Document: 541 U.S. 752 DEPARTMENT OF TRANSPORTATION ET AL.v.PUBLIC CITIZEN AL. No. 03-358. Supreme Court of United States. Argued April 21, 2004. Decided June 7, The National Environmental Policy Act 1969 (NEPA) requires federal agencies to analyze the environmental impact their proposals and actions in an Impact Statement (EIS), but Council Quality (CEQ) regulations allow agency prepare a more limited Assessment (EA) if agency's proposed action neither is categorically excluded from EIS production requirement nor would clearly require EIS. An that decides, pursuant EA, no required must issue "finding significant impact" (FONSI). Clean Air (CAA or Act) leaves States develop "implementation plan[s]" comply with national air quality standards mandated by Act, agencies' "conform" those state plans, 42 U. S. C. § 7506(c)(1). In 1982, Congress enacted moratorium, prohibiting, inter alia, Mexican motor carriers obtaining operating authority within authorizing President lift moratorium. 2001, announced his intention moratorium once new were prepared grant carriers. Federal Motor Carrier Safety Administration (FMCSA) published one rule addressing application form for such another establishment safety-inspection regime receiving authority. subsequently provided, 350 Department Transportation Related Agencies Appropriations 2002, funds appropriated could be obligated expended review process any carrier's applications until FMCSA implemented specific safety-monitoring requirements. Acting NEPA, issued EA its rules. did not consider might caused increased presence trucks States, concluding effect moratorium's modification, regulations' implementation. Concluding issuance have impact, FONSI. subsequent interim rules, relied on FONSI demonstrate compliance determined emissions increase fall below Protection Agency's (EPA) threshold levels needed trigger conformity under CAA. Before was lifted, respondents sought judicial arguing promulgation violated NEPA Appeals agreed, finding deficient because it lifting when reasonably foreseeable at time directing full CAA determination regulations. Held: Because lacks discretion prevent cross-border operations carriers, evaluate effects operations. Pp. 763-773. (a) violate relevant CEQ 763-770. (1) decision can set aside only arbitrary capricious, see 5 U.S.C. 706(2)(A). Respondents argue capricious take into account question, whether increase, correlative release emissions, "effect," 40 CFR 1508.8, FMCSA's rules; not, failure address these FONSI's cannot capricious. 763-764. (2) forfeited objection ground adequately discuss potential alternatives never identified comments rules beyond evaluated. 764-765. (3) operations' 350's expenditure bar makes impossible truck operate are issued, hence trucks' entry "reasonably foreseeable" indirect 1508.8. Critically, argument overlooks inability countermand President's otherwise exclude While restricted ability authorize operations, remains subject 49 13902(a)(1)'s mandate register carrier willing able various safety financial responsibility Only prevented doing so before 2001. rest "but for" causation, where considered cause even has effect. However, causation insufficient make responsible particular close causal relationship" akin proximate tort law. Metropolitan Edison Co. v. People Against Nuclear Energy, 460 766, 774. Also, inherent implementing "rule reason," which ensures determine what extent based usefulness information decisionmaking process. underlying policies behind Congress' intent, as informed clear connection between entry. Neither purposes NEPA's requirement— ensure both public receives also play role process—will fulfilled requiring issue. Since power act whatever contained input provide. This analysis changed regulation "cumulative action, 1508.7, since does treat itself consequences promulgation. 765-770. (b) improperly performing To consistent 7506, undertake "a . total direct nonattainment maintenance area [the] equal exceed" certain established EPA. 93.153(b). "Direct emissions" "are initiated occur same place action," 93.152; "indirect "caused action" may later time, practicably controlled maintained agency, ibid. Some sort sufficient evaluating See attributable concluded exceed EPA thresholds. Although arguably causes "direct" they will And "indirect" control maintain over emissions: registering entering country; promulgated, regulate aspect vehicle exhaust trucks. 771-773. 316 F. 3d 1002, reversed remanded. THOMAS, J., delivered opinion unanimous Court. CERTIORARI TO THE UNITED STATES COURT APPEALS FOR NINTH CIRCUIT. Deputy Solicitor General Kneedler argued petitioners. With him briefs Olson, Assistant Attorney Sansonetti, Hungar, Clark, Austin Schlick, John L. Smeltzer, David Shilton, Jeffrey A. Rosen, Peter J. Plocki. Jonathan Weissglass respondents. brief Stephen P. Berzon, Gail Ruderman Feuer, Julie Masters, Adrianna Quintero Somaini, Melissa Lin Perrella, Vladeck, Patrick Szymanski, Rosenfeld, William Lerach, Coughlin, Albert H. Meyerhoff, Thomas O. McGarity.* JUSTICE THOMAS 1 this case, we confront question (NEPA), 83 Stat. 852 (codified, amended, §§ 4321-4370f), (CAA), 7401-7671q, Mexican-domiciled occur. conclude statutes impose FMCSA. 2 * Due complex statutory regulatory provisions implicated begin overview statutes. We then turn factual procedural background. 3 4 Signed law January 1, 1970, establishes "national policy [to] encourage productive enjoyable harmony man environment," intended reduce eliminate damage promote "the understanding ecological systems natural resources important to" 4321. "NEPA results" order accomplish ends. Robertson Methow Valley Citizens Council, 490 332, (1989). Rather, imposes requirements focus analyses actions. id., 349-350. At heart "include every recommendation report legislation other major significantly affecting human environment, detailed statement official — 6 "(i) 7 "(ii) adverse avoided should proposal implemented, 8 "(iii) 9 "(iv) relationship local short-term uses man's environment enhancement long-term productivity, 10 "(v) irreversible irretrievable commitments involved implemented." 4332(2)(C). 11 called (EIS). (CEQ), interpreting it, promulgated guide determining requirement. 1500.3 (2003). document, (EA), produce 1501.4(a)-(b). "concise document" "[b]riefly provide[s] evidence [EIS]." 1508.9(a). If, determines applicable regulations, (FONSI), briefly presents reasons why environment. 1501.4(e), 1508.13. 12 What known became 1963, 77 392. substantially amended roughly current form. 84 1713. 1970 amendments deadlines attainment, while leaving development standards. Ibid. 13 1977, again CAA, 91 749, prohibit Government "engag[ing] in, support[ing] way provid[ing] assistance for, licens[ing] permit[ting], approv[ing], activity conform [a state] implementation plan." definition "conformity" includes restrictions on, instance, "increas[ing] frequency severity existing violation standard area," "delay[ing] timely attainment area." 7506(c)(1)(B). These safeguards interfering States' abilities CAA's 14 FMCSA, (DOT), registration. 113(f). variety mandates, including "ensur[ing]" safety, 31136, establishing minimum 31139, prescribing inspections commercial vehicles, 31142. Importantly, regarding registration: It registration all domestic foreign "willing with" fitness, financial-responsibility 13902(a)(1). enforce controls establish unrelated safety. B 15 now background case. domiciled Canada Mexico obtain certification Interstate Commerce Commission (ICC).1 Congress, concerned about discriminatory treatment Canada, 2-year grants authorized extend period continued interfere modify he interest. 10922(l) (1982 ed.). Canadian quickly remained, extended President. 16 December 1992, leaders Mexico, signed North American Free Trade Agreement (NAFTA), 32 I. M. 605 (1993). As part NAFTA, agreed phase out permit interior 2000. On NAFTA's effective date (January 1994), began trade allowing licensing provide some bus services President, however, continue ease timetable specified concerns adequacy Mexico's remained. 17 challenged dispute-resolution process, February international arbitration panel "blanket refusal" breached obligations NAFTA. App. 279, ¶ 295. Shortly thereafter, made following preparation governing 18 May comment concerning One (the Application Rule) addressed seek authorization Another Monitoring receive Rule. 19 115 833. Section 864, provided went Rules. conditions appropriations Fiscal Years 2003 20 acting programmatic evaluated associated three separate scenarios: moratorium; (contrary legally possible) regulations; Proposed Action Alternative, adopt categories traffic congestion, health, quality, noise, socioeconomic factors, justice. Vital EA's analysis, assumption there change volume due note But, "this characteristics result modification moratorium" 60. "effect" 21 focused, then, likely arise number roadside buses (such slight noise trucks, possible danger passing motorists) minor itself. noted inspection-related least partially offset fact calculations, day released 22 March 19, two delaying 3, added satisfy 350. preambles, NEPA. need perform "conformity review" 7506(c)(1) review. 23 November lifted qualified filed petitions Rules, respondents, granted petitions, 1002 (CA9 2003). 24 failed give adequate consideration overall operation According Appeals, rescission `reasonably foreseeable' made." Id., 1022 (quoting 1508.8(b) (2003)). perceived deficiency, remanded case 25 directed reliable reflected "illusory distinction themselves presidential entry." 3d, 1030. 26 certiorari, 540 1088 (2003), reverse. II 27 upon showing "arbitrary, abuse discretion, accordance law." Marsh Oregon Natural Resources 360, 375-376 (1989); Kleppe Sierra Club, 427 390, 412 (1976). Here, EA; flawed. particular, criticize 28 Under undertaking "major actio[n]," "significantly affect[s] environment." "[m]ajor defined "includ[e] potentially responsibility." 1508.18 "Effects" "include: Direct effects, place," "(b) Indirect farther removed distance, still foreseeable." Thus, Rules; 29 answer explaining involve. properly us, despite respondents' contrary, Brief 38-41, challenge (i. e., rules) mitigate Persons challenging "structure participation alerts [parties'] position contentions," meaningful consideration. Vermont Yankee Power Corp. Defense Inc., 435 519, 553 (1978). None rulemaking none urged alternatives. raise objections given opportunity examine available. therefore action. 30 Admittedly, bears primary complies ibid., EIS' flaws obvious commentator point them specifically preserve But situation us. respect mitigate, indirectly, through making safety-registration onerous removing older, polluting enforcement fail identify shows significant, noticeable, air-quality purposes. harms alleged tenuous best. Nor could, already 31 aside, complaint EA: Respondents' simple. 350, barred expending here. goes, "caus[e]" (and produce), 1508.8 concludes, argument, critical feature case: sure, restrict mandates. 13902(a)(1), "shall person transportation [it] finds DOT. (Emphasis added.) entirely reasonable reading provision, certify show substantive DOT 51-55. refused services, responsibilities 33 If truly presented irreconcilable conflict laws. quite possibly win out. Posadas City Bank, 296 497, 503 (1936). easily mandates: inspection start processing conditions. Without conflict, 34 rest, particularly unyielding variation held 774 (1983), cause. analogized "familiar doctrine "courts look legislative intent draw manageable line changes actor do not." 774, n. 7. W. Keeton, D. Dobbs, R. & Owen, Prosser Keeton Law Torts 264, 274-275 (5th ed. 1984) (proximate turns considerations "legal responsibility" actors). 35 "`rule reason,'" Marsh, S., 373-374. Where serve "no purpose" light scheme whole, reason worthy title Aberdeen Rockfish Students Challenging Regulatory Agency Procedures (SCRAP), 422 289, 325 (1975); 1500.1(b)-(c) 36 circumstances, serves First, "[i]t reaching decision, available, carefully consider, impacts." Robertson, 349. Second, "guarantees available larger audience decision." Requiring fulfill decisionmaking—FMCSA simply 37 Similarly, informational purpose served. "informational role" "giv[e] assurance `has indeed process,' Baltimore Gas Electric [v. 462 87, 97 (1983)], and, perhaps significantly, provid[e] springboard comment" itself, here "larger audience," necessary decisions. 1500.1(c) (2003) ("NEPA's generate paperwork excellent foster help officials decisions consequences, protect, restore, enhance environment"); 1502.1 ("The action-forcing device insure goals infused ongoing programs Government"). here, audience" decisionmaking, since, just noted, provide.2 38 therefore, reason" refuse perform. Put way, instead granting simultaneously limiting discretion. 39 Consideration CEQ's analysis. "[c]umulative results incremental past, present, future regardless (Federal non-Federal) undertakes actions." 1508.7. "incremental themselves, context circumstances. exactly EA. appropriately examined assuming (and, hence, carriers). Rules.3 C hold actions, "cause" Hence, action." (or authorize) arising entry.4 III 41 "department, instrumentality" generally, "engage support license permit, approve, activity" violates plan. 7506(c)(1); 93.150(a) must, many 93.150(b), 93.153(a)-(b). exempt general emission rates forth amounts Pet. Cert. 65a-66a, 155a. Critical calculations trucks; like EPA's each pollutant 93.153(b) covered "that 93.152. term "[i]ndirect means 43 "(1) Are and/or further distance foreseeable; 44 "(2) continuing program agency." 45 Unlike "[c]aused by." by" "emissions absence sufficient. 46 emissions. 47 control, discussed above, being registered Once pollute excessively. actually bring routes take, emit. Any reduction hands mere happenstance. said "practicably control[s]" "will control" follows emissions." Ibid.; Determining Conformity Actions State Implementation Plans, 58 Fed. Reg. 63214, 63221 (1993) believe prohibitions cases where, although approving initial step activity"). 48 failing determination." IV performing, reject procedures used promulgating Accordingly, judgment reversed, proceedings opinion. 50 ordered. Notes: Briefs ofamici curiae urging affirmance California et al. Bill Lockyer, California, Susan Durbin Gordon B. Burns, Attorneys General, Manuel Medeiros, Tom Greene, Chief Theodora Berger, Senior Craig Thompson, Supervising respective follows: Terry Goddard Arizona, Lisa Madigan Illinois, Reilly Massachusetts, Patricia Madrid New W.A. Drew Edmondson Oklahoma, Hardy Myers Oregon, Christine Gregoire Washington, Peggy Lautenschlager Wisconsin; Public Health Association Hope Babcock; Defenders Wildlife Pamela Karlan Sanjay Narayan; Eagle Forum Education Legal Fund Karen Tripp; South Coast Management District Barbara Baird V. Tubert. 1995, abolished ICC transferred most Secretary Transportation. Termination 101, 109 803. 1999, newly created Improvement 113 1748 left useful outside 42. core improving decisionmaking. 1500.1, 1500.2, contend numerous errors, contentions premised conclusion ratified Appeals' after lower court's opinion, reenacted bills. ratification states "Congress presumed aware [a] interpretation statute re-enacts without change."Lorillard Pons, 434 575, 580 involves Indeed, precise below, dispute. congressional reenactment tells us nothing view so, legal issues been silent.

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