Opinion ID: 2155550
Heading Depth: 1
Heading Rank: 2

Heading: requirement of environmental impact report.

Text: Under the express authority of G.L.c. 30, § 62, the secretaries of EOEA and EOTC promulgated regulations defining procedures to be followed in connection with the preparation of EIR's. Under the EOTC regulations, the first step is the preparation of an environmental assessment form by means of which the agency reports its recommendation on whether a proposed activity will require an EIR. EOTC Reg. 3.1 (a). If the agency concludes that no EIR is required, the assessment form must contain a description of how that conclusion was reached. The Secretary of EOTC may seek from the agency a reevaluation of its position if he deems it necessary. EOTC Reg. 3.1 (c). In due course such an assessment form (termed a negative assessment) is eventually routed to EOEA, carrying such comment from the Secretary of EOTC as he may wish to make. EOTC Reg. 3.1 (a). The submitting agency is required to give public notice of the transmittal of a negative assessment, and within a specified time the Secretary of EOEA must issue a written statement indicating whether or not in his judgment the negative assessment properly complies with the law. EOTC Reg. 3.2 (b) and (c). EOEA Reg. 3.2 (b) and (c). On May 16, 1974, the Massport board adopted a formal vote that, based on a 1972 Preliminary Environmental Impact Report prepared for Federal purposes and on staff studies, it had found that the runways project would have no overall adverse environmental impact. On May 18, 1974, Massport submitted an environmental assessment form to the Secretary of EOTC, checking the box which states: It has been determined that the project will not cause significant environmental damage. No further reports will be filed. This form was forwarded to EOEA on May 24, 1974, with the recommendation of EOTC that the negative assessment be approved. Subsequently public comment was received by EOEA which, the trial judge found, reflected considerable controversy on environmental grounds. On July 1, 1974, the Secretary of EOEA issued a statement that the negative assessment was not in compliance with § 62 and the regulations, and concluded that, since the project might cause damage to the environment, preparation of an EIR was required. The judge agreed with the Secretary and has enjoined construction of the runways project until a final EIR has been published pursuant to § 62.
Under § 62, an EIR must be published before commencement of any project which may cause damage to the environment. As defined in § 61, damage to the environment includes actual or probable damage but excludes any insignificant damage. Based on this definition, and because the statute requires only that there may be such damage, the judge concluded that the threshold of potential environmental damage to warrant an impact statement under MEPA is minimal. This interpretation seems quite proper. The EIR is the key to the entire statutory scheme; without it there is little assurance that the agency will give any consideration to the environment, and the agency's decision to proceed with a project may escape any judicial review. Boston v. Massachusetts Port. Authy. 364 Mass. 639, 660-661 (1974). That the Legislature did not intend this provision to be narrowly construed is supported by the statement in § 61 that [u]nless a clear contrary intent is manifested, all statutes shall be interpreted and administered so as to minimize and prevent damage to the environment. Thus it is evident that an EIR is required whenever there is a potential for damage to the environment which may be characterized as not... insignificant. Other jurisdictions have adopted a similarly minimal threshold standard. The Federal statute, NEPA, requires an impact statement for major Federal actions significantly affecting the quality of the human environment. 42 U.S.C. § 4332 (2) (C) (1970). This language appears on its face stricter than that in MEPA, yet Federal courts have gone so far as to impose the requirement of an impact statement as long as the project will arguably damage the environment. Students Challenging Regulatory Agency Procedures v. United States, 346 F. Supp. 189, 201 (D.C. Cir.1972), revd. on other grounds, 412 U.S. 669 (1973). In California, where the statutory language parallels ours, the California Supreme Court recently adopted a low threshold to require an impact statement in close and doubtful cases. No Oil, Inc. v. Los Angeles, 13 Cal.3d 68, 84 (1974). Further, the court concluded that the existence of serious public controversy concerning the environmental effect of a project in itself indicates that preparation of an EIR is desirable. Id. at 85-86. The rationale is that requiring an EIR in such circumstances serves the purpose of [demonstrating] to an apprehensive citizenry that the agency has in fact analyzed and considered the ecological implications of its action. Id. at 86. This theory also appears in the guidelines of the Council on Environmental Quality, 40 C.F.R. 1500.6 (a), and has been adopted in a number of Federal courts. See Hanley v. Kleindienst, 471 F.2d 823, 830 (2d Cir.1972), cert. den. 412 U.S. 908 (1973); Nolop v. Volpe, 333 F. Supp. 1364 (D.S.D. 1971); Silva v. Romney, 342 F. Supp. 783 (D. Mass. 1972), vacated on other grounds, 473 F.2d 287 (1st Cir.1973). Further support for a low threshold test in Massachusetts lies in the existence of EOTC regulations establishing categorical exemptions for each agency under its authority. EOTC Reg. 8, and Appendix C. The exemptions for typical activities unlikely to damage the environment mitigate any concern that too low a threshold requirement will overburden the agencies with unnecessary paper work and delay. We note that Massport does not appear to contest the formulation of the legal standard but rather contends that its own determination that the runways project would not adversely effect the environment should be reviewed under the traditional limits of judicial scrutiny applied to findings of an administrative agency. If Massport employed an improper threshold test, it would follow that the review would be that of a question of law and no such limits would exist. Based only on the Massport board's vote, it is difficult to say what test was used, and Massport argues here that no damage in fact has been shown. We thus look to see whether the judge applied the correct standard of review of factual questions.
Massport's first argument is that the judge treated the letter of July 1, 1974, of the Secretary of EOEA as an administrative determination that an EIR was required. On the contrary, however, it is apparent that the judge made his own findings on the basis of [v]oluminous testimony by expert witnesses, numerous exhibits including Massport's Preliminary Environmental Impact Report, and the Secretary's letter. [5] Massport argues secondly that the trial judge was in error in not treating its decision not to file an EIR as an agency determination subject only to limited review, that is, examination only of whether the determination was not supported by substantial evidence or was arbitrary and capricious. As a preliminary matter, it should be noted that the State Administrative Procedure Act, G.L.c. 30A, is not applicable to Massport's determination. The decision not to file an EIR is neither adjudicatory nor regulatory within the meaning of the act, so that the statutory limits on judicial review defined in the act have no bearing. Boston v. Massachusetts Port Authy. 364 Mass. 639, 662 n. 40 (1974). The scope of review undertaken by the trial judge was not limited to whether Massport's determination was arbitrary or capricious but rather was based on the statement in West Broadway Task Force, Inc. v. Commissioner of the Dept. of Community Affairs, 363 Mass. 745, 752 (1973), that [c]ourts ... have been keen to override traditional limitations and scrutinize agency action when health or life was at stake. This theory of judicial review was reaffirmed in Boston v. Massachusetts Port Authy., supra, at 663 (1974), although the court there, as in the West Broadway case, refused to engage in that level of review where alternative, nonjudicial remedies remained available to the plaintiffs. We view as correct the action of the judge in relying on the West Broadway case and not limiting the scope of review to that engaged in for ordinary administrative actions. First, there is no doubt that health or life is at stake here. Boston v. Massachusetts Port Authy . at 663. Second, the judge correctly found that there were no administrative remedies which had not been exhausted by the plaintiffs. This follows from Boston v. Massachusetts Port Authy., supra , where the administrative alternative discussed was preparation of an EIR, the very remedy requested here. In our opinion the nature of the review undertaken by the judge was appropriate. We consider this an even stronger case for review than Boston v. Massachusetts Port Authy . In that case there was at least some element of policymaking discretion confided to the agency, while here the decision whether to prepare an EIR can hardly be said to have been committed to agency discretion. Rather, the question is simply whether the agency itself has complied with the requirements of the statute. Gifford v. Commissioner of Pub. Health, 328 Mass. 608, 616-617 (1952). Fred C. McClean Heating Supplies, Inc. v. Westfield Trade High Sch. Bldg. Comm. of Westfield, 345 Mass. 267, 269 (1962). It would appear that § 62 was enacted among other reasons because agencies were not felt to be giving sufficient consideration to environmental concerns. Consequently, when an agency makes a decision downplaying the environmental effects of a proposed activity, the court may properly cock a skeptical eye at that decision. Leventhal, Environmental Decisionmaking and the Role of the Courts, 122 U. of Pa. L. Rev. 509, 523-524 (1974). Anderson, NEPA in the Courts, 104-105 (1973). Hanly v. Kleindienst, 471 F.2d 823, 838 (2d Cir.1972) (Friendly, C.J., dissenting), cert. den. 412 U.S. 908 (1973). [6] Any concern for possible uncertainty on the part of agencies as to whether they can act on their threshold determinations without later being reversed in court is minimal. As mentioned earlier, EOTC Reg. 8 provides for the establishment of categorical exemptions from EIR's for each agency within the jurisdiction of EOTC. Exemptions have been defined for Massport; significantly, runway construction is not included. Further, the regulations also provide that agencies may, with the approval of EOEA, establish specific thresholds of adverse environmental impact for specific types of projects. EOTC Reg. 8.2, Class 8. For example, the Bureau of Building Construction has established a threshold exemption from the EIR requirements permitting it to construct new parking spaces not to increase an institution's spaces by more than twenty-five per cent. Massport, by contrast, has not taken advantage of this opportunity. EOTC's regulation on categorical exemptions is further evidence that the agencies themselves have not been given a range of discretion in the matter of filing an EIR which might insulate them from judicial review. Rather it is the EOTC (and ultimately the EOEA which must approve EOTC regulations under § 62) which the Legislature believed was in the best position initially to determine which of its activities involved the potential of environmental impact sufficient to bring it within the scope of ... [§ 62]. Answer of the Justices, 364 Mass. 838, 845 (1973).
Having concluded that the judge could properly make his own findings of fact and that he applied the correct legal standard to those facts, the remaining issue is whether he could find as a fact that there was a potential damage to the environment in the proposed runways project. The judge stated: If the landing thresholds and points for beginning of take-off roll are changed on runways 4L and 9 because of the extensions of runways 4L and 9, and if the STOL/GA addition is also used, I find that while some residential areas adjacent to Logan might benefit from significant reductions in noise exposure, other residential areas might suffer from significant increases in noise exposure. As all parties concede, the scope of review by this court of the judge's findings of fact is limited. This trial was governed by the new Rules of Civil Procedure, which provide that in nonjury cases [f]indings of fact shall not be set aside unless clearly erroneous. Mass. R. Civ. P. 52 (a), 365 Mass. 816 (1974). In our opinion the judge's findings were not clearly erroneous. 1. Effect of the Letter of the Secretary of Environmental Affairs. We have already noted our disagreement with Massport's contention that the judge arrived at his conclusion on environmental damage by erroneously treating the Secretary's letter as an administrative determination that an EIR was required. Nor are we impressed by the argument that the Secretary's letter was hearsay and, hence, inadmissible. This letter consists merely of the statement required by the regulations upon submission of a negative assessment form. EOEA Reg. 3.2 (c). EOTC Reg. 3.2 (c). Section 62 expressly requires the executive secretaries to promulgate regulations to carry out the purposes of this section. Broad authority is thus conferred on the executive offices limited only by the consideration that the regulations do not conflict with the statute. Scannell v. State Ballot Law Commn. 324 Mass. 494, 501 (1949). Bureau of Old Age Assistance of Natick v. Commissioner of Pub. Welfare, 326 Mass. 121, 124 (1950). Regulations aimed at assisting in the determination whether certain activities require preparation of impact statements are plainly within the scope of the act. Answer of the Justices, 364 Mass. 838, 845 (1973). Under these circumstances, we view the Secretary's comments on a negative assessment as part of the administrative record to be reviewed along with other competent and relevent evidence in connection with an agency decision not to file an EIR. It may further be considered that the judge could give the Secretary's letter due weight in light of the environmental expertise of the Secretary's office. That expertise derives from the unique role given the Secretary in administering § 62. See Boston v. Massachusetts Port Authy. 364 Mass. 639, 659, n. 35, 663, n. 42 (1974). [7] It would seem that since the Secretary's letter concluded that the runways project might cause environmental damage, that in itself would suffice to indicate that the judge's finding was not clearly erroneous. 2. Effect of Memorandum of Understanding. An expert witness for the plaintiffs testified that extension of runways 4L and 9 could have a significant effect on noise levels in certain locations by changing the landing threshold of incoming planes. For example, as a result of extending 4L, planes could land at a point farther south, meaning that planes would be at lower altitudes over South Boston during approaches to the extended 4L. There was also testimony of potential noise impact resulting from construction of the STOL runway. This would occur in the Jeffries Point area of East Boston if planes were to take off in a westerly direction, and if the STOL runway were used by turbojets taking off in either direction. Massport does not dispute these facts but relies on a Memorandum of Understanding agreed to by Massport and by the Secretary of EOTC. Under this memorandum the present threshold landing points would be retained despite the extensions of the runways. With respect to the STOL runway, the memorandum agrees that the runway will not be used by turbojets and that there will be no takeoffs to the west. These restrictions can be changed under the memorandum but, if they are, State and Federal environmental impact statements are to be filed. The judge discounted the protection afforded by this memorandum, stating that it cannot serve as a substitute for the procedural requirements of MEPA. He concluded, An impact report is offered, too late, after the concrete has hardened and the runways are in operation. The purpose of § 62 is to require that impact reports be prepared before an irreversible commitment to a project is made. Where the potential environmental damage involves the use of a project rather than its actual construction, there is of course no damage at all if the project is simply built and not used. But § 62 prescribes that the impact report must be prepared prior to construction, that being the proper time for the consideration of environmental factors. See EOTC Reg. 1.4. Were we to adopt Massport's argument on this point, an agency could postpone such considerations until construction was completed. That is not the contemplation of the statute. Again the basic question is whether the project may cause damage not insignificant to the environment. Assuming that Massport has no intention of employing the project in a harmful way, it is undeniable that the potential is there. Thus, in defining significant, the regulation states: Extremely improbable events may ... be significant if the magnitude of the possible effect is sufficiently important. EOTC Reg. 2.9. The judge stated that he considered the evidence in the context of whether there is a use of the runway extensions and new runway area which may cause damage to the environment. The judge applied the correct legal standard here and the application to the facts is not diminished by the Memorandum of Understanding. The only case cited by Massport to support its contention is Sierra Club v. Mason, 365 F. Supp. 47 (D. Conn. 1973). In that case the court did accept the defendant's assurances that a project would be carried out in a particular way so as to minimize environmental damage. However, these assurances were made as part of an EIR, the preparation of which had been ordered by the court, not (as Massport requests in this case) to avoid preparation of an EIR altogether. It follows that in this case the memorandum should be part of an EIR and could constitute important evidence that Massport had met its obligation under § 61 to minimize damage to the environment. It should not be employed, however, as a means of avoidance of completion of an EIR prior to commencing runway construction. 3. Other Evidence of Noise Impact. Even were the Memorandum of Understanding viewed as minimizing the noise impact from changing the landing thresholds on runways 4L and 9, and using the STOL runway for turbojets, other evidence exists of noise impact sufficient to indicate that the judge's views on this matter were not clearly erroneous. We do not document nor detail this evidence but it exists and was available for the judge's consideration. While the evidence, consisting of projections of various types of air traffic using the new runways and the effect on inhabited areas adjacent to the airport, is not necessarily conclusive, there is enough evidence of potential impact to establish a genuinely disputed issue, and we cannot fault the judge on his view of it. Under Mass. R.Civ.P. 52 (a), 365 Mass. 816 (1974), disputed questions of fact must be viewed in the light most favorable to the appellees. See, e.g., United States v. Disney, 413 F.2d 783, 787, n. 2 (9th Cir.1969). Moreover, the very existence of controversial and disputed factual claims of environmental effect underscores the necessity for an EIR. No Oil, Inc. v. Los Angeles, 13 Cal.3d 68, 85-86 (1974). Council on Environmental Quality, 40 C.F.R. § 1500.6 (a). Massport argues that the judge's findings are too vague and general to comply with Mass. R.Civ.P. 52 (a) which is said to require findings sufficiently detailed to permit intelligent review by this court. Massport asks for a remand for further findings. As we see it, however, in light of the low threshold of environmental damage required for an EIR, the judge's finding that some residential areas might suffer from significant noise exposure is sufficient. We see no necessity of requiring him to make specific findings of the precise increases in decibel levels in specific locations. That burden properly belongs to Massport to be discharged in the preparation of a detailed impact report.