Document: 442 U.S. 347 99 S.Ct. 2335 60 L.Ed.2d 943 Cecil D. ANDRUS, Secretary of the Interior, et al., Petitioners,v.SIERRA CLUB al. No. 78-625. Argued April 18, 1979. Decided June 11, Syllabus Section 102(2)(C) National Environmental Policy Act 1969 (NEPA) requires environmental impact statements (EIS's) to be included in recommendations or reports federal agencies on "proposals for legislation and other major Federal actions significantly affecting quality human environment." Contending that § prepare EIS's accompany appropriation requests, respondents, three organizations with interests preservation environment, brought suit District Court against petitioners, Interior Director Office Management Budget (OMB). Respondents alleged proposed curtailments budget Wildlife Refuge System would affect hence should have been accompanied by an EIS prepared both Department Interior's Fish Service, which administers System, OMB. The granted summary judgment respondents ordered petitioners annual proposals financing System. Court's holding was modified Appeals, concluded while has no application a routine request continuance ongoing program, is required when accompanies proposal taking new action changes status quo, "ushers considered programmatic course following review." Held: does not require requests. Pp. 355-365. (a) Appropriation even those are result agency's "painstaking review" legislation" within meaning 102(2)(C). NEPA makes distinction between review," merely "routine"; interpretation Council Quality (CEQ) under its current mandatory regulations specify "legislation" include entitled substantial deference though reverse CEQ's earlier advisory guidelines were effect at time Appeals' decision. Moreover, consistent traditional Congress drawn "appropriation," rules Houses prohibiting from being added bill. 356-361. (b) Nor do requests constitute . actions" purposes "propose" all, but instead fund already proposed. Thus, best interpreted as applying actually propose actions, rather than suggest how such may funded. Even if agency programs occur because budgetary decisions, stage only repetitive must any environment. 361-364. 189 U.S.App.D.C. 117, 581 F.2d 895, reversed. John M. Harmon, Washington, C., petitioners. James H. Cohen, respondents. Mr. Justice BRENNAN delivered opinion Court. 1 question decision whether (NEPA), 83 Stat. 853, 42 U.S.C. 4332(2)(C), We hold it not. 2 * sets forth bold strokes: 3 "The this are: To declare national policy will encourage productive enjoyable harmony man his environment; promote efforts prevent eliminate damage environment biosphere stimulate health welfare man; enrich understanding ecological systems natural resources important Nation ." 852, 4321.1 4 recognized, however, these desired goals could incorporated into everyday functioning Government great difficulty. See S.Rep.No.91-296, p. 19 (1969). therefore contains "action-forcing procedures help insure policies [of Act] implemented." Ibid. Kleppe v. Sierra Club, 427 390, 409, 96 2718, 2729, 49 576 (1976). out one procedures: 5 authorizes directs that, fullest extent possible (2) all shall— 6 7 "(C) every recommendation report detailed statement responsible official on— 8 "(i) action, 9 "(ii) adverse effects cannot avoided implemented, 10 "(iii) alternatives 11 "(iv) relationship local short-term uses man's maintenance enhancement long-term productivity, 12 "(v) irreversible irretrievable commitments involved 4332(2)(C) (emphasis supplied). 13 thrust thus concerns integrated very process decision-making. "detailed statement" outward sign values consequences during planning actions.2 If interwoven fabric planning, "action-forcing" characteristics lost. "In past, factors frequently ignored omitted consideration early stages As result, unless results radically revised level—and often means Congress—environmental opportunities foregone unnecessary degradation incurred." supra, 20. For reason "integrate earliest decisions reflect 43 Fed.Reg. 55992 (1978) (to codified 40 CFR 1501.2).3 14 In 1974, environment,4 Columbia alleging EIS's5 their named defendants (OMB), (NWRS), 80 927, 16 668dd, "cut back operations, maintenance, staffing units System."6 Complaint ¶ 17. administered Service consists more 350 refuges encompassing 30 million acres States. primary purpose NWRS provide program "for restoration, preservation, development management wildlife wildlands habitat; protection endangered threatened species obtain maximum benefits resources." 50 25.11(b) (1978).7 environment,8 OMB.9 15 agreed respondents' contentions. Relying provisions then applicable CEQ guidelines,10 Manual,11 held "appropriation 'proposals legislation' NEPA," also "annual clearly significant Club Morton, 395 F.Supp. 1187, 1188, 1189 (1975). motion judgment, provided declaratory injunctive relief. It stated OMB "to prepare, consider, disseminate System."12 App. Pet. Cert. 61a. Appeals Circuit apprehensive "[a] rule requiring preparation virtually trivialize NEPA." 125, 903 (1978). Therefore, "a 'proposal' quo," "the approval appropriations ushers followng U.S.App.D.C., F.2d, 903. on-going program." held, there need relief had completed pendency appeal "Programmatic EIS" adequately evaluated various alternatives.13 Id., 126, 904. United States Final Statement: Operation (Nov. 1976).14 17 certiorari, 439 1065, 829, 59 (1979), we now reverse. II 18 environment" 4332(2)(C). regulations, 56001 1506.8(a)). Petitioners argue, requirements process. contrary rests two alternative interpretations first "an painstaking review program," 903, second reflection "new" initiatives constituting "major NEPA, themselves neither correct. A. note initially "routine." When spoken "in plainest words," TVA Hill, 437 153, 194, 98 2279, 2301, 57 117 (1978), ordinarily decline fracture clear language statute, fashioning resulting fragments "accords 'common sense public weal.' " 195, 2302. either legislation," none does. 20 There direct evidence legislative history enlightens intended phrase appropriations. At decision, applied "[r]ecommendations favorable relating including appropriations." 1500.5(a)(1) (1977).15 nature, assisting complying NEPA. 1500.1(a). 21 1977, President Carter, order create single set uniform, CEQ, "after consultation affected agencies," "[i]ssue implementation procedural provisions" Exec. Order 11991, 124 heads "comply issued since 55978-56007 (1978),16 they prior specifically '[l]egislation' includes bill 56004 1508.17). (Emphasis supplied.) explained reversal noting basis "traditional concepts cycle, considerations timing confidentiality, factors, experience found EISs ill-suited process."17 Fed.Reg., 55989. deference. Warm Springs Dam Task Force Gribble, 417 1301, 1309-1310, 94 2542, 2547, 41 654 (1974) (Douglas, J., chambers). created charged statute responsibility appraise activities light ., make respect thereto." 855, 4344(3). 22 true past somewhat less inclined defer "administrative guidelines" "conflicted pronouncements agency." General Electric Co. Gilbert, 429 143, 97 401, 411, 343 But occurred comprehensive process, President, transforming agencies. American Trucking Assns. Atchison, T. & S. F. R. Co., 387 397, 416, 87 1608, 1618, 847 (1967). A requirement submit raises wholly different serious issues "of fair prudent administration," ibid., nonbinding advice. This particularly correct observation accurately noted "reductio ad absurdum absurd land, fluctuation number forest fire spotters." 124, 902. contend construed so legislation." Brief n. 6, 55-61. 23 "appropriation."18 "prohibit 'legislation' bill." L. Fisher, Concepts Terminology: Appropriations Phase, Studies Taxation, Public Finance Related Subjects—A Compendium (Fund Research 1977). Standing Rules Senate, Rule 16(4) ("No amendment proposes general shall received ."); House Representatives, 96th Cong., 1st Sess., XXI (1979);19 C. Cannon Precedents Representatives §§ 1172, 1410, 1443, 1445, 1448, 1459, 1463, 1470, 1472 (1935). maintained assure financial matters independently another. division labor enable Committees concentrate them trespassing substantive Committee, Congressional Control Expenditures (Comm. Print Senate "previous choice before item might ex rel. Chapman FPC, 345 164 5, 73 609, 616, L.Ed. 918 (1953). Since "have limited specific providing funds authorized programs," U.S., 190, S.Ct., 2299-2300 directed precisely processes "planning decisionmaking," 4332(2)(A), associated underlying legislation, conclude made B 24 actions."20 distorts Act, all; Any redundancy. example, mere funding otherwise unaltered recapitulate initial programs. And expanded manner constituted environment,21 decision.22 An additional add nothing. 25 repetitive. allege complaint decrease NWRS, alter operation 9, supra. respond OMB's variety ways, see 1976), impossible predict particular cut fact determination Service's proposal, cuts premature. Aberdeen Rockfish SCRAP, 422 289, 320, 95 2336, 2355, 45 191 revisions response redundant. redundancy deleterious circumventing eliminating careful legislation. flood focused raised authorization legislation,23 thereby dismantling "division labor" deliberately congressional rules. C 26 therefore, reasons given above, nor actions," requests.24 27 So ordered. 101(b) articulates greater particularity: carry continuing use practicable means, essential policy, improve coordinate plans, functions, programs, end may— "(1) fulfill responsibilities each generation trustee succeeding generations; "(2) Americans safe, healthful, productive, esthetically culturally pleasing surroundings; "(3) attain widest range beneficial without degradation, risk safety, undesirable unintended consequences; "(4) preserve historic, cultural, aspects our heritage, maintain, wherever possible, supports diversity individual choice; "(5) achieve balance population resource permit high standards living wide sharing life's amenities; "(6) enhance renewable approach attainable recycling depletable 4331(b). Of course, promulgated ripens "recommendation [or] although compliance possible," duty yield unavoidable conflict statutory authority." Flint Ridge Development Scenic Rivers Assn., 426 776, 788, 2430, 2438, 205 state "[t]he serve action-forcing device defined [NEPA] infused Government. disclosure document. used officials conjunction relevant material plan decisions." 55994 1502.1). Carter issue statements." consequence, provide: "An commence close developing presented can final proposal. enough practically contribution decisionmaking rationalize justify made. instance: "(a) projects directly undertaken feasibility analysis (go-no go) supplemented later necessary. 55995 1502.5). Parks Conservation Association, Natural Resources Defense Council, Inc. define "environmental mean written Sec. [NEPA]." 1508.11). I-8 I-9 1976). according several statutes. most Coordination 1934, 48 amended, 72 563, 661 seq.; 1956, 70 1119, 742a Migratory Bird ch. 257, 1222, 715 Endangered Species 1973, 884, 1531 seq. behalf themselves, claiming organizational monitoring publicizing members, latter recreational curtailments. "significantly reduced Department's fiscal year 1974 years preparing considering environmental-impact 25. contended 102(2)(B) develop "identify methods procedures, established title presently unquantified amenities appropriate along economic technical considerations." 4332(2)(B). time, 11514, 3(h), "guidelines 904 (1966-1970 Comp.). These (1974). 1500.3. Manual, guidelines, provided: criteria deciding statement: "A. Types include, to: Recommendations 516.5, 36 19344 (1971). Without discussion, formal will, [OMB]'s own administrative proposals, identify prepared, considered, disseminated." 62a. challenge holding. affirmed what took adopt comply obligations imposes 127, 905. 12, taken position draft guidelines. Nixon March 1970. 902 On 30, 1970, interim Quality, First Annual Report: 288 (1970). 23, 1971, 7724 August 1, once again revised, form Appeals. 38 20551 (1973). Courts Fund TVA, 468 1164, 1181 (CA6 1972); Scientists' Institute Information, Atomic Energy Comm'n, 156 395, 404, 481 1079, 1088 become effective July 55978 "[n]othing Council's determination, relieves actions." Comptroller States, cooperation Treasury, Budget, Office, [to] develop, establish, publish standard terminology, definitions, classifications, codes fiscal, budgetary, program-related data information." 88 327, 31 1152(a)(1). Pursuant authority, published definitions distinguishing "authorizing "appropriation." Authorizing manner: "Basic enacted up continues legal indefinitely period sanctions type obligation expenditure program. Such normally prerequisite subsequent kinds authority contained acts. limit amount budge subsequently authorize 'such sums necessary.' Terms Used Budgetary Process (1977). Appropriation, hand, as: act permits incur payments Treasury specified purposes. usually follows enactment authorizing represent cash aside act; limitations amounts obligate respective acts." 3. enactments employ Accounting he submits "with expand function, activity, addition activities, authorities existing operated, tabulation showing— "(A) ensuing account proposal; "(B) estimated four years, immediately added, 84 1169, 11(a)(12) 1913; 2394(c). Executive Branch recognizes distinguishes function "[t]o supervise control administration budget" task clearing coordinating departmental advise Requiring Confirmation Future Appointments Deputy H.R.Rep. 93-697, Neustadt, Presidency Legislation: Growth Central Clearance, Am.Pol.Sci.Rev. 641 (1954). Circular A-19 (1972) establishes "legislative coordination clearance," whereas A-11 "Preparation Submission Estimates." A-19, 6(a), "prepare annually next session Congress. submitted same submissions A-11." A-11, 13.2, provides: "If, regular appears probable further change revenues outlays, tentative forecast supplemental estimate separately. supplementals items appearing Deschler, Procedure 26-1.2 (1977) states "[l]anguage changing law order." Conversely, "[r]estrictions inclusion bills 25-3.1. action" 'Major action' potentially subject responsibility. Major reinforces independent significantly. Actions circumstance where offi- cials fail failure reviewable courts tribunals Administrative action. entirely partly financed, assisted, conducted, regulated, approved agencies; rules, policies, procedures; "(b) tend fall categories: Adoption adopted pursuant 551 treaties international conventions agreements; documents establishing substantially guide prescribe resources, upon future based. group concerted implement plan; systematic connected allocating executive directive. Approval projects, construction located geographic area. Projects regulatory well federally assisted activities." 56004-56005 1508.18). "[M]ajor "expansion revision programs." S.Rep. 91-296, seek initiate ask terminate similar effect, decisions. sought. applies entire designed fund. appropriations, cease exist. existence vel non concomitant request. adjective "major" "reinforces [the adverb] significantly" 20, certain operationally identical Both holdings affects run dangers "trivializing" confidentiality," 55989 led distinguish "appropriations" "legislation," distinguished Because incorrect 14,

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