Source: https://law.justia.com/cases/federal/appellate-courts/F2/563/1043/31541/
Timestamp: 2019-11-22 08:52:16
Document Index: 664270702

Matched Legal Cases: ['§ 1802', '§ 1801', '§ 1801', '§ 1801', '§ 706', '§ 1801']

State of Maine et al., Plaintiffs, Appellants, v. Juanita M. Kreps et al., Defendants, Appellees, 563 F.2d 1043 (1st Cir. 1977) :: Justia
State of Maine et al., Plaintiffs, Appellants, v. Juanita M. Kreps et al., Defendants, Appellees, 563 F.2d 1043 (1st Cir. 1977)
US Court of Appeals for the First Circuit - 563 F.2d 1043 (1st Cir. 1977) Aug. 16, 1977
This is not to question that the "greatest overall benefit to the Nation" criterion, and the companion reference to "relevant economic, social or ecological" factors, both found in the 16 U.S.C. § 1802(18) definition of "optimum" yield, are broad enough to include such national benefits as are to be derived from permitting foreign fishing. While the Act, in its preamble, makes clear that it was enacted in reaction to the ineffectiveness of international fishery agreements to prevent overfishing, § 1801(a), it speaks of a purpose, among others, to encourage such international agreements in the future, and to encourage continued active United States efforts to obtain an internationally acceptable treaty at the upcoming Third United Nations Conference on the Law of the Sea. § 1801(c) (5). Congress plainly did not intend the cardinal aim of the Act the development of a United States' controlled fishing conservation and management program designed to prevent overfishing and to rebuild depleted stocks to be subordinated to the interests of foreign nations. But within a framework of progress towards this goal, the Secretary is directed and empowered within specified limits to accommodate foreign fishing, §§ 1801(c) (4); 1821. We find no congressional purpose that she disregard the benefits to be derived from cooperating with other nations. American consumers depend not only on United States producers; they benefit from our trade with the rest of the world. United States fishermen as well as consumers benefit from international cooperation. Indeed, the continued existence of fish stocks throughout the oceans of the world may well be dependent on actions by foreign nations as well as ourselves. Management of the oceans' fish resources cannot be accomplished solely within our own coastal areas. We think Congress did not require the Secretary to set optimum yield figures entirely without regard to the effects upon this country of allowing or denying foreign fishing.
Where Congress has vested the authority to resolve technical questions of fact in a specialized administrative body with experience and expertise in that field, considerable deference is due its conclusions. Federal Power Commission v. Florida Power & Light, 404 U.S. 453, 463, 92 S. Ct. 637, 30 L. Ed. 2d 600 (1971). At the same time, the record must provide some basis for a reviewing court to determine that the agency has exercised its discretion consistently with standards set by Congress. Camp v. Pitts, 411 U.S. 138, 93 S. Ct. 1241, 36 L. Ed. 2d 106 (1973); Citizens to Preserve Overton Park v. Volpe, 401 U.S. 402, 416, 91 S. Ct. 814, 28 L. Ed. 2d 136 (1971); First Bank and Trust Co. v. Smith, 509 F.2d 663 (1st Cir. 1975). Judicial review cannot take place in a vacuum. Cf. Camp v. Pitts, supra, 411 U.S. at 142-43, 93 S. Ct. 1241; Citizens to Preserve Overton Park v. Volpe, supra, 401 U.S. at 420, 91 S. Ct. 814.
The foregoing leads us to this conclusion: while Maine has not at this time persuaded us that the Secretary's optimum yield figure is necessarily "arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law", 5 U.S.C. § 706(2) (A), it has persuaded us that, in order to obtain the judicial review to which Maine is entitled, the Secretary must provide some "additional explanation of the reasons for the agency decision." Camp v. Pitts, supra, 411 U.S. at 143, 93 S. Ct. at 1244 (1973). There is sufficient indication of possible misunderstanding on the Secretary's part of the criteria applicable to the "optimum" yield figure to render it improper for a court merely to rely upon the presumptive correctness of the Secretary's bottom line result. We think the Secretary should be asked to supplement the record to provide an explanation of the basis of her optimum yield determination insofar as it exceeds amounts needed by United States fishermen and provides for less than the optimum rebuilding of the stock.
On the other hand, although the present record is inadequate, leading us to require the Secretary to address the deficiencies, it does not follow that Maine has as yet made a showing which will entitle it to receive equitable relief, in the form of an injunction against implementation of the preliminary management plan pending production of the Secretary's supplemental explanation. Cf. Camp. v. Pitts, supra, 411 U.S. at 143, 93 S. Ct. 1241. Because the foreign fishing season is hard upon us and of limited duration,9 interference with implementation would come close to reversing the Secretary's decision. Having in mind both plaintiff's burden of proof and the broad implementation authority vested in the Secretary by Congress, we cannot at present say that it is unlikely that the Secretary can demonstrate a reasonable basis for the decision, or that it is likely that domestic fishermen will suffer irreversible harm from the plan. While the Act requires a determination reflecting substantive consideration, something not satisfied by resort to a conclusory verbal formula, the likelihood of the Secretary specifying relevant factors which would support a conclusion that setting the yield at this figure, which will allocate a portion of the Georges Bank herring catch to foreign fishermen, will serve "the greatest overall benefit to the Nation," would seem substantial. And both parties conceded that the present quota would probably permit some rebuilding of the stock, thereby increasing the resource available to domestic fishermen in the future.10 In light of these considerations, we are constrained to let the present plan go forward at least until such time as the Secretary supplements the record and it can be ascertained whether or not the 33,000 m.t. figure is rationally supported. However, Maine is entitled to speedy supplementation of the present record, and to further review thereof in the district court, with all reasonable dispatch. Accordingly, in remanding we direct the district court to order forthwith that the Secretary specify and file in court within ten days from the date of the present judgment the reasons which led her to conclude that an optimum yield figure of 33,000 m.t., which allows foreign fishermen to take herring from a depleted stock, provides the greatest overall benefit to the Nation, with particular reference to food supplies and recreation, and including relevant economic, social or ecological factors.
Scientists' Potential Stock Size Recommended ICNAF New at End of Year Catch Quota Catch Stock Season ---- ------------- ------------- ----- --------- ---------- 1972 50-90 150 174 96 146 1973 83-135 150 199 496 359 1974 150 150 146 85 285 1975 90-150 150 146 85 204 1976 60 60 42 85 234 1977 50 33 28 * 85 * 260 * ---------------------------------------------------------------- all figures in metric tons * predictions
The overall failure of ICNAF to manage the fishing resources under its control, particularly the haddock stock, was a factor in Congressional enactment of the Fishery Conservation and Management Act. See, e. g., 16 U.S.C. § 1801(a) (4); H.R.Rep.No.445, 94th Cong., 1st Sess. 48 (1975); Senate Commerce Comm., Memorandum on S. 961 to the Senate Foreign Relations Comm., 94th Cong., 1st Sess. 3-4 (Comm.Print 1975).
Poland 5100 m.t. German Democratic Republic 4825 Federal Republic of Germany 4725 Soviet Union 3400 Canada 1000 France 1000 Cuba 700 Bulgaria 100 Romania 100 Others 50