Source: http://ny.findacase.com/research/wfrmDocViewer.aspx/xq/fac.19850911_0040349.C02.htm/qx
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Document Index: 99495913

Matched Legal Cases: ['§ 4321', '§ 101', 'arts 1500', 'art 230', '§ 230', '§ 1502', '§ 1251', '§ 1344', '§ 1344', '§ 1344', 'art 230', 'art 323', '§ 230', '§ 231', '§ 706', '§ 706', '§ 706', '§ 230', '§ 320', '§ 230', '§ 1502']

| Sierra Club v. United States Army Corps of Engineers
SIERRA CLUB, HUDSON RIVER FISHERMEN'S ASSOCIATION, NYC CLEAN AIR CAMPAIGN, INC., THE HUDSON RIVER SLOOP CLEARWATER, INC., THE CITY CLUB OF NEW YORK, BUSINESS FOR MASS TRANSIT, COMMITTEE FOR BETTER TRANSIT, INC., WEST 12TH STREET BLOCK ASSOCIATION, FRIENDS OF THE EARTH, OTIS BURGER, MARY ROWE, AND HOWARD SINGER, PLAINTIFFS-APPELLEESv.UNITED STATES ARMY CORPS OF ENGINEERS, JOHN MARSH, AS SECRETARY OF THE ARMY OF THE UNITED STATES, E R. HEIBERG, III, AS CHIEF OF ENGINEERS, FLETCHER H. GRIFFIS, AS NEW YORK DISTRICT ENGINEER, UNITED STATES DEPARTMENT OF TRANSPORTATION, ELIZABETH DOLE, AS SECRETARY OF TRANSPORTATION OF THE UNITED STATES, FEDERAL HIGHWAY ADMINISTRATION, RAYMOND A. BARNHART, AS FEDERAL HIGHWAY ADMINISTRATOR, UNITED STATES ENVIRONMENTAL PROTECTION AGENCY, LEE THOMAS, AS ADMINISTRATOR OF THE ENVIRONMENTAL PROTECTION AGENCY, CHRISTOPHER J. DAGGETT, AS ADMINISTRATOR, REGION II OF THE ENVIRONMENTAL PROTECTION AGENCY, JAMES L. LAROCCA, AS COMMISSIONER OF THE NEW YORK STATE DEPARTMENT OF TRANSPORTATION, DEFENDANTS AND UNITED STATES ARMY CORP OF ENGINEERS, FEDERAL HIGHWAY ADMINISTRATION AND THE NEW YORK STATE DEPARTMENT OF TRANSPORTATION, DEFENDANTS-APPELLANTS
Appeal by defendants, the U.S. Army Corps of Engineers, the Federal Highway Administration and the New York State Department of Transportation, et al, from a judgment entered in favor of the Sierra Club and other plaintiffs in the United States District Court for the Southern District of New York (Griesa, J.) that voided a landfill permit and federal funding issued by the federal defendants for the construction of Westway. The judgment appealed from also permanently enjoined the construction of this public project. Affirmed in part, reversed in part and remanded. Judge Mansfield concurs in part and dissents in part in a separate opinion.
Before: MANSFIELD, CARDAMONE and PRATT, Circuit Judges.
Early Chronology and Prior Legal Proceedings
Litigation brought to challenge the permit's issuance has been before us previously. Sierra Club v. United States Army Corps of Engineers, 701 F.2d 1011 (2d Cir. 1983); Sierra Club v. Hennessy, 695 F.2d 643 (2d Cir. 1982). In these two decisions we upheld essentially the district court's conclusion that the 1977 FEIS--which described the Westway area as a "biological wasteland" (suggesting no fish lived there)--had failed to reveal to the public the possible importance of the site as a winter habitat for juvenile striped bass. Action for Rational Transit v. West Side Highway Project, 536 F. Supp. 1225, 1229 (S.D.N.Y. 1982). At that time many experts believed the juvenile striped bass used the Westway landfill area as an "overwintering" habitat--a place where these young fish remained more or less constantly throughout the winter months. 701 F.2d at 1024; 536 F. Supp. at 1246-1247.
On May 28, 1984 the Corps and FHWA published a Draft Supplemental Environmental Impact Statement (DSEIS or draft report). The DSEIS concluded that the proposed Westway project landfill would cause a significant loss of habitat to Hudson River juvenile striped bass. It stated that such loss would be a "significant adverse impact to the Hudson River Stock of this species." Though not critical, the SEIS [sic] continued, Westway would likely cause "long-term repercussions" resulting in "depressed population levels for the foreseeable future." That harm could be amplified by other projects, e.g., Battery Park City and Jew Jersey's Harbor Drift, and "the danger to the stock and its ability to recover from the Westway loss could ultimately hinge on what direction these other proposals take." Finally, the draft report stated it would be "imprudent to consider any such habitat loss as projected by the Westway landfill to be either minimal, insignificant, or sustainable at current population levels."
In late November 1984 after having reviewed all of the comments received on the DSEIS and having completed its analysis, the Corps issued a Final Supplemental Environmental Impact Statement (FSEIS or final report). In that final report the Corps concluded that the perceptible long-term decline in stock would be difficult to discern from normal yearly fluctuations and would have only "minor impacts" on the fishery. Even in a worst case scenario, the Corps continued, the consequence of the landfill would still be "insufficient to significantly impact" the commercial fishery and "though persistent, the magnitude of the depressed population is likely to be relatively small . . . and not a critical (or even minor) threat to its well being, nor to that of the commercial/recreational fishery."
On April 18, 1985 plaintiffs filed a Supplemental Complaint in this action alleging that the landfill permit issued for Westway's construction was invalid. The U.S. Environmental Protection Agency (EPA) was aided as a defendant.
NEPA is designed to "encourage productive and enjoyable harmony between man and his environment ... [and to] prevent or eliminate damage to the environment...." 83 Stat. 852, 42 U.S.C. § 4321. Section 101(2)(C) of NEPA sets forth procedures to insure the achievement of these substantive purposes. It provides:
The Congress authorizes and directs that, to the fullest extent possible . . . (2) all agencies of the Federal Government shall--
(C) include in every recommendation or report on proposals for legislation and other major Federal actions significantly affecting the quality of the human environment a detailed statement by the responsible official on--
Congress' aim under § 101(2)(C) is to force federal agencies to consider environmental concerns early in the decisionmaking process so as to prevent any unnecessary despoiling of the environment. The "detailed statement by the responsible official" is procedurally required because its presence evidences the fact that environmental consequences were factored into the planning stage of agency deliberation. Andrus v. Sierra Club, 442 U.S. 347, 350-51, 60 L. Ed. 2d 943, 99 S. Ct. 2335 (1979). The object is for an agency to reach a decision only upon which it is fully informed and only after the decision has been well-considered. Vermont Yankee Nuclear Power Corp. v. NRDC, 435 U.S. 519, 558, 55 L. Ed. 2d 460, 98 S. Ct. 1197 (1978). The "detailed statement" thus helps a reviewing court to decide whether an agency has met that objective. It serves further as an environmental full disclosure law so that the public can weigh a project's benefits against its environmental costs. To that end it must be written in clear, understandable language. Perhaps most important, the detailed statement insures the integrity of the agency process by forcing it to face those stubborn, difficult-to-answer objections without ignoring them or sweeping them under the rug. Silva v. Lynn, 482 F.2d 1282, 1284-85 (1st Cir. 1973).
The Council on Environmental Quality (CEQ) has adopted regulations implementing NEPA contained in 40 C.F.R. Parts 1500-1508. The Corps has promulgated regulations set forth in 33 C.F.R. Part 230 that are designed to supplement the CEQ final regulations. Under § 230.11 of the Corps' regulations a draft EIS is required. A draft EIS must "fulfill and satisfy to the fullest extent possible the requirements established for final statements in section 102(2)(c) of the Act." 40 C.F.R. § 1502.9(a).
Policy goals similar to those contained in NEPA are expressed in the Clean Water Act of 1977, particularly for the protection and propagation of fish. 33 U.S.C. § 1251(a)(2). This Act grants authority to the Secretary of the Army, after notice and opportunity for public hearings, to issue a permit for dredged or fill material to be discharged into navigable waters. 33 U.S.C. § 1344(a).
Regulation of the discharge of dredged or fill material has been entrusted to the Corps and to the EPA. The Corps has the responsibility for issuing or denying permits for such discharge. See 33 U.S.C. § 1344(a). The EPA develops guidelines governing the issuance of a permit, see Id. § 1344(b)(1). The EPA promulgated the 404(b)(1) Guidelines that are set forth in 40 C.F.R. Part 230. Under these regulations, if a proposed landfilling does not comply with the Guidelines, the Corps must deny a permit. 49 Fed. Reg. 39479 (Oct. 5, 1984) (adding section 323.6(a) to 33 C.F.R. Part 323). The Guidelines further prohibit landfilling "unless it can be demonstrated" that the activity will not have an "unacceptable adverse impact" on the aquatic ecosystem. See 40 C.F.R. § 230.1(c). Under the regulations, "unacceptable adverse effect" is defined as an "impact on an aquatic or wetland ecosystem which is likely to result in ... significant loss of or damage to fisheries...." Id. § 231.2(e). Thus, to comply with the Guidelines, an applicant must demonstrate that the proposed project will not likely result in significant loss of or damage to fisheries.
Since judicial review is not specifically provided for under either NEPA or the Clean Water Act, review is under the Administrative Procedure Act, 5 U.S.C. § 706. Under that law challenged agency action must be set aside if found to be "arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law." 5 U.S.C. §§ 706(2)(A).
When reviewing an administrative decision made under NEPA, the purpose is to ensure that the agency has considered the environmental consequences of its proposed action. Strycker's Bay Neighborhood Council v. Karlen, 444 U.S. 223, 227, 62 L. Ed. 2d 433, 100 S. Ct. 497 (1980). To conform with NEPA, a reviewing court need only find that the agency considered the environmental consequences of its proposed actions. An agency making a decision under this statute does not have to accord environmental concerns any more weight in the decisionmaking process than other appropriate concerns. If an agency decides that the economic or social benefits of a project outweigh its environmental costs, its choice must be affirmed so long as the procedural requirements of NEPA were followed, that is, environmental consequences were considered. Id. at 227.
In weighing whether an agency has met NEPA's expressed objectives the test is not whether the district court, this Court or even the Supreme Court would have reached the decision under review had we been decisionmakers within the agency. Rather, the judicial role is relegated to affirming the agency's decision so long as a rational basis is presented for the decision reached. Bowman Transportation Inc. v. Arkansas-Best Freight System, Inc., 419 U.S. 281, 290, 42 L. Ed. 2d 447, 95 S. Ct. 438 (1974). Consistent with our concept of federalism, a reviewing court's scope is so limited because it may not "interject itself within the area of the executive as to the choice of the action to be taken." Kleppe v. Sierra Club, 427 U.S. 390, 410 n.21, 49 L. Ed. 2d 576, 96 S. Ct. 2718 (1976).
In the past, as Dean Landis noted, there may have been a sense of contest between courts and administrative agencies because courts are not unaware that vast areas of government formerly within their control have been handed over to administrative agencies. J. Landis, The Administrative Process, 123 (1938). Fact-finding by trained and specialized administrators, provided that it is reasonable looking at the whole record, is now firmly established. Congress has excluded the courts from the fact-finding process and any attempt to turn the clock back and renew the contest by reinsinuating the judiciary into the area now reserved to executive expertise should be sharply rejected. The power of a court in effectuating the purpose of judicial review generally is narrowly drawn. Courts must defer to the action taken by the agency, which is presumed to be valid. Citizens to Preserve Overton Park v. Volpe, 401 U.S. 402, 419, 28 L. Ed. 2d 136, 91 S. Ct. 814 (1971). Within these bounds, a reviewing court must undertake a searching inquiry to ascertain whether the agency has given reasons that connect the facts it found to the choice made. To permit intelligent judicial review an agency must indicate the basis on which it exercised its expert discretion. SEC v. Chenery Corp., 318 U.S. 80, 94-95, 87 L. Ed. 626, 63 S. Ct. 454 (1943).
Normally, an agency's action is held to be arbitrary and capricious when it relies on factors Congress did not want considered, or utterly fails to analyze an important aspect of the problem, or offers an explanation contrary to the evidence before it, or its explanation--as is apt here--is so implausible that it cannot be ascribed to differing views or agency expertise. See Motor Vehicle Mfrs. Assn. v. State Farm Mut., 463 U.S. 29, 43, 103 S. Ct. 2856, 77 L. Ed. 2d 443 (1983). While a reviewing court may not supply the basis for the agency's decision--lest it interfere with matters entrusted to the executive branch--it will uphold a decision of less than ideal clarity if the "path which [the agency] followed can be discerned." Colorado Interstate Gas Co. v. FPC, 324 U.S. 581, 595, 89 L. Ed. 1206, 65 S. Ct. 829 (1945). See SEC v. Chenery Corp., 332 U.S. 194, 196, 91 L. Ed. 1995, 67 S. Ct. 1575 (1947). With the recited rules of review in mind, we discuss the issues raised on this appeal.
Title 5 U.S.C. § 706(2)(F) requires that "the reviewing court shall--hold unlawful and set aside agency action, findings, and conclusions found to be--unwarranted by the facts to the extent that the facts are subject to trial de novo by the reviewing court." "[De] novo review is appropriate only where there are inadequate factfinding procedures in an adjudicatory proceeding, or where judicial proceedings are brought to enforce certain administrative actions." Camp v. Pitts, 411 U.S. 138, 141-42, 36 L. Ed. 2d 106, 93 S. Ct. 1241 (1973) (per curiam) citing Citizens to Preserve Overton Park v. Volpe, 401 U.S. at 415. This case raises neither of these two instances. The permit determination is not adjudicatory and the Sierra Club did not bring this litigation in support of the Corps' actions.
In contrast plenary review, which is more limited than de novo review, is permitted when the agency's record is so sparse as to make judicial review ineffectual. Courts cannot intelligently perform their reviewing function if an administrative record is inadequate, incomplete or, as here, inconsistent. Pitts, 411 U.S. at 142. As a consequence, through plenary review a district court may "obtain from the agency, either through affidavits or testimony, such additional explanation of the reasons for the agency decision as may prove necessary." Id. at 142-43. See also, Citizens to Preserve Overton Park v. Volpe, 401 U.S. at 420; County of Suffolk v. Secretary of Interior, 562 F.2d 1368 (2d Cir. 1977), cert. denied, 434 U.S. 1064, 55 L. Ed. 2d 764, 98 S. Ct. 1238 (1978); Natural Resources Defense Council Inc. v. Callaway, 524 F.2d 79 (2d Cir. 1975); Environmental Defense Fund v. Costle, 211 U.S. App. D.C. 313, 657 F.2d 275, 284 (D.C. Cir. 1981).
Except as provided under section 404(b)(2), "no discharge of dredged or fill material shall be permitted which will cause or contribute to significant degradation of the waters of the United States . . . Under these Guidelines, effects contributing to significant degradation...include:
(1) Significantly adverse effects of the discharge . . . on human health or welfare, including but not limited to effects on ... fish, shellfish, wildlife, and special aquatic sites.
(3) Significantly adverse effects . . . on aquatic ecosystem diversity, productivity, and stability. Such effects may include, but are limited to, loss of fish and wildlife habitat... ."
40 C.F.R. § 230.10(c) (emphasis supplied).
Plainly, the word "significant" as used in the regulatory context under which the Corps operates means important, major or consequential. Moreover, the use of the word "significant" signals that the issuance of a landfill permit would be a violation of the Clean Water Act. No court should allow the use of semantics to succeed in an attempt at glossing over an environmental violation. Neither Judge Griesa nor we are required to defer to the Corps' Orwellian-like "doublespeak," particularly when it is remembered that a primary purpose of these reports is to inform the public and provide a basis for future environmental decisions by other governmental agencies. Thus, the change from "significant adverse impact" to "minor impacts" required an explanation and that explanation should have been in the final report. Neglecting to include it illustrates again the insight of Franklin's maxim that "a little neglect may breed great mischief." B. Franklin, Maxims . . . Prefixed to Poor Richard's Almanac (1758).
The "public interest review" regulations require that the Corps give "full consideration" to these agencies' views "in deciding the issuance, denial, or conditioning of individual or general permits." 33 C.F.R. § 320.4(c). 49 Fed. Reg. 39482 (October 4, 1984). Under these regulations the Corps is not bound to agree with the conclusions reached by these resource agencies, but simply required to listen to and consider their views in the decisionmaking process. See, e.g., Corps of Engineers v. National Marine Service, Inc., 764 F.2d 445, slip op., at 11 (7th Cir. May 17, 1985); Sierra Club v. Alexander, 484 F. Supp. 455, 469-70 (N.D.N.Y.), aff'd without opinion, 633 F.2d 206 (2d Cir. 1980). The trial judge recognized this when he stated that "the Corps was not required to accept the views of these agencies as binding, but serious consideration was warranted."
We further hold that issuing an order permanently enjoining the construction of Westway was an abuse of the district court's discretion. It is not within the power of the judiciary to bar an executive agency from making administrative decisions, assuming full, good faith compliance with the requirements of NEPA and the Clean Water Act. No authority exists to support the granting of such drastic relief. On the contrary, the Supreme Court has repeatedly held that if an administrator's action is not "sustainable on the administrative record . . . then the . . . decision must be vacated and the matter remanded...[to the administrator] for further consideration." Vermont Yankee Nuclear Power Corp. v. Natural Resources Defense Council, 435 U.S. at 549; Federal Power Commission v. Transcontinental Gas Pipe Line Corp., 423 U.S. 326, 331, 46 L. Ed. 2d 533, 96 S. Ct. 579 (1976) (per curiam); Camp v. Pitts, 411 U.S. at 143.
We affirm the district court's conclusions that the proffered denial of the change from "significant adverse impact" in the DSEIS to the "minor impact" in the FSEIS was a post-hoc rationalization unworthy of belief by this Court and that the Corps had failed to provide any reasoned explanation for the change. Nonetheless, we do not agree with the dissenter that additional field studies of the Hudson River Fishery would be required before the Corps on remand could properly grant a permit. Perhaps a fresh look at the collected data could produce a clear, logical and good faith explanation for the change. Such an effort could be plausibly advanced as within the federal defendants' discretion.
The record demonstrates that Westway, a long-range project that may well be in the public interest, has ironically been "roadblocked" by the U.S. Army Corps of Engineers, the very agency that might, if it had complied with its duties under the National Environmental Policy Act (NEPA) and the Clear Water Act (CWA), have paved the way for its construction. Despite the blueprint offered by our thorough analysis of its earlier errors, see Sierra Club v. United States Army Corps of Eng., 701 F.2d 1011 (2d Cir. 1983) (Sierra Club), the Corps has simply repeated them upon remand, presenting us with all the aspects of a deja vu.
In its initial EIS, the Corps tried to sweep under the rug evidence indicating that there were "significant numbers of fish in the interpier area", id. at 1023, and that the area might be an important fisheries habitat. Instead it described the site as a "biological wasteland", id. at 1019. Then, after we remanded with directions to comply with NEPA and the CWA, it concluded in its DSEIS that the proposed landfill of the interpier area would have a "significant adverse impact" on the Hudson River fishery, 2 DEIS at 42. That conclusion would have required denial of a landfill permit under the CWA. 40 C.F.R. §§ 230.10(c), 231.2(e). Six months later, however, without any explanation or new relevant evidence, it turned full circle and concluded in its FSEIS that the impact would be "minor" and insignificant. 2 FEIS at 50-51, 65-66. This arbitrary, unreasoned flip-flop, exacerbated by the Corps' defiance of our recordkeeping order, clearly violated NEPA and the CWA. Indeed, the Corps has virtually repeated the remarkably similar failure to explain a dramatic swing in its views that we found to violate NEPA in Natural Resources Defense Council, Inc. v. Callaway, 524 F.2d 79 (2d Cir. 1975) (change of ocean site for dumping of dredged material).
I agree that the proper remedy is not an injunction but a remand to the Corps for further proceedings in compliance with its statutory obligations. The Supreme Court has made it clear that if an administrator's action is not "sustainable on the administrative record . . . then the . . . decision must be vacated and the matter remanded . . . [to the administrator] for further consideration." Vermont Yankee Nuclear Power Corp. v. Natural Resources Defense Council, 435 U.S. 519, 549, 55 L. Ed. 2d 460, 98 S. Ct. 1197 (1978) (quoting Camp v. Pitts, 411 U.S. 138, 143, 36 L. Ed. 2d 106, 93 S. Ct. 1241 (1973) (per curiam)); see also Federal Power Commission v. Transcontinental Gas Pipe Line Corp., 423 U.S. 326, 331, 46 L. Ed. 2d 533, 96 S. Ct. 579 (1976) (per curiam).
I must respectfully dissent, however, from the majority's holding that the district court's review of the Corps' decision was entirely de novo and an abuse of discretion which may be excused only because of the Corps' violation of our recordkeeping order and the unexplained inconsistency between the DSEIS and the FSEIS. In my view, although a portion of the district court's scrutiny of the Corps' conduct was an improper de novo review, most of its examination was fully within its power, under the Administrative Procedure Act, to review an agency's conduct for the purpose of determining whether the agency had complied with the procedural requirements of NEPA and CWA.
" De novo " review is substantive in character. It occurs when a court refuses to defer to an administrative body's decision but, starting afresh, conducts an evidentiary hearing for the purpose of deciding what decision the agency should have reached. In essence the court substitutes its view of the merits for that of the agency. Camp v. Pitts, supra, 411 U.S. at 142; Citizens to Preserve Overton Park v. Volpe, 401 U.S. 402, 414-15, 28 L. Ed. 2d 136, 91 S. Ct. 814 (1971). A de novo review is permissible only "when the action is adjudicatory in nature and the agency fact finding procedures are inadequate [or] ... when issues that were not before the agency are raised in a proceeding to enforce non adjudicatory agency action." Id. at 415. See also Camp, supra, 411 U.S. at 142. It is not warranted by an agency's "failure to explain administrative action." Id. at 142-43.
On the other hand, under NEPA and CWA a court is empowered to make a procedural or plenary review to insure that an agency has complied with each of the steps required of it by relevant statutes and regulations and "has taken a 'hardlook' at environmental consequences" of its actions. Kleppe v. Sierra Club, 427 U.S. 390, 410 n.21, 49 L. Ed. 2d 576, 96 S. Ct. 2718 (1976). See also Sierra Club, supra, 701 F.2d at 1029. Implicit in that obligation is a duty to make an adequate compilation of relevant information, to analyze it reasonably and, perhaps most importantly, not to ignore "pertinent data." Id. at 1029.
A procedural review is called for when the administrative record or evidence proffered by others suggests that the agency has violated its basic duties under NEPA. It is triggered when the record (1) fails to disclose the reasons for the agency's action. Camp, supra, 411 U.S. at 143; Overton Park, supra, 401 U.S. at 420; (2) fails to show that the agency obtained and adequately considered available, relevant, material evidence, Sierra Club, supra, 701 F.2d at 1029; or (3) demonstrates that the EIS contains some glaring sin of omission or other defect, County of Suffolk v. Secretary of the Interior, 562 F.2d 1368, 1384 (2d Cir. 1977), cert. denied, 434 U.S. 1064, 55 L. Ed. 2d 764, 98 S. Ct. 1238 (1978). In considering whether the nature and depth of the agency's investigation was adequate this court looks to a range of factors, including "(1) whether obtaining more detailed useful information on the topic ... is 'meaningfully possible' ... and (2) how important it is to have the additional information." County of Suffolk, supra, 562 F.2d at 1378. In short, the court considers, among other factors, the importance and weight of the additional evidence, the difficulty and cost involved in obtaining it, and the extent to which it would be merely cumulative.
Obviously, because a procedural review considers how the administrative record was developed and whether, once developed, it was complete, judicial scrutiny of the agency's activities is not limited to the record alone. Camp, supra, 411 U.S. at 143; Overton Park, supra, 401 U.S. at 420. Rather, the courts may conduct "a thorough, probing, in-depth review" of what the agency did and why. Id. at 415. To do so it may "obtain from the agency, either through affidavits or testimony, such additional explanation of the reasons for the agency decision as may prove necessary," Camp, supra, 411 U.S. at 143, and "require the administrative officials who participated in the decision to give testimony explaining their action." Overton Park, supra, 401 U.S. at 420. As we have recognized time and again:
"Allegations that an EIS has neglected to mention a serious environmental consequence, failed adequately to discuss some reasonable alternative, or otherwise swept 'stubborn problems or serious criticism ... under the rug' ... raise issues sufficiently important to permit the introduction of new evidence in the district court ... in challenges to the sufficiency of an environmental impact statement . . ." Citizens for Balanced Environment v. Volpe, 650 F.2d 455, 461 (2d Cir. 1981) quoting County of Suffolk, supra, 562 F.2d at 1368).
A procedural review, however, has firm borders. It is deep, but not broad. The court may, for example, judge the credibility of witnesses, but only as their testimony affects procedural issues. It may not substitute its view of the merits or of "the choice of action to be taken" for the agency's. Strycker's Bay Neighborhood Council v. Karlen, 444 U.S. 223, 227, 62 L. Ed. 2d 433, 100 S. Ct. 497 (1980) (per curiam); Vermont Yankee, supra, 435 U.S. at 558. It is the agency's province to decide what the executive should do and the court's function to insure that the decision was rooted in careful consideration of all relevant factors and reached only after the relevant evidence and agency's rationale were put before the public. Sierra Club, supra, 701 F.2d at 1029.
Applying these principles here, I cannot agree with the majority that Judge Griesa's evidentiary hearing amounted entirely to an impermissible de novo review of the Corps' conduct. (See Maj. Op. 17-18). Indeed, if that were the case, Camp and Overton Park would require us to reverse his decision, not affirm it in substantial part.
With near unanimity, the Corps' consultants called for, at least, a 2-winter study. Following the earlier remand of this case to the Corps, Malcolm Pirnie, Inc. was retained by the Corps to analyze existing fishery data with respect to the Westway area and to recommend whether additional fishery studies were needed to determine how many fish used that area and their movements. It produced a report recommending two studies, (1) a fish sampling program for a minimum of three years, and (2) a habitat survey for a minimum of one year. At meetings of the Corps, Malcolm Pirnie, Inc., the NMFS, the FWS and the Environmental Protection Agency (EPA), it was agreed that the study could be reduced to two winters and still gather enough data. The Corps then convened a workshop of leading experts in striped bass ecology, sampling design, statistics and hydroacoustics to consider the matter and, after thorough review and further consultation with the FWS, NMFS and the EPA, it was the unanimous view of all that there should be a 17-month, 2-winter study of the fishery habitat during the period from December 1982 to April 1984, to determine how many fish used the Westway site and their movements.
When the New York Department of Transportation objected to the proposed study, Col. Fletcher H. Griffis, District Corps Engineer, in July 1983 convened a second workshop of some 39 persons, including representatives of the Corps, FWS, NMFS, EPA, New York Department of Conservation, New Jersey Department of Environmental Protection and many of the independent experts who had attended the 1982 workshop. A majority of the participants approved the 1982 proposal for a 17-month 2-winter study, which would commence in December 1983. The Governor of New York, however, registered his objection with the Secretary of the Army, and Col. Griffis' decision to go forward with the study was in short order countermanded, without explanation, by the Chief of Army Engineers, based on the conclusion of a specially selected Task Force that did not include any of the experts who had favored the 2-winter study. Accordingly, the Corps was only permitted to make a study lasting through the remainder of the 1983-84 winter, i.e., from December 1983 to April 1984.
Perhaps the clearest illustration of how the Corps' failure to get essential facts tainted the environmental impact statements was its elimination of the "overwintering" theory as a base for its "worst case" analysis. 40 C.F.R. § 1502.22(b)'s requirement that the Corps carry out a worst case analysis "requires [that] impact statements, at a minimum, contain information to alert the public and Congress to all known possible environmental consequences of agency action." Forty Most Asked Questions concerning CEQ's NEPA Regulations, 46 Fed. Reg. 18,026, 18,032 (1981) (answer to Question 20b) (emphasis in original). See also Sierra Club v. Sigler, 695 F.2d 957, 971-72 (5th Cir. 1983). In preparing its worst case analysis, however, the Corps dismissed the possibility that bass overwinter in Westway and adopted the "migratory theory", which assumed that the bass leave Westway and move out to sea in mid-winter. The Corps' study, however, had found few juvenile bass in the areas to which they had supposedly migrated but showed, on the contrary, that significant numbers of the fish were in Westway throughout the winter. It is ludicrous to think that the Corps fulfilled its obligation to produce a worst case analysis when it rejected, in the face of such contradictory evidence, the possibility that the bass overwintered in, rather than migrated through, Westway. The district court's findings that the Corps did not give "full consideration" to the views of the FWS, NMFS and EPA, and that the FSEIS improperly enlarged the scope of Westway and failed to consider alternatives to its redevelopment aspects, stand on a different footing. With respect to the latter, Judge Griesa's conclusion is at odds with the evidence. Whether one labels his review " de novo " or "procedural", his findings are not supported by substantial evidence but, on the contrary, are plainly wrong. In addition, the record reveals that the Corps considered the views of all other relevant agencies; Judge Griesa's decision that its consideration was inadequate amounted to an impermissible substitution of his view for the discretion vested in the Corps.