Document: 127 S. Ct. 2518 (2007) NATIONAL ASSOCIATION OF HOME BUILDERS et al., Petitioners, v. DEFENDERS WILDLIFE al. Environmental Protection Agency, Petitioner, Defenders of Wildlife Nos. 06-340, 06-549. Supreme Court United States. Argued April 17, 2007. Decided June 25, *2524 Edwin Kneedler, for the petitioners. Eric R. Glitzenstein, respondents. Paul D. Clement, Solicitor General, Counsel Record, Department Justice, Washington, D.C., Petitioner Agency. Terry Goddard, Arizona Attorney Mary O'Grady, Paula Bickett, Chief Counsel, Civil Appeals, James T. Skardon, Assistant Phoenix, Arizona, State Arizona. Russell Frye, Frye Law PLLC, DC, Norman James, Fennemore Craig, P.C., AZ, Duane J. Desiderio, Thomas Ward, National Association Home Builders, Roger Martella, Acting General Michael G. Lee, Julie K. Walters, Attorneys Matthew McKeown, Deputy Malcolm L. Stewart, to Andrew C. Mergen, David Shilton, Attorneys, P. Senatore, Wildlife, Katherine A. Meyer, Meyer Glitzenstein & Crystal, Justice ALITO delivered opinion Court. These cases concern interplay between two federal environmental statutes. Section 402(b) Clean Water Act requires that Agency transfer certain permitting powers state authorities upon an application and a showing nine specified criteria have been met. 7(a)(2) Endangered Species 1973 provides agency must consult with agencies designated by Secretaries *2525 Commerce Interior in order "insure any action authorized, funded, or carried out such ... is not likely jeopardize continued existence endangered species threatened species." The question presented whether § effectively operates as tenth criterion on which power under first statute be conditioned. We conclude it does not. authority authorities who will exercise continuing oversight ensure compliance relevant mandates other protection statuteswas proper. therefore reverse judgment States Appeals Ninth Circuit. I A 1 1972 (CWA), 86 Stat. 816, 33 U.S.C. 1251 seq., established Pollution Discharge Elimination System (NPDES) designed prevent harmful discharges into Nation's waters. (EPA) initially administers NPDES system each State, but may apply officials. See 1342; see also 1251(b) ("It policy Congress Stat[e] implement permit progra[m] sectio[n] 1342 this title"). If transferred, then officialsnot EPAhave primary responsibility reviewing approving discharge permits, albeit EPA oversight.[1] Under CWA, "the Governor desiring administer its own program navigable waters within jurisdiction submit [the EPA] full complete description proposes establish law interstate compact," well certification "that laws provide adequate carry described program." 1342(b). same section "shall approve submitted program" "unless [it] determines exist" are satisfied. Ibid. all relate responsible has requisite program.[2] met, approved. *2526 2 (ESA), 87 884, amended, 16 1531 intended protect conserve their habitats. 4 ESA directs list designate critical 1533. Fish Service (FWS) respect Secretary Interior, while Marine Fisheries (NMFS) Commerce. 50 CFR §§ 17.11, 222.101(a), 223.102, 402.01(b) (2006). 7 prescribes steps take actions do wildlife flora. "[e]ach Federal shall, consultation assistance [of Interior], insure (hereinafter referred `agency action') 1536(a)(2). Once process contemplated completed, required give written biological "setting forth Secretary's opinion, summary information based, detailing how affects habitat." 1536(b)(3)(A); 402.14(h). concludes would place listed jeopardy adversely modify habitat, shall suggest those reasonable prudent alternatives he believes violate [§ 7(a)(2)] can taken implementing action." 402.14(h)(3). Regulations promulgated jointly that, qualify "reasonable alternative," alternative course able implemented way "consistent scope agency's legal jurisdiction." 402.02. Following issuance "jeopardy" either terminate action, proposed alternative, seek exemption from Cabinet-level Committee pursuant 1536(e). regulations "Section requirements part there discretionary involvement control." 402.03. B In February 2002, officials applied authorization State's program.[3] initiated FWS determine *2527 affect species. regional office concluded cause direct impact water quality App. Pet. Cert. No. p. 564. However, was concerned could result more lead development, turn indirect adverse effect habitat upland species, cactus ferruginous pygmy-owl Pima pineapple cactus. Specifically, feared because 7(a)(2)'s requirement decisions authorities,[4] empower issue individual permits without considering mitigating these Id., at 565-566. urged authority, involved should potential impacts account. disagreed, maintaining "its approval administrative [would be] future non-discharge-related projects requiring permits." As factual matter, believed link harm increased development too attenuated. 654. And mandatory nature CWA 402(b)which approve" request if section's statutory met stripped disapprove based considerations. 654-655. Pursuant procedures set memorandum understanding agencies, dispute agencies' national offices resolution. December issued requested reasoned loss 7-related conservation benefits action," id., 117, "loss benefit caused EPA's decision Arizona's program. Rather, absence exists reflects Congress' grant right programs provided meets [§] Act." 114. addition, opined program, along protections, adequately habitats following transfer. 101-107. had met approved authority. notice announcing transfer, noted FWS's "conclude[d] [FWS'] agreement *2528 substantive ESA." 73. On 2, 2003, respondents filed petition Circuit seeking review 1369(b)(1)(D), allows private parties determinations regarding courts appeals. court granted petitioner Homebuilders leave intervene respondent case. Respondent separate District alleging, among things, support did comply ESA's standards. severed claim transferred Circuit, consolidated case suit challenging 420 F.3d 946 (2005). divided panel held arbitrary capricious "relied during proceedings legally contradictory positions obligations." 959. "fail[ed] understand act behalf habitat," 977, propositions underlie actionthat (1) must, [ESA], concerning transfers (2) permitted, matter law, account making decisioncannot both true," 961. "remand plausible explanation decision, single, coherent interpretation statute." 962. majority, however, follow action. went construction statutes duty nevertheless "affirmative attend [the] species," 965, adding 402(b). dismissed argument subject "discretionary action" meaning 402.03 (interpreting only "in control"). F.3d, 967-969. It viewed regulation merely "coterminous" express language encompassing "`authorized, out'" agency. 969 (quoting 1536(a)(2)). grounds, vacated decision. dissent, Judge Thompson explained "[t]he Act, very terms, consider factors. state's enumerated requirements," reasoned, administrator `shall approve' *2529 This [c]ongressional directive impose additional conditions." 980. denied rehearing en banc. 450 394 Writing six judges dissented denial banc, Kozinski disagreed panel's conclusion analysis so internally inconsistent capricious. He further correct point, proper resolution remand explanation. 396-398. question, echoed Thompson's once satisfied, nondiscretionary. 397-399. rejected majority's broad 7(a)(2), concluding "[i]f were powerful majority contends, obligation every categorical mandate applicable agency." 399, n. 4. Circuit's odds Courts Appeals. Compare (case below), Platte River Whooping Crane Critical Habitat Maintenance Trust FERC, 962 F.2d 27, 33-34 (C.A.D.C.1992), American Forest Paper EPA, 137 291, 298-299 (C.A.5 1998). certiorari resolve conflict, 549 U.S. ___, 852, 853, 166 Ed. 2d 681 (2007), we now reverse. II Before addressing interpretation, erred holding because, court's words, [their] 23. initial note capricious, held, clarification reasons. Gonzales Thomas, 547 183, 126 1613, 164 358 (2006) (per curiam). Indeed, below expressly recognized finding 28. But course; instead, jumped ahead merits dispute. doing, erroneously deprived usual avenue explaining reconciling arguably rationales sometimes appear lengthy complex decisions. need examine further, determination fairly supported record. Review standard deferential; vacate unless "has relied factors consider, entirely failed important aspect problem, offered runs counter evidence before agency, implausible ascribed difference view product expertise." Motor Vehicle Mfrs. *2530 Assn. States, Inc. Farm Mut. Automobile Ins. Co., 463 29, 43, 103 2856, 77 443 (1983). "We will, `uphold less than ideal clarity path reasonably discerned.'" Bowman Transp., Arkansas-Best Freight System, Inc., 419 281, 286, 95 438, 42 447 (1974)). "internally inconsistent" view, statedboth preliminary Register memorializing final action"that With regard various statements made early stages consideration, "inconsistency" point fact changed mindssomething long followed, they fully entitled do. ordinarily empowered 5 704, local representative later overruled higher level render decisionmaking Respondents application. stated 7(a)(2)." contend statement previously expressed positionand position throughout litigationthat triggered 402 CWA. persuaded constitutes type error remand. By time issued, already consulted about application, required, opposed voluntarily undertaken simply germane statement, short, dictum, no bearing challenge. Mindful admonition "due rule prejudicial error," 706, believe stray underlying being challenged, delay remanding clarification. PDK Labs., Drug Enforcement Admin., 362 786, 799 (C.A.D.C.2004) ("In civil criminal litigation, harmless rule").[5] *2531 disagree respondents' suggestion allegedly altering associated litigation pending, "EPA nullifying rights participate particularly comment applications." Brief 28 (citing 40 123.61(b); emphasis deleted). Consistent regulations, available "a period 45 days interested members public [could] views 123.61(a)(1). period.[6] remanded raise challengesincluding, example, challenge provision financial administration below, independent authorize 11, infra. viability actions. III raised petitions, us mediate clash seemingly categoricaland, glance, irreconcilablelegislative commands. provides, qualification, lacks perform functions section. exclusive; discretion deny Cf. Lopez Davis, 531 230, 241, 121 714, 148 635 (2001) (noting "use `shall' discretionless obligations"); Lexecon Milberg Weiss Bershad Hynes Lerach, 523 26, 35, 118 956, 140 62 (1998) ("[T]he normally creates impervious judicial discretion"); Civilian Technicians FLRA, 22 1150, 1153 (C.A.D.C.1994) ("The word generally indicates command admits person instructed directive"); *2532 Black's Dictionary 1375 (6th ed. 1990) ("As used imperative mandatory"). Neither nor ever disputed satisfied criteria. 963, 11; 19, 8. similarly imperative: Secretary, agency... jeopardize" through require adopt author recognized, applying literally "ad[d] one [additional] considerations provision." 404, (Berzon, J., concurring banc) (emphasis original). That is, repeal exclusive 402(b), replace new, expanded includes no-jeopardy requirement. While enacted (such ESA) operate amend even earlier CWA), "repeals implication favored" presumed "intention legislature [is] clear manifest." Watt Alaska, 451 259, 267, 101 1673, 68 80 (1981) (internal quotation marks omitted). infer `expressly contradict[s] original act'" "is absolutely necessary words statute] all." Traynor Turnage, 485 535, 548, 108 1372, 99 618 (1988) Radzanower Touche Ross 426 148, 153, 96 1989, 48 540 (1976), quoting Sedgwick, Interpretation Construction Statutory Constitutional 98 (2d 1874)); Branch Smith, 538 254, 273, 123 1429, 155 407 (2003) ("An implied found where provisions `irreconcilable conflict,' latter covers whole `is clearly substitute'"); Posadas City Bank, 296 497, 503, 56 349, 351 (1936) intention manifest"). Outside limited circumstances, dealing narrow, precise, specific submerged covering generalized spectrum." Radzanower, supra, 1989. Here, reading 402(b)'s engrafting onto CWA.[7] *2533 commands "shall" whenever prerequisites Thus, just minimum authority; affirmatively ceiling floor. criterion, raises floor alters command.[8] abrogate mandate, implicit many otherwise terms applies "any by" agencycovering, effect, almost anything might Reading broadly thus partially override mandating subjecting condition pose See, e.g., F.2d, (considering overrides Power Act's prohibition amending annual licenses). explicitly (or statute), worth foursquare our presumption against repeals. C charged attempted tension 7(a)(2). NMFS FWS, acting notice-and-comment rulemaking procedures, stating added). regulation, read impliedly repealing nondiscretionary mandates, when some come play results discretion. harmonizes giving so, *2534 forbidden extrastatutory latitude gives enforcing statute, together degree regulatory expertise enforcement, establishes owe deference interpretation" scheme. Babbitt Sweet Chapter, Communities Great Ore., 515 687, 703, 115 2407, 132 597 (1995). appropriate "Congress directly addressed precise issue" text. Chevron U.S.A. Natural Resources Defense Council, 467 837, 843, 104 2778, 81 694 (1984). "If intent clear, end matter; court, unambiguously .... [However,] silent ambiguous issue, answer permissible 842-843, 2778 (footnotes threshold Chevron, confine itself examining particular isolation." FDA Brown Williamson Tobacco Corp., 529 120, 132, 120 1291, 146 (2000). meaningor ambiguityof phrases become evident placed context.... `fundamental canon context overall scheme.'" 132-133, 1291 Davis Michigan Dept. Treasury, 489 803, 809, 109 1500, 891 (1989)). backdrop directives whose operation implicitly construed below. When way, left fundamental ambiguity resolved An cannot simultaneously obey differing consequently languageread light repealsdoes guidance way. situation, look expert cabins "actions guide existing mandates. statute's text scheme, Chevron. "insure" authorizes, funds, carries To somethingas recognizedmeans "`[t]o make certain, secure, guarantee (some thing, event, etc.).'" 963 Oxford English 1059 ed.1989)). regulation's focus "discretionary" accords commonsense *2535 something reasoning Transportation Public Citizen, 541 752, 124 2204, 159 60 (2004). safety Carrier Safety Administration (FMCSA) triggering Presidential allowing Mexican trucks ply trade roads. Policy (NEPA) assess effects entry FMCSA's instead President lifting moratorium granting limiting discretion." 769, 2204 "where ability due over actions, considered `cause' effect." 770, 2204. Citizen controls outcome here; unlike NEPA, imposes (and procedural) requirement, involve related concerns truck regulations. basic principle announced Citizenthat "cause" takesupports reasonableness reaching California 438 645, 668, 21, 2985, 57 1018 (1978) (holding operating conform usage rules extent "inconsistent congressional directives"). 3 disregarded 402.03's reach, dismissing reference `discretionary involvement'" "congruent `authorized, out' 968. right. presumes "judgment" connection Citizens Preserve Overton Park, Volpe, 401 402, 415-416, 91 814, 136 (1971); Random House Language 411 (unabridged ed.1967) ("discretion" defined decide according one's judgment; freedom choice"). illustrates, dissent's implausible. dissent clarifying included confining reach post, 2541-2544. superfluous. Nothing interpreting section, 402.02, suggests excluded *2536 ESA, bring them scope. reading, mere surplusage, cautioned makes redundant. TRW Andrews, 534 31, 122 441, 151 339 (2001). history supports defer today. points out, version Part control," Fed.Reg. 29999 (1983) added); modified (as adopted Final Rule issue) "all 51 19958 (1986) rob substitute earlier, actually adopted. mean what says: attach (like authorization) undertake events occurred. reasonable, inasmuch provision, comports repeals stays duties. D argue TVA Hill, 437 2279, 117 (1978), contrary position. case, prohibited Tennessee Valley Authority (TVA) putting Tellico Damdespite spent $100 million nearly completed project doing snail darter. rely, ordinary meaning" contained "no exemptions" reflected conscious priority `primary missions' agencies." 173, 185, 188, 2279. occasion cases. decided decade adoption 1986 project expensive, discretionary. argued lump-sum appropriations TVA, informally earmarked Dam project, repealed 7's project. U.S., 189-193, argument, Appropriations Acts themselves identify sums appropriated" reports committees directing lacked force law. 189, Central Court's put dam operation; effect; basis contending *2537 another affirmative directive.[9] Hill position, 402.03, actionregardless expense burden impose. speak non-discretionary like here. interpretation. IV Finally, amici represented They mechanical; involves 402(b); incorporate references consideration properly unavailing. determining demonstrated criteria, add prerequisite list. authorizes evaluating marine species,[10] Respondents' disclaimed NMFS, primarily administering drafters Each recently formal letter kind covered 06-549, 103a-116a. *2538 plainly erroneous regulation," Auer Robbins, 519 452, 461, 905, 79 (1997) omitted), deferential here.[11] * Applying Since discretionary, rather mandated follows trigger requirements. Accordingly, reversed, consistent opinion. STEVENS, whom SOUTER, GINSBURG, BREYER join, dissenting. present problem conflicting "shalls." hand, (CWA) shortly after passage faced competing possible. Morton Mancari, 417 551, 94 2474, 41 290 (1974) ("[W]hen capable co-existence, courts, absent contrary, effective"). fails task. Its unsuccessfully tries reconcile relying (2006), reads ante, 2533-2534. Not fundamentally itself. celebrated "snail darter" "reveals agencies," intent, *2539 Burger's exceptionally thorough admirable "admits exception." Creating precisely exception exempting coverage, whittles away comprehensive effort risk extinction effect. After attention deserves, irrelevance offer ways ESA. Having done why proceedings. questions: enjoin Reservoir Project determined eradicate small fish known darter; post-1973 completion constituted least insofar Dam. 156, More 30 pages explain 156-188, four sufficed negative second, ruling us, refusal hold strangely deems most significant. 2535-2536. answering Hill's discuss portion definitive language, history, structure [ESA] beyond doubt afforded highest priorities." 174, 2279; 177, 2279 ("`The dominant theme pervading Congressional discussion overriding devote whatever resources avoid diminution worldwide resources'" Coggins, Conserving Resources: Overview 1973, N.D.L.Rev. 315, 321 (1975) added Hill))). particular, clearer. added).[1] Our length imposed obligations agencies" deleted; internal suggested inapplicable threaten *2540 eradication Nor describe Authority's act. How it? all, declared darter destroyed Dam, surely obligated spend funds appropriated project.[2] Unconcerned explicit afford saving pointed omission qualifying legislation reveals added).[3] contention acts. few passages parts belie suggestion. noting oddity interest protecting survival relatively number 3-inch "would permanent halting virtually expended million," result." 172, continued: "One hard pressed find plainer Act. `to existence' `result destruction modification ....'" 1536 (1976 ed.) Hill)). reviewed variety exceptions *2541 unenacted proposals omitted statute. "qualified purposefully qualified responsibilities." 181, 182, Moreover, observing "hardship exemptions," 1539none agencieswe maxim expressio unius est expression alterius "there exemptions Today, countenances exemption. contains unmentioned depended attempting compel them." undoubtedly "actions" "authorized" "carried out" 1536(b); 402.02 (defining "action" activities part, high seas. Examples include, indirectly causing modifications land, water, air"). transferswhether Given unequivocal "first priority" yield, yield truly incapable coexistence. Morton, 2474. Therefore, assuming command, try harmonize solution rely states explains "harmonizes factors." Ante, harmony, certainly isn't Rather genuine wholesale limitation conflicts begin with, plain coverage Quite opposite, natural confirms endorsed Hill. accordance facts *2542 exception[s]," eliminates possible extend situations marginal. mistaken says "to . ." 2535-2536 not, fact, "says." "only" addition text, agency's. go say does) "does occurred." far-reaching change said using similar uses led promulgation reason pre-existing coverage. codified current general redrafting 1983 Notice Proposed Rulemaking, "§ Without explanation, inserted "Federal (1986).[4] Clearly, meant limit promulgating mentioned somewhere contemporaneous them. Cable Telecommunications Brand X Internet Services, 545 967, 1001, 125 2688, 162 820 (2005) free limits course" "adequately justifies change"); 48, ("We frequently reiterated cogently exercised given manner"). Yet, nothing mention rulemaking. assume, then, following: "This applicability 7, territorial seas definition `action' term *2543 402.01 above." 19937. sources: "explanation `action'" 402.01. Both confirm draw distinction part: "Action means to: "(a) habitat; "(b) regulations... "(second third emphases added.) Actions sub-categories Likewise, italicized portions indicate, refers "all" "of kind," regardless mandatory. "action," contradiction regulation.[5] rule's 402.01, my including `conservations programs' `may affect' habitats." 19929 evince restates did. strong indication meaning. stronger it.[6] emphasizing *2544 (1984), 844, considerable weight accorded executive department's scheme entrusted administer." added)); Treasury 837 1163, 1167 (C.A.D.C.1988) interprets administer, deference"). Departments Commerce, 703-704, conceded Interior's "did CFR. address produced [biological opinion] 24; 77-124 (never mentioning 402.03). Left unfavorable record, lean "clarified" different proceeding. pp. 24-25; 26 recent F[ish Service] N[ational communications Alaska's pending reflect interpretations... [50 CFR] 402.03"); 103a-116a; 2530-2531 5. affirm grounds SEC Chenery 318 80, 87, 63 454, 626 (1943). ignores hoary substitutes post-hoc For alone, reasons given, There privileging other. subsection reads: "Each affected critical, (h) section." 1536(a)(2) use agencies. 2531-2532. "mandate *2545 2532. quick conclude, irreconcilable conflict rushes flawed conceptual erroran revealed paragraph frames "whether conditioned." 2525. alone this. "adds 404 "consul[t]" Department, step proposing typically ask area "affect" 1536(c). affected, anticipated avoided stage. If, formally Secretary. culminates "biological opinion," "detail[s] Even stage, still reveal 51199 rendered jeopardy" Texas). jeopardy, resolving demands protection. (a)(2) applicant define "[r]easonable alternatives" "alternative identified manner purpose jurisdiction, economically technologically feasible, Director FWS] likelihood jeopardizing resulting face encourage work let move forward *2546 [its] purpose" "legal authority," avoiding violation enable develop allow Stated differently, generate whereby placeas CWAbut honor surprise engaged pre-transfer consultations times past barred rare alternative" found, yet mechanism 1978, amended create "Endangered Committee," authorized Because colloquially "God Squad" Committee." weighty responsibility, carefully laid God Committee's membership,[8] procedures,[9] deciding exemption.[10] arbiter embodies primacy serves harmonizing *2547 creating Committee, having forever sacrifice At time, creation last line defense except resort serious consideration. else resolution, choice Committeenot Court; second continues oversee Arkansas Oklahoma, 503 91, 105, 112 1046, 239 (1992) ("Congress preserved Administrator programs"). "outside guidelines requirements" object block issuance. 1342(d)(2); 66 11206 ongoing responsibilities, enter Memorandum Agreement (MOA) sets particulars 123.24(a) governing MOAs several detailed instance, MOA contain "[p]rovisions specifying classes categories applications, draft send [EPA] Regional review, and, applicable, objection," 123.24(b)(2); frequency content reports, documents EPA," 123.24(b)(3); coordination monitoring 123.24(b)(4)(i). generally, "may include conditions, agreements" "relevant enforcement 123.24(a). furthermore, restricts responsibility. Like above, State. remember prior such, useand usedthe negotiate abide issuing pollution permits. Society Amici Curiae Maine MOA, agreed ESA-listed ensuring standards"). Alternatively, copies sensitive pollutant threatens wildlife." 10. *2548 Or drafted (explaining "object risks threatening quality"). three possibilities. ESA; enough observe straightforward restricting does. discussed incorrectly II, supra. permissible, discretionary.[11] Administrator's fit category holds 2536. "triggering event" filing satisfactory satisfy conditions. Those conditions events"; objections What more, perfect example "shall." Instead, closely discretion, despite then-Justice Rehnquist's dissenting explains, room 211-212, (Rehnquist, dissenting).[12] cases, significant evaluation five each. 1342(b)(1)(A). One statutes, turn, his "judgment." 1312. acknowledges "some criteria." 2537. *2549 breath, dispositive list." flouts logic. kind. exercises approach seriously, identifiedas here apply.[13] III-B, demonstrates ministerial task suggest. retains 123.24 file weekly monthly basis. applications. ample areas, Approval Application Administer Program, 12791, (2001); Program; Texas, 51165 (1998). raising one, 1998), *2550 control 96-60874(CA5). Arguing "[i]ndicia abound regulations," prime example.[14] Again, entails significantindeed, aboundingdiscretion, theory V always remain faithful legislature, Burger closed reminder "[o]nce enactment discerned constitutionality determined, comes end." 194, years ago Today turns back places great plagiarizing fine think didwith attributed Sir much relevance today decades ago. illustrates character embodied pernicious consequences official disobedience rule. Repetition literary allusion especially today: "The Roper, know what's legal, I'll stick legal.... I'm God. currents eddies wrong, you plain-sailing, can't navigate, voyager. thickets oh forester. do? Cut road get Devil? down, Devil turned round youwhere hide, flat? country's planted thick coast coastMan's laws, God'sand cut down d'you really stand upright winds blow then? Yes, I'd safety's sake." Bolt, Man All Seasons, I, 147 (Three Plays, Heinemann (quoted 195, 2279). Although shifted insisted 114; 16, 42. since relies *2551 Administrative Procedure 706(2)(A), respectfully dissent. APPENDIX TO OPINION 1342(b) programs. "At (i)(2) 1314 title, compact. attorney counsel), chief officer compact, be, exist: "(1) which "(A) apply, sections 1311, 1312, 1316, 1317, 1343 title; "(B) fixed exceeding years; "(C) terminated including, to, "(i) permit; "(ii) obtaining misrepresentation, failure disclose facts; "(iii) temporary reduction elimination permitted discharge; "(D) disposal pollutants wells; "(2)(A) 1318 inspect, monitor, enter, "(3) public, receive opportunity hearing application; "(4) receives (including copy thereof) "(5) (other State), recommendations Administrator) accepted notify writing accept doing; "(6) if, Army *2552 Engineers, department Coast Guard operating, anchorage navigation substantially impaired thereby; "(7) abate violations penalties enforcement; "(8) publicly owned treatment works identification volume source introducing pretreatment standards 1317(b) title assure source, (A) new introductions 1316 discharging pollutants, (B) 1311 (C) substantial introduced permit. Such quantity effluent discharged works; (9) industrial user 1284(b), title. BREYER, join STEVENS' reserving 1536(a)(2), totally unrelated agenciessuch as, say, Internal Revenue prosecute settle tax liability, 7121. own) views. emphasizes "[b]y 1342(b)] application." 2531 My leads me possibly precludes 2548-2549 (STEVENS, dissenting). grants attached. Jaffe, Judicial Control Action 359 (1965) (discretion choice" "permissible class actions"). numerous instances which, after, "species preservation" outside limits. old Commission (FPC) "certificate convenience *2553 necessity" gas company pipeline. 15 717f(c)(1)(A). certificate therefor willing acts service service... necessity." 717f(e). uncertain FPC withheld pipeline animal, preservation naturally fall terms. landscape, "indicat[ing] pipeline's seems believe, FPC's successor (the Energy Regulatory Commission) taking species-endangering Food (FDA) has, "exclusive" applications drug. 21 355(d) ("If finds [e.g.,] investigations... tests methods show drug safe refusing application"). Preservation Yet imagine account, denies approval, manufacture marketing meaningful energy- drug-related former preserve environmenta shares. shared shows fortiori. NOTES [1] advise 1342(d)(1), (2); 123.44(c) concerns, reverts EPA. 1342(d)(4). [2] demonstrate ability: fixed-term CWA's revocable cause; facilities CWA; (3) hearings; (4) (5) accepted; (6) Corps Engineers impair anchoring waters; (7) penalties; (8) pollutants; provisions. 1342(b)(1)-(9). [3] applied, 44 Territories. [4] "action[s] agenc[ies]." [5] going forward. EPAin authorityrequested confirmation duties program," apparent hope advance processing repetition of" confusion occurred process. 96a, 95a. response, confirmed conduct constitute applies." 107a; 116a (NMFS "concur[s] engage CWA"). [6] conducted 7(a)(2)a 19928 ("Nothing applicant) `interagency' process"). [7] attempts paper suggesting "generat[ing] Post, 2546. acceptance (presumably language). 2546-2548. take-it-or-leave-it approach, rejection alter command. [8] alteration characterized amendment partial repeal. Every displaces commands, repeatedly amendments favored Rail Reorganization Cases, 102, 134, 335, 320 ("`A wholly "positive repugnancy" reconciled'") re Penn 384 F. Supp. 895, 943 (Sp.Ct.R.R.R.A.1974)); Welden, 377 95, 103, 12, 84 1082, 12 152 (1964) ("Amendments favored"); Madigan, 300 500, 506, 566, 767 (1937) settled favored"). [9] incorrect "if species... project." 2540. repugnancy appropriating [10] enforce standardssome informed Administrator. 1342(b)(1)(A); also, scrutiny wildlifeonly applicant's "authority [t]o with" 1342(b)(1)(A) 562-563, 615-617. [11] taken, take, apart implicate alleged funding clean true, lawsuit. retain process, authority obligationsafter authorizing 692, (1995) ("Section none activities, licenses `or critical' " added)). misreads sentence overreads JUSTICE maintains "acts 2537, 9. thing. subsequent appropriation overcome never passed. 189-190, finished funded. helps clarify Throughout refer take." Brief. O.T.1977, 76-1701, 26. sought restrict "which decision-making it." narrow sustain TVA's "ignore language." Kilbourne, Microscope: Closeup Look From Litigator's Perspective, Envtl. 499, (1991) "discretionary"); Weller, Limiting Scope Act: Discretionary Involvement Hastings W.-Nw. Pol'y 309, 311, 334 (Spring 1999) (same) Builders (NAHB) action: "`a permeates range agency.'" Petitioners NAHB 32 Fed. Reg. 19937). Rulethe describing "`[r]easonable alternatives'" context, cited "maximum necessary, Service, jeopardy." 19926. enough, quoted petitioner's reading. indicating "permeates range" 946, 968 ("EPA `discretionary' 402.03.... evidently excluding interpret regulations." (citations omitted)). (approving Texas' apply" action); 61 65053 (1996) Oklahoma's "EPA's Clear consultation] requirement"); Tr. Oral Arg. (conceding past). composed high-ranking appointed President. 1536(e)(3). 1536(e)-(l). Title 1536(h)(1) provides: vote voting person report record (g)(4) testimony receive, that action; outweigh courses conserving interest; significance; "(iv) neither irreversible irretrievable commitment (d); mitigation enhancement measures, live propagation, transplantation, acquisition improvement, minimize concerned." quite lengthy, appendix [12] Gutierrez de Martinez Lamagno, 417, 432-433, 9, 2227, 375 ("Though `must,' writers use, misuse, `should,' `will,' `may.'" Mellinkoff, Mellinkoff's Legal Usage 402-403 (1992)) ("shall" "may" "frequently treated synonyms" depends context); B. Garner, Modern 939 1995) ("Courts English-speaking heldby necessitythat contexts, vice versa."). [13] claims "basic in" (2004),"that take"supports reliance 2535. First recognizes distance ibid., dealt procedural (NEPA), 34, NEPA "completely inapposite" context). recognize, principle" called feature case": countermand" President's motor carriers 766, lift moratorium, vehicles entered FMCSA register ("Under certify carrier DOT regulations; prevented 2001" deleted)). generated decisionmaker, President, FMCSA. contrast, ministerially State; Any caused, indirectly, (providing "directly caus[e] air" [14] 123.61(b), solicit comments "approve "taking received." Fifth brief, "were fashion, weighing unnecessary."

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