Opinion ID: 305182
Heading Depth: 2
Heading Rank: 2

Heading: Claim Based On Lack Of EPA Identification Of Benefits To

Text: Offset Possible Dangers 59 The EDF's main argument runs thus, briefly stated: While the Statement of Reasons sets forth, as a matter of EPA policy, that suspension decisions would be made only after the Administrator makes a preliminary assessment of imminency of hazard that includes a balancing of benefit and harm, yet when the EPA discussed aldrin and dieldrin, it inconsistently failed to identify any off-setting benefits, and limited itself to the reference to certain hazards. 60 The EPA concedes that the thrust of the Administrator's analysis related to the absence of any short run major hazards. But it parries that he did refer to the purposes for which aldrin and dieldrin are used. 61 In light of his findings with respect to the absence of any foreseeable hazard, there was little need for the Administrator to go into detail in considering-as he had indicated he would do in suspension decisions. . . -the positive benefits. Propriety of General Approach 62 To Suspension Orders That Considers Benefits Along With Burdens 63 We are not clear that the FIFRA requires separate analysis of benefits at the suspension stage. 7 We are clear that the statute empowers the Administrator to take account of benefits or their absence as affecting imminency of hazard. The Administrator's general decision to follow that course cannot be assailed as unreasonable. The suspension procedures of this agency, though in the abstract designed for emergency situations, seem to us to resemble more closely the judicial proceedings on a contested motion for a preliminary injunction, to prevail during the pendency of the litigation on the merits, rather than proceedings on an ex parte application for an emergency temporary restraining order. The suspension decision is not ordinarily one to be made in a matter of moments, or even hours or days. The statute contemplates at least the kind of ventilation of issues commonly had prior to decisions by courts that govern the relationships of parties pendente lite, during trial on the merits. 64 Judicial doctrine teaches that a court must consider possibility of success on the merits, the nature and extent of the damage to each of the parties from the granting or denial of the injunction, and where the public interest lies. 8 It was not inappropriate for the Administrator to have chosen a general approach to suspension that permits analysis of similar factors. By definition, a substantial question of safety exists when notices of cancellation issue. If there is no offsetting claim of any benefit to the public, then the EPA has the burden of showing that the substantial safety question does not pose an imminent hazard to the public. Lack Of Discussion Of Benefits Of Aldrin-Dieldrin 65 EDF is on sound ground in noting that while the EPA's general approach contemplates a decision as to suspension based on a balance of benefit and harm, the later discussion of aldrin and dieldrin relates only to harm. 66 The Administrator's mere mention of these products' major uses, emphasized by the EPA, cannot suffice as a discussion of benefits, even though the data before him . . . reflected the view that aldrin-dieldrin pesticides are the only control presently available for some twenty insects which attack corn and for one pest which poses a real danger to citrus orchards . . . . 67 Brief for EPA, p. 19. The interests at stake here are too important to permit the decision to be sustained on the basis of speculative inference as to what the Administrator's findings and conclusions might have been regarding benefits. Sound principle sustains the practice of vesting choice of policy with the Administrator. Its corollary is that the specific decision must be explained, not merely explainable, in terms of the ingredients announced by the Administrator as comprising the Agency's policies and standards. This is the case even though the variables of the policy approach selected by the Administrator are not necessarily required by the underlying statute. 68 Our conclusion that a mere recitation of a pesticide's uses does not suffice as an analysis of benefits is fortified where, as here, there was a submission, by EDF, that alternative pest control mechanisms are available for such use. The analysis of benefit requires some consideration of whether such proposed alternatives are available or feasible, or whether such availability is in doubt. 9 Flexibility of Limited Suspensions For Uses Without Significant Benefits 69 The importance of an EPA analysis of benefits is underscored by the Administrator's flexibility, in both final decisions and suspension orders, to differentiate between uses of the product. Aldrin and dieldrin are apparently not viewed by the EPA as uniform in their benefit characteristics for all their uses. The Administrator had previously stopped certain uses of the pesticides in question in house paints, and in water use. These actions presumably reflected some evaluation of comparative benefits and hazards. The Administrator's reliance on the pattern of declining gross use itself indicates that for some purposes aldrin and dieldrin are or will soon become nonessential. Even assuming the essentiality of aldrin and dieldrin, and of the lack of feasible alternative control mechanisms for certain uses, there may be no corresponding benefit for other uses, which may be curtailed during the suspension period. 10 Flexibility As To Limits 70 Our concern over EPA's failure to discuss benefits reflects our concern that what is done tacitly or by implication may mean that the agency has not taken into account the possibility of orders falling short of complete suspension. EPA has flexibility not only to confine suspensions to certain uses, but also to order conditional suspensions for uses, available only if certain volumes or limits are not exceeded. EPA apparently assumed certain limits of use would prevail. But if there are dangers, and if the benefits of use may be satisfied within certain limits of use, the EPA should consider whether to exercise its authority to determine that the extent of use permitted pending final determination must be held within announced limits. Analysis of Limited Short-Run Harm 71 We do not say there is an absolute need for analysis of benefits. It might have been possible for EPA to say that although there were no significant benefits from aldrin-dieldrin the possibility of harm-though substantial enough to present a long-run danger to the public warranting cancellation proceedings-did not present a serious short-run danger that constituted an imminent hazard. EPA's counsel offers this as a justification for its action. 72 If this is to be said, it must be said clearly, so that it may be reviewed carefully. Logically, there is room for the concept. But we must caution against any approach to the term imminent hazard, used in the statute, that restricts it to a concept of crisis. It is enough if there is substantial likelihood that serious harm will be experienced during the year or two required in any realistic projection of the administrative process. It is not good practice for an agency to defend an order on the hypothesis that it is valid even assuming there are no benefits, when the reality is that some conclusion of benefits was visualized by the agency. This kind of abstraction pushes argument-and judicial review-to the wall of extremes, when realism calls for an awareness of middle ground. Articulation of Criteria 73 Our comments according EPA substantial policy choice and discretion are not to be taken as mere lip service to established principle, that is undercut by the need we find for better articulation. We recognize that EPA's functions are difficult and demanding and are impressed by the thoughtfulness and range of EPA's general approach; nor have we any reason to doubt the wisdom and validity of its specific decisions. But the demand of functions so difficult of decision are accompanied by demands, equally difficult to meet, for attentive consideration and careful exposition. Our own responsibility as a court is as a partner in the overall administrative process-acting with restraint, but providing supervision. 11 We cannot discharge our role adequately unless we hold EPA to a high standard of articulation. Kennecott Copper Corp. v. EPA, D.C.Cir., 462 F.2d 846 (1972). The EPA is charged with profoundly important tasks; reclamation and preservation of our environment is a national priority of the first rank. It is not an agency in the doldrums of the routine or familiar. The importance and difficulty of subject matter entail special responsibilities when the EPA undertakes to explain and defend its actions in court. 74 Environmental law marks out a domain where knowledge is hard to obtain and appraise, even in the administrative corridors; in the courtrooms, difficulties of understanding are multiplied. But there is a will in the courts to study and understand what the agency puts before us. And there is a will to respect the agency's choices if it has taken a hard look at its hard problems. 12 We emphasize again the judicial toleration of wide flexibility for response to developing situations. The Administrator's premise of relatively low environmental residue burden from aldrin and dieldrin, a consequence of low past and declining present usage, may lead him to consider possible use of interim actions short of complete suspension-continuing registrations selectively, with restrictions on kinds and extent of use, either by orders or, perhaps, through enforceable, voluntary agreements by registrants. The court's concern is for elucidation of basis, not for restriction of EPA's latitude.