Opinion ID: 184033
Heading Depth: 4
Heading Rank: 1

Heading: The definition of consultation

Text: An ordinary meaning of the word consult is to seek information or advice from (someone with expertise in a particular area) or to have discussions or confer with (someone), typically before undertaking a course of action. The New Oxford Dictionary 369 (2001) (emphasis added). We conclude that this is the definition that Congress intended when it directed DOE to prepare the Congestion Study in consultation with the affected States. Thus, DOE was to confer with the affected States before it completed the study. This conclusion is supported by all the applicable rules of statutory construction. It is required by the statutory context as the juxtaposition of the two sections indicates that Congress intended consultation to be more than responding to comments. See Robinson v. Shell Oil Co., 519 U.S. 337, 341, 117 S.Ct. 843, 136 L.Ed.2d 808 (1997) (noting that the plain meaning of statutory language is determined by reference to the specific context in which the language is used and the broader context of the statute as a whole). The definition gives meaning to every word in the statute. See Duncan v. Walker, 533 U.S. 167, 174, 121 S.Ct. 2120, 150 L.Ed.2d 251 (2001) (noting that it is a court's duty to give effect, if possible, to every clause and word of a statute.). Moreover, DOE's interpretation of consult to mean no more than notice-and-comment would render part of the statute superfluous. If consultation means no more than an opportunity for comment, there was no reason for Congress to use distinct language in § 824(a)(1) and § 824(a)(2). We have been directed to avoid such an interpretation. See Knight v. Comm'r, 552 U.S. 181, 190, 128 S.Ct. 782, 169 L.Ed.2d 652 (2008) (commenting that accepting [a particular] approach would render part of the statute entirely superfluous, something that we are loath to do) (quoting Cooper Indus. v. Aviall Servs., 543 U.S. 157, 166, 125 S.Ct. 577, 160 L.Ed.2d 548 (2004)). Moreover, requiring DOE to actually confer with the affected States is consistent with the purpose of the EPAct. In reaction to black-outs and brown-outs, Congress sought to give the federal government a greater role in the development of transmission lines and to circumscribe somewhat the States' traditional authority over the placement and construction of power lines. In recognition of this impact on the States' traditional authority, Congress intended that affected States would participate in a study that might ultimately result in some limitation of their traditional powers. Indeed, the Supreme Court has been sensitive to these concerns. See Solid Waste Agency of Northern Cook County v. U.S. Army Corps of Eng'rs, 531 U.S. 159, 173, 121 S.Ct. 675, 148 L.Ed.2d 576 (2001). A recognition of the sensitivity of these issues supports our determination that where, as here, Congress has directed an agency to consult with States before taking action that may curtail traditional State powers, we must require that the agency heed Congress's direction.