Document: 452 U.S. 314 101 S.Ct. 2376 69 L.Ed.2d 40 Donald Paul HODEL, Acting Secretary of the Interior, et al., Appellants,v.State INDIANA al. No. 80-231. Argued Feb. 23, 1981. Decided June 15, Syllabus This appeal involves a constitutional challenge to so-called "prime farmland" provisions and certain general Surface Mining Control Reclamation Act 1977 (Act). The prime farmland establish special requirements for surface coal mining operations conducted on land that both qualifies as has historically been used cropland. These include § 510(d)(1), which requires an applicant permit show he capacity restore land, within reasonable time after completion mining, productivity level in surrounding area; 519(c)(2), conditions release mine operator's bond such restoration; 508(a)(2), directs operators information about premining reclamation plans filed part applications. question 515(b)(3), restoration mined its approximate original contour; 515(b)(5), remove topsoil separately preserve it use during reclamation; 508, applicants permits submit plans; §§ 522(a), (c), (d), require States wishing regulate administrative procedure determining whether particular lands are unsuitable mining; 522(e), proscribes specified distance roads, cemeteries, public buildings, schools, churches, parks, or dwellings; Act's procedures collecting civil penalties from violators Act, including requirement contested penalty be paid into escrow account pending review. Appellees (the State Indiana several officials, Coal Association, operators, others) suits Federal District Court, alleging contravene Commerce Clause, equal protection due process guarantees Due Process Clause Fifth Amendment, Tenth Just Compensation Amendment. Court sustained each constitutionalchallenges permanently enjoined enforcement challenged provisions. Held : is not vulnerable appellees' pre-enforcement challenge. Pp. 321-336. (a) do violate Clause. was adopted ensure production interstate commerce would at expense agriculture, environment, health safety, protect adhering high performance standards disadvantageous competition with less rigorous regulatory programs. advance these legitimate goals, Congress acted reasonably adopting scheme contained Act. 321-329. (b) Nor Such only activities who private individuals businesses, directly States. 330. (c) approximate-original-contour rationally making no allowances variances allowing contour steep-slope mountaintop operations. fact more under fewer than another does impermissible discrimination Amendment's Cause. And, by invalidating rubric "substantive process," essentially superlegislature accordingly exceeded proper role. 331-333. (d) Sections 508(a)(2) (e) take property without just compensation violation Appellees' taking claims focus any properties have applied. Similarly, Court's ruling did pertain piece denial specific proposed appellees. "mere enactment" effect unconstitutional property. prohibit but merely may conducted. 333-335. depriving their right premature, where appellees shown they were ever assessed penalties, much statutory prepayment applied them caused injury. P.p.335-336.[[SC2Q!]] D.C., 501 F.Supp. 452, reversed remanded. Peter Buscemi, Washington, D. C., appellants. G. Daniel Kelley, Jr., Indianapolis, Ind., Justice MARSHALL delivered opinion Court. 1 appeal, like Hodel v. Virginia & Assn., Inc., 264, 2352, 1, also decided today, broad numerous important 1977, 91 Stat. 445, 30 U.S.C. 1201 seq. (1976 ed., Supp. III) (Surface Act). Many attacked this case, however, differ "steep-slope" primary Mining. United Southern ruled here enforcement. (1980). We noted probable jurisdiction, sub nom. Andrus Indiana, 449 816, 67, 66 19 (1980), we now reverse. 2 * A. 3 basic structure described U.S., 268-272, S.Ct., 2356-2358, will therefore suffice briefly describe drawn case. Several sections known collectively definition promulgated Agriculture cropland meaning regulations Interior (Secretary) implementing 701(20), 1291(20) III).1 A granted if operator can demonstrate "technological capability area, time, equivalent higher levels yield nonmined area management . ." 1260(d)(1) III). must "meet soil reconstruction standards" set forth 515(b)(7), 1265(b)(7) That section specifies distinct layers removed, segregated, stockpiled, then properly replaced regraded. Furthermore, 1269(c)(2) III), provides upon farmland, released showing "has returned same type practices ."2 4 Also some applicable throughout country. contour,3 directive 1265(b)(5) immediately backfill cut. Section 1258 specifying intended postmining method achieved. In addition, 1272(a), assume permanent authority over all kinds mining.4 1272(e) activity 100 feet roadways cemeteries 300 occupied dwellings. Finally, 518(c), 1268(c) here. B 5 August 1978, one other others. complaints alleged contravenes 6 held 1-day hearing plaintiffs' motion preliminary injunction defendants' dismiss, court ultimately case merits further evidence. On 10, 1980, issued order sustaining challenges enjoining enforcing (SD Ind. 1980).5 II 7 gave two rationales decision issue. first six provisions6 beyond congressional power because "directed facets substantial adverse commerce." Id., 460. reached conclusion examining statistics Report Interagency Task Force Issue Moratorium Ban Prime Agricultural Lands (1977) (Interagency Report).7 compared acreage being disturbed annually total stated approximately 21,800 acres amounted 0.006% Nation. F.Supp., 459. statistic others derived it, together similar comparisons persuaded "an infinitesimal trivial impact 458.8 8 With respect 15 substantive apply generally,9 reasoned possible effects justifying action air water pollution determined adequately addressed concluded well "are directed alleviation pollution, extent there [any] effects, means plainly adapted [the end of] removing 461. find untenable. 9 It established peradverture "legislative Acts adjusting burdens benefits economic life come presumption constitutionality Usery Turner Elkhorn Co., 428 96 2882, 2892, 49 752 (1976). See Duke Power Co. Carolina Environmental Study Group, 438 59, 83-84, 98 2620, 2635-2636, 57 595 (1978). invalidate legislation enacted clear rational basis finding regulated affects commerce, connection between selected asserted ends. 276, 2360; Katzenbach McClung, 379 294, 303-304, 85 377, 383, 13 290 (1964); Heart Atlanta Motel, Inc. States, 241, 258, 262, 348, 360, 258 (1964). convinced had reliable grounds reach either 10 our view, entitled federal interest through legislation. contrary view. report dealt complete moratorium ban advisable matter policy. neither purported examine full agricultural commodities, nor too negligible warrant regulation.10 More important, below incorrectly assumed relevant inquiry rational-basis test volume actually affected activity. NLRB Fainblatt, 306 601, 606, 59 668, 671, 83 L.Ed. 1014 (1939), "[t]he plenary extends great small." pertinent how involved could conclude commerce. supra, 276-277, Perez 402 146, 154-156, 1357, 1361-1362, 28 686 (1971); 383; Wickard Filburn, 317 111, 127-129, 63 82, 90-91, 87 122 (1942). Cf. Polish National Alliance NLRB, 322 643, 648, 64 1196, 1199, 88 1509 (1944); Darby, 312 100, 123, 61 451, 461, 609 (1941).11 11 Against background, little difficulty concluding satisfies test. Senate considered might mining. 123 Cong.Rec. 15713 (remarks Sen. Percy). Senator Percy called Senate's attention testimony presented Committee hearings losses attributable mining.12 15713-15717. id., 15720-15721 Humphrey), 15721 Stevenson). Similar evidence contemporaneous before House Committee,13 referred explaining origins stated: 12 "The heard citizens local officials Illinois requesting given bill lands. Working Soil Conservation Service, added number H.R. designed insure strata those areas classified lands." H.R.Rep. 95-218, p. 184 (1977), U.S.Code Cong. Admin.News 715. judgment, summarized Reports mandates products. As explained Stafford Wallace, 495, 521, 42 397, 403, 735 (1922): 14 "Whatever amounts constant practice, threatens obstruct unduly burden freedom clause, primarily consider decide danger meet it. certainly substitute judgment unless relation subject clearly non-existent." improperly substituted determination.14 16 erred holding related goal protecting goals limited preventing pollution. 277-280, 2360-2362, concerned preserving productive safety hazards result All invalidated calculated goals.15 17 For example, 515(b)(5) avoid environmental harm unreclaimed restored cuts.16 explained: 18 "If done carefully, significant damage result. reclaimed mines pose continuing threat times property." S.Rep. 95-128, 50 (1977). also, 83; 79-80, 93. true 508's program inform manner among remedial actions specifically recommended Army Corps Engineers. "[a]dvanced submission responsible government agency having grant deny approval engage based regulations." Hearings, pt. 2, 86. obviously enable ascertain, begins, prospective adequate consideration fate possesses technological proposed. 20 relevance topsoil-replacement should self-evident. 106-109. Again, measure included Engineers' recommendations Committee. spokesman advised "[s]egregation preservation topsoils during, preceding, [in order] provide conducive rapid revegetation 522(e)'s prohibition against near dwellings toward ensuring endanger communities. 21 injury interests deleterious 1202(f) III); 49-53; 57-60. Moreover, 281-282, 2363, reflects 1201(g) Act.17 III 22 discussed above Amendment constitute "displacement regulation operation traditional governmental function control planning 468. real purpose land-use regulation, which, court's state function. below, Mining, relied analysis League Cities Usery, 426 833, 2465, 245 23 reasons 286-293, 2365-2369, hold Like attack regulates simply case.18 IV 24 next makes allowance requirements, available absence variance impermissibly discriminates Midwest, reserves located few Relying Hampton Mow Sun Wong, 88, 1895, 48 495 (1976), discriminatory treatment withstand scrutiny justified overriding national interest." 469. "constitute deprivation process" "irrational, arbitrary capricious situations necessary achieve Ibid. 25 Although couched terms arbitrariness provisions, fear policy Congress. Social employ suspect classifications impinge fundamental rights upheld when legislative purpose. Schweiker Wilson, 450 221, 1074, 67 186 (1981); U. S. Railroad Retirement Board Fritz, 166, 453, 368 carries rationality overcome irrationality. 83, 2635; 2892. Vance Bradley, 440 93, 97, 99 939, 943, 171 (1979), social valid "the varying different groups persons so unrelated achievement combination purposes [a court] legislature's irrational." heavy burden, carried 26 Neither identified instance produce irrational even correct impose greater unconstitutional. claim cannot rest solely statute's lack uniform geographic impact. Central Roig Refining 338 604, 616-619, 70 409-410, 94 381 (1950); Currin 14, 379, 386, 441 (1939). 616, 409: 27 "Nor uniformity. devise regard fluctuating regions." characteristics vary according geographical present measures appropriate necessarily desirable flatter terrain areas. mines, influenced relative shortage steepslope country exist Midwest. presumably undermine effort drawing distinctions, kind superlegislature, passing wisdom determinations. doing, SeeNew Orleans Dukes, 427 297, 303, 2513, 2516, 511 (1976); Ferguson Skrupa, 372 726, 730, 1028, 1031, 93 (1963). V 29 counterpart found fault three One provision requiring seeking least "non-mined second restoration. third pre-mining file 1258(a)(2) because, "it technologically impossible reclaim period practice achieved." 470. 31 522 designating operations, proscription structures, takes compensation. 32 takings appellees.19 Thus, resembles issue effected fully 294-297, 2369-2371, answered negative. 33 reviewed say nothing alternative uses put since play seeks conduct land. not, face, deprive owner economically beneficial his property.20 VI 34 joined process. However, counterparts made premature. VII 35 Our review questions leads us Accordingly, reverse remand instructions dissolve entered Secretary, proceedings consistent opinion. 36 So ordered. 517, term 'prime farmland' shall previously prescribed factors moisture availability, temperature regime, chemical balance, permeability, layer composition, susceptibility flooding, erosion characteristics, intensive purposes, published Register." Agriculture's CFR 657 incorporated Interior's 701.5 defining interim phase. Columbia remanded reconsideration re Regulation Litigation, 456 1301, 1312 (1978), rev'd grounds, 201 U.S.App.D.C. 627 F.2d 1346 new program. 44 Fed.Reg. 33625 (1979). Under 509 1259 until authority. 515(b)(3) describes "approximate contour" generally 515(d) steep slopes. progress submitting programs 503 Secretary's response submissions 272, n. 7, 2357, 7. submitted approved disapproved part. 45 78482 July STEVENS stayed final disposition appeal. are: (1) 507(b)(16), 1257(b)(16) "soil survey" suspected farmlands "to confirm exact location farmlands, any"; (2) 508(a)(2)(C), 1258(a)(2)(C) plan prior classification farm lands, average food, fiber, forage, wood products obtained management"; (3) allows satisfied non-mined 515(b)(7) ."; (4) separate removal replacement A, B, C horizons farmland; (5) 515(b)(20) insofar authorizes authorities approve "long-term, intensive, post-mining use"; (6) bonds "until Insular Affairs April month completed 459 1980). 166 years disturb 1% Government's Stabilization Service farmers grow crops 5,900,000 acres, 200 pointed out 40,000 projected years, figure 0.003% Indiana. 459-460. Government 369,153 nearly 1,000% years. 1265(b)(3) removal, segregation, ultimate land; (e)(4), (e)(5), (e)(5) restricting radius facilities; (3), (4), (8), (10), 1258(a)(2), (10) applications program, descriptions use, methods achieved; 510(b)(1), (2), 1260(b)(1), governing disapproval (invalidated entail uses); 515(b)(19), (20), 1265(b)(19), (20) maintenance 5- 10-year incorporate compliance authority). Committee, followed recommendation Report, rejected Carter administration proposal 5-year farmlands. testified pp. 184-185 593. event, "finding" insignificant amount questionable. produced 0.04% Nation's corn 1976-1977 crop year. percentage seem small, worth remembering grain year 6.4 billion bushels, $12.9 billion. Department Agriculture, Statistics, Therefore, value $5.16 million surely 1977: Hearings Subcommittee Public Resources Energy Natural Resources, 95th Cong., 1st Sess., 775-811 (Senate Hearings). Environment Affairs, 4, 16-31, 78-92, 159-172, 235-260 (House Contrary conclusion, irrelevant past refrain growing subsidies serve independent pricing commodities. kept temporarily, whereas unregulated expected cause long-term irreversible damage. Even assuming sole controlling bear nonetheless Along addressing problems, contribute end. prevent sedimentation thus help quality. Engineers prevention resources. representative Strip Mine prepared 4,400,000 already 1,900,000 reclaimed. He that, study, annual rate disturbance 153,000 1964, 207,000 1974. 69, 90-95. contend claim, correct, beside point. complex survive every single facet independently goal. enough integral whole 383-384, 127-128, 90, (1942); (1941). share view fashion zoning ordinances typically governments. regulating Any restrictions imposed temporary incidental purposes. imposes postreclamation appellee companies owns subsurface "intends immediate future." But analysis, plaintiff's ripe judicial determination. "equal management." (emphasis added). unmined what "basic Since plaintiff allege required yields "high management," taken "[p]laintiffs own and/or presently intend 522(e)(4) (5)." 296, 37, 2370, 522(e) apply. rely discussion dispose here, validity (d). phase landowners circumstances, justiciable controversy concerning 36, 2369, 36.

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