplicity [potentially meritless] suits," feared follow authorization seen "unprecedented" innovation. One might imagine surprise legislators voted instrument deterring meritless upon learning instead employed fund suits. III 25 conclude, therefore, attain persuaded result—which sensitive, difficult, highly subjective determinations—it said plainer here. Hence, hold absent Accordingly, judgment Reversed. 27 STEVENS, whom BRENNAN, MARSHALL, BLACKMUN join, dissenting. 28 Even though practice "novel, costly, intuitively unsatisfying," ante, 687, unusual government fees; indeed, largest governments engage—criminal litigation—they routinely.1 challenge rulemaking Agency. Today holds matter how exceptional be, made But deliberately used differs standard, carefully appeals discretionary broader If reads statute strong predisposition Rule" endorsed Service (1975), repeatedly thereafter, really plain—and engrafts statute. 29 gives dimensional description role played Fund, Costle litigation: failed requested. examine uniquely complex thoroughly illuminate considerations 30 millions tons emitted plants constitute source air pollution States. method reducing emissions install flue gas desulfurization equipment; another burn coal lower content. amended governing newly-built modified stationary amendments raised significant regarding control methods new levels across Nation. 111, amended, establish setting ceiling plant achieve "percentage reduction" resulted untreated fuels.2 controversial 1.2 pounds/MBTU 90% reduction emissions, given content used, except using sufficiently low reduce 70% long resulting exceed .6 pounds/MBTU.3 31 EPA's interrelated. engage balancing factors: "a performance limitation percentage achievable through best technological system continuous eduction (taking consideration cost reduction, nonair quality health environmental impact energy requirements) Administrator adequately demonstrated." 7411(a)(1)(C) (1976 ed., Supp. V). projections aggregate nationwide combinations requirements. Its evaluation proposed understanding state technology, likelihood future improvements, availability types differing content.4 32 number Columbia Circuit. wrote, "On appeal challenges revised NSPS ["new standards"] groups contend too lax electric utilities rigorous." 298, 312 (1981). Eighty-seven utility companies industry organizations challenged strictness requirement 0.03 limit particulate matter. On hand, State California Resources Board opposed variable contending record procedural grounds, adopt stringent after close comment period. Intervenor-respondents included utilities, briefs defending ceiling, Coal Association, EDF's claim invalid due impropriety. complex, interrelated contentions immense task. 34 formulating regulation, prepared 120 studies, collected 400 items literature, received almost 1,400 comments, written 650 letters 200 interagency memoranda, over 50 meetings substantive telephone conversations public, conducted four days hearings. accompanying regulation took up 43 pages triple columns single-spaced type. Approximately 700 submitted case. joint appendix 5,620 pages, bound volumes. certified index listed 2,520 submissions." 33, (1982).5 35 case, although entirely reasons EPA; utilities. 256 printed slip form 132 Federal Reporter, ended short conclusion: reasonable." F.2d, 410.6 unanimously respondents.7 concluded gave addressed. then substantially contributed "While occasions non-prevailing meet criteria exceptional, occasion." 39 (1982).8 Club, noted, brief advocate opposition conceded critically important. Had debated, moreover, outcome related appropriateness feasibility affected. pressed intensely technologically infeasible antipollution less aired Club's participation. parts travel alone, education informed decisions parts." Id., 41.9 38 parties," either whole difference litigation. "It absolutely essential dimension articulate spokesmen industrial interests. process involved technical data, policy. complexity subject matter, competent interests, fatally skewed." Ibid. disputed Appeals, contest reasonableness apparently assert ever improperly exercised case.10 asserts construed forbid nonprevailing majority accepts contention. demonstrate Government's position 41 straightforward. provides: unquestionably "judicial under" 307. That why believed therefore complied plain correctly observed, crucially wording authorizing costs.11 Most prevail" fees.12 contrast text supports conclusive 45 Nevertheless today refer parties" actually parties." invoking rule" opponents, asserting "virtually claimant." Ante, 684. Factually, Court's own makes something overstatement. notes sixteen 682-683, 1. Logically assertion non sequitur. begs case—whether, significantly wished customary standard.13 46 allow but, circumstances, added considered, adopt, "party action" "[i]n part."14 appropriate."15 appropriate," standard: party'. Cir.1973)." (1977), Leg.Hist. 2804 supplied).16 portion First Circuit Natural Council 1338 (1973)17 sets test statute—a prevailed. Judge Campbell wrote: 49 'to appropriate.' greater latitude found 2412, authorizes 'the liberty merely 'who won' benefits conferred. mainly punitive. allocate equitably, achievement statutory goals. attempting carry program vast unchartered dimensions, there roles official agency watchdog. legislation itself complex. dates, early desirable. our impression, overall, petitioners, watchdog role, performed service." 1338. receiving issues. noted "not sustained, constructive Ibid.18 seizes attempt explain away intention reasoning, facts, IV 51 Unpersuaded relies heavily propositions. First, notes, doctrine sovereign construed. 685-686. authorize left "appropriate."19 Second, similarly-worded 1970, "instructive." 691.20 I share majority's significance 52 originally provided interest."21 Committee defendants harassed compensate citizens service bringing actions successfully caused abate "before verdict issued."22 Subsequently changed interest" apparent change meaning. 53 follows, intended, situations e fees.23 contradicted open-ended describe same specifically stated, litigation." S.Rep. 91-1196, 91st 65 (1970). treated alike 304(f) corroborates 1970 true can often valuable assistance finder expert's ultimate offered testimony prevail. 54 passed, Courts 304.24 citation 1973 demonstrates, account post-1970 developments By history.25 go now ascribe 1977. broadly parties.26 55 simple illogical: appeals] plaintiff party." 689. simpler precisely meant. language,27 previously countless statutes, chose 56 cannot agree language. Of course, recognized, unreasonable presume, background generally, litigated nonfrivolous regulation. 36, 4, 38, 10. weighed balance determine bear my abuse unless contribution review, agency, truly furthered 57 recognized importance, novelty, costs. inappropriate applicability,28 contentions, nonfrivolous, weak. addition importance economic incentive participate stood gain benefits. so, inconsistent Further, properly construed, take determinations, familiar exercise discretion, care—as done case—why deems nonprevai ing 58 Regardless views about wisdom choice made, duty Tennessee Valley Authority Hill, 437 153, 194-195, 98 2279, 2301-2302, 117 consciously selected particular course: compensation reviewing ground disturbing conclusions. construe narrow; wrong, altogether. function "sit nor vested veto." Ibid.29 59 respectfully dissent. Sixteen Toxic Substances Control 2618(d); Endangered Species 1540(g)(4); Surface Mining Reclamation (Supp. IV) 1270(d); Deep Seabed Hard Mineral 1427(c); Water 1365(d); Marine Protection, Research Sanctuaries 1415(g)(4); Deepwater Port 1515(d); Safe Drinking 300j-8(d); Noise 4911(d); Energy Policy Conservation 6305(d); Powerplant Industrial Fuel Use 8435(d); Ocean Thermal Conversion 9124(d); Outer Continental Shelf Lands 1349(a)(5). controls construction statutes. Dissenting Columbia, Wilkey absence clue 'appropriate,' wrote "there comprehensible principled 'appropriate.' Alabama Power illustrates ction. observed intent may, Act." 95-127, 99 1077. 504(a)(1) V); Commodity Exchange 18(f) (1976); Civil Rights 1973l(e) id., 1988 Freedom Information 552(a)(4)(E) Privacy 552a(g)(2)(B), 552a(g)(3)(B); Sunshine 552b(i). Real Estate Settlement Procedures 2607(d)(2); Right Financial 3417(a)(4); Jewelers' Hall-Mark 298(c). Courts: Hearing 2354 Subcomm. Improvements Judicial Machinery Comm. Judiciary, 31, desired expressly, 2605(c)(4)(A), permitting "represents contribu determination issues," participant's common Appeal attributes it, doubt explicit effect—as 2605. rely single sentence Report: recognize legitimate performing instances abatement reach verdict. instance, issued, abated violation, expenses borne prosecuting actions." (1970) approval "legitimate" offers comfort: "being exactly proposed: neither spurious false," contend, encompass and, reaches totally actions. is, possible, likely. explicitly "extended" forced illegal conduct, order; viewed expansive innovation, since, then-controlling law, infra, formally court. unpersuaded sure novel, costly unsatisfying bother mention fact. far-reaching plainly careful sweeping innovation adopted. suggest trivial purely victories, standard. avoid inquiries occurred issue." Analysis 253, Prepared Staff Pollution Environment Public Works, Serial 95-1, observe argue indicates desire degree. unpersuasive. commenting legislation. group "we oppose basis automatically providing pursuant represent widespread interest, finance themselves." Legislative History, 4241, 4255 (Chamber Commerce). told "fundamentally unwise" "wholly unprecedented law": 4092. obvious, required, manner governmental entities. Differing abilities responsibility fulfilling likely exercising special Because, shown, meanings, Amendments concept—the "citizens allowing sue person attracted vehement Congress. Senator Hruska, memorandum observing "is history" History (Senate Debate 4358, September 21, 1970), 277. predicted "will multiplicity interfere Executive's capability carrying duties" warned 304's "open invitation institution Citizens Suits" "impose impossible burden already burdened system." 278. response concerns Nebraska possible harassing citizens. attempted litigation—including fees—may brings loss bearing instance. very individual lightly possibility." 280. repeated "Concern expressed lawyers bring key element where obviously harassing. effect discouraging time encouraging brought." 3006A(d) 7411(a)(1)(A) Ackerman Hassler, Beyond Deal: 89 Yale L.J. 1466, 1494-1514 (1980); Ayres Doniger, Source Standard Plants II: Consider Law, Harv.Envt'l L.Rev. 63 Currie, Direct Regulation Stationary Sources Under 128 U.Pa.L.Rev. 1389, 1407-1431 (1980). B. W. Coal/Dirty 79-103 pounds/MBTU. Fed.Reg. 33580 (June 11, MBTU stands "million British thermal units," measure heat energy. supra 3, 79-103; Fed.Reg., 33581-33584; 322-352, 356-386. Wald, Making "Informed" Decisions Circuit, Geo.Wash.L.Rev. 135, 145 (1982). concluding suggestion difficulty rejecting statute." Brief 21. "We interminable searching (and considerable soul searching). wi h hard look mortal judges probably thousands pages. straight-forward probed rationale, studied references appellants), endeavored understand intelligible (parts impenetrable), benefit deference terrible job." 410. actual subsequent per curiam Robb dissented $44,715.00, plus $644.60 expenses; $46,874.10. adopting contribute 8. 5; utilities' "defended EPA"). evidence sides "extraordinarily confusing." 361. fashion, critical informing deliberations issue—alleged process. factual research, analysis, disclosure documents according court, "our enriched consuming." 41. "[T]he fundamental tendered—which fact—is Contrary suggestions, size question. whether, conferred encompasses litigants." Reply Petitioner 1-2. America counsel. (1975). provided. situations, mandatory, see, (Clayton Act); cases," 285 (patent cases); normally "absent circumstances," 1988; Eckerhart, 1937, criminal cases—Congress mandated indigent regardless "Under scheme making matters determine." Pipeline, U.S., 262, 1624. V) ("An conducts adversary adjudication award, expens connection adjudicative officer justified unjust"); (Commodity Act) ("If petitioner finally prevails, allowed fee, taxed suit"); (1976) ("In enforce voting guarantees fourteenth fifteenth amendment, costs"); ("the costs"). (Freedom ("The assess reasonably complainant prevailed."); id. 552a(g)(3)(B) (Privacy 552b(i) (Government Act). successful, 2607(d)(2) (Real liability paragraph, together determined court"); 3417(a)(4) (Right 298(c) (Jewelers' (any jewelry trade association "and suit, fee"). assumes, does, ambiguous, 683, think Court, relying 307(f)—which direction concludes (Committee Print compiled Works Library Congress), Ser. 95-16, 688 (1978) (1977 Leg.Hist.). 3644 (S. introduced Jan. 14, 1977); 122 Cong.Rec. 23834 (remarks Sen. Buckley). Written comments behalf Edison Institute "less sweeping" "permit feels 4146-4147. reporting floor, struck substituted test. 573-575, 688. passed previous year, 3219, similarly 35, 4689. At conference, version—providing cases—was 94-1742, 94th 115-116 (conference report), 4400-4401; 6071 (text conference bill, H.R. 10498). 1976, 1976 buttresses later. 1473; ibid. ("a Act"); 9, 1383 ("Section deem appropriate."). Conference tracks 95-564, 176-177 556-557. added, concerning specific imposed sec. 2412 Supreme ruling 240 [95 141] (1975)." 337, 1416, 2804. entire passage appeared n 1976. 94-1175, 277 (1976), 6826. places weight staff formulation. 691. referring Committee, surely reliable misinterprets report, stated: [§ provision. require, acted unreasonably initiating enforcement (Comm.Print 1977), 3893. "narrower seems targets codified 113(b), 7413(b) V)—not 4354. page typographical error. Earlier petitioners' "policies corrected others, upheld, removed arena dispute. [S]ome national regional import. Petitioners helped enforce, refine clarify assisted goals." 1334. Thus Indian Towing 350 61, 69, 122, 126, 100 (1955), fully apposite here: "Of dealing subjecting potentially great sums money, promote profligacy careless construction. Neither self-appointed guardian Treasury import back designed it." Canadian Aviator, Ltd. 324 215, 222-226, 639, 643-645, 901 (1945) (refusing interpret narrowly suggested, broad deliberate thwarted unduly interpretation"). 7604(d) V), citizens' district violators Act: issuing final subsection print 93-18, pp. 705-706 (1974) (1970 Leg.Hist.) brought. Cf. Turkette, 452 576, 591, 101 2524, 2532, 69 246 meanings suits, primary aiding stimulating regulations agency. direct applicability review. proceedings. possibility arise discussion, 11-12, heroic Don Quixote's defense windmills. concedes during favorable settlements judgments. 20-21, (citing civil rights three FOIA 1977). always exclude plaintiffs. Parham Southwestern Bell Telephone 421, 429-430 (CA8 1970) (plaintiff whose Title VII "catalyst" prompting company discriminatory employment policies remedy injunctive class); Corcoran Broadcasting System, 121 575, 576 (CA9 1941) (under copyright clarification complaint voluntarily dismissed amending pleading). suggests, d cided aware denying status "as litigation" succeeded report's casts Delaware Air, Inc. Stauffer 62 F.R.D. 353, 355 (Del.1974) (acknowledging case), aff'd, 510 969 Ass'n Georgetown 383 136, 143-146 (DC 1974), rev'd 535 1318 1976). To respond Chamber Commerce Council, 690, imposing potential billions dollars, regulations, revisions plans, orders. 7607(d)(1) mirror image "it us invade legislature's province redistributing suggested ." 271, 1628. Here, refusing distribute contemplated

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