Document: 456 U.S. 305 102 S.Ct. 1798 72 L.Ed.2d 91 Caspar W. WEINBERGER, Secretary of Defense, et al., Petitioners,v.Carlos ROMERO-BARCELO al. No. 80-1990. Argued Feb. 23, 1982. Decided April 27, Syllabus The Navy, in the course using an island off Puerto Rico coast for air-to-ground weapons training, has discharged ordnance into waters surrounding island, when pilots missed land targets and accidentally bombed or intentionally water targets. Respondents sued Federal District Court to enjoin Navy's operations, alleging violation of, inter alia, Water Pollution Control Act (FWPCA). Court, while finding that discharges have not harmed quality water, held Navy had violated FWPCA by discharging without first obtaining a permit from Environmental Protection Agency, ordered apply but refused operations pending consideration application. Appeals vacated remanded with instructions order cease until it obtained permit, holding withdrew Court's equitable discretion relief other than immediate prohibitory injunction. Held: does foreclose completely exercise district court's discretion, but, rather requiring court issue injunction any all statutory violations, permits considers necessary secure prompt compliance Act, which can include, is limited to, cessation. Pp. 311-320. (a) grant jurisdiction ensure statute suggest absolute duty injunctive under circumstances, federal judge sitting as chancellor mechanically obligated every law. 311-313. (b) Here, only means ensuring compliance, T. V. A. v. Hill, 437 153, 98 2279, 57 117, distinguished, since provides, example, fines criminal penalties. While FWPCA's purpose preserving integrity Nation's be achieved including requirements, this case discharge polluted waters, and, although discharge, neither ignored nor undercut function system. prohibition against pollutants overcome very was seek. 313-316. (c) scheme whole contemplates balancing equities, suggests Congress did intend deny courts rely on remedies 316-318. (d) provision permitting President exempt facilities requirements indicate congressional intent limit discretion. whether source pollution private party agency, will achieve whereas exemption non-compliance agencies extraordinary circumstances. 318-319. (e) Nor legislative history intended their traditional P.319 643 F.2d 835 (1st Cir.), reversed remanded. Elinor H. Stillman, Washington, D. C., petitioners. John Hodges, respondents. 1 WHITE, Justice. 2 (FWPCA Act), 86 Stat. 816, amended, 33 U.S.C. § 1251 seq. (1976 ed. Supp.IV), requires immediately do comply Act's retains compliance. First Circuit courts' Romero-Barcelo Brown, (1981). We reverse. 3 * For many years, used Vieques Island, small coast, training. Currently Atlantic Fleet vessels assigned Mediterranean Sea Indian Ocean are required complete training at because full range exercises conditions similar combat. During however, sometimes miss land-based targets, falls sea. That is, accidental bombings navigable occasionally, intentional occur. found these water. 4 In 1978, respondents, who include Governor residents island. Their complaint alleged violations numerous environmental statutes various Acts.1 After extensive hearing, explicit terms Agency (EPA).2 478 F.Supp. 646 (P.R.1979). 5 Under FWPCA, "discharge pollutant" National Pollutant Discharge Elimination System (NPDES) permit. §§ 1311(a), 1323(a) Supp.IV). term defined 6 "any addition pollutant contiguous zone ocean point vessel floating craft." 1362(12) (emphasis added). Pollutant, turn, 7 "dredged spoil, solid waste, incinerator residue, sewage, garbage, sewage sludge, munitions, chemical wastes, biological materials, radioactive heat, wrecked discarded equipment, rock, sand, cellar dirt industrial, municipal, agricultural waste . ." 1362(6) And, "point source" 8 discernible, confined discrete conveyance, pipe, ditch, channel, tunnel, conduit, well, fissure, container, rolling stock, concentrated animal feeding operation, craft may discharged. 1362(14) ed., Supp.IV) 9 EPA NPDES state certification conforms standards. A State authority application attach final 1341. 10 As construed release aircraft ships pollutants, even though EPA, administers promulgated regulations setting effluent levels providing issuance category pollutants.3 Recognizing "must cured," F.Supp., 707, It refused, explained "technical violations" were causing "appreciable harm" environment.4 Id., 706. Moreover, importance center, "the granting sought would cause grievous, perhaps irreparable harm, Defendant general welfare Nation."5 707. concluded suitably Navy. To support conclusion, emphasized equity traditionally broad deciding appropriate quoted classic description Hecht Co. Bowles, 321 321, 329-330, 64 587, 591-592, 88 L.Ed. 754 (1944): "The historic process designed deter, punish." 11 Relying TVA 117 (1978), imminent Endangered Species relief, erred undertaking parties' competing interests. "Whether activities fact harm coastal obligation stop procedure been followed Administrator upon review evidence, granted permit." F.2d, 861. suggested if interfere significantly military preparedness, should request interest national security."6 12 Because posed important question regarding power withhold we certiorari, 454 813, 88, 70 81 now II 13 goes saying remedy. "is remedy issues course," Harrisonville W.S. Dickey Clay Mfg. Co., 289 334, 337-338, 53 602, 603, 77 1208 (1933), "to restrain act injurious consequences merely trifling." Consolidated Canal Mesa 177 296, 302, 20 628, 630, 44 777 (1900). An where intervention essential effectually protect property rights injuries otherwise irremediable." Cavanaugh Looney, 248 453, 456, 39 142, 143, 63 354 (1919). repeatedly basis always injury inadequacy legal remedies. Rondeau Mosinee Paper Corp., 422 49, 61, 95 2069, 2077, 45 (1975); Sampson Murray, 415 94 937, 951, 166 (1974); Beacon Theaters, Inc. Westover, 359 500, 506-507, 79 948, 954-955, 988 (1959); supra, 329, S.Ct., 591. 14 Where plaintiff defendant present claims injury, arrive "nice adjustment reconciliation" between claims, 592. such cases, "balances conveniences parties possible them according they affected withholding injunction." Yakus United States, 414, 440, 660, 675, 834 (1944). essence Chancellor mould each decree necessities particular case. Flexibility rigidity distinguished it." U.S., 15 exercising sound pay regard public employing Railroad Comm'n. Pullman 312 496, 61 643, 645, 85 971 (1941). Thus, noted "[t]he award interlocutory never regarded strictly matter right, result plaintiff," "where asked adversely affect whose impairment, temporarily, bond cannot compensate, determination parties, postponement burdensome plaintiff." 675 (footnote omitted). hardly so 193, 2301; 16 These commonplace considerations applicable cases injunctions reflect "practice background several hundred years history," 591-92, practice assuredly well aware. Of course, intervene guide control lightly assume depart established principles. said Porter Warner Holding 328 395, 398, 66 1086, 1089, 90 1332 (1946): 17 "Moreover, comprehensiveness denied absence clear valid command. Unless words, inescapable inference, restricts equity, scope recognized applied. 'The great principles securing justice, yielded light inferences, doubtful construction.' Brown Swann, Pet. 497, 503 [9 508] 18 foreclosed usual possessed equity. There, thought "[o]ne hard pressed find plainer" before us. 173, 2291. involved, 87 884, 1531 seq., completion Tellico Dam preserve snail darter, species perch. language bare violation, compelled conclusion. Section 1536, "insure actions authorized, funded, carried out jeopardize continued existence [any] endangered destruction modification habitat determined critical." thus contains flat ban critical habitats. 19 conceded Hill dam eliminate destroying its habitat. Refusal action "explicit provisions Act." Congress, appeared us, chosen darter over dam. available Court; could vindicate objectives Act. here. itself, provides 1319(c) (d). failure undermine allowing continue. process, FWPCA.7 explained, objective "restore maintain chemical, physical, waters." 1251(a). 21 This requirements.8 declined discharges, permit.9 permanently, allowed continue 22 also none "hardship exemptions" "even remotely Project." 188, 2298. contrast, seek.10 Senate Report 1972 Amendments explains program enacted Committee recognizes impracticality effort halt immediately." S.Rep.No.92-414, p. 43 (1971), U.S.Code Cong. & Admin.News 1972, 3709. equities militates conclusion enforcing statute. 23 Other aspects Although ultimate 1985, sets forth phased enacted, called achievement "best practicable technology currently available" July 1, 1977, economically achievable" 1983. 1311(b). further envisioned, curtailed, discretion.11 24 directs seek he finds presenting "an substantial endangerment health persons persons." 1364(a) rule cessation, indicated class violations. kinds authorizes commence civil permanent temporary injunction, authorized order. 1319(b).12 makes anticipate enjoined. Consistent view, administrative cessation orders. "Rather, enforcement typically result, consent otherwise, remedial detailed schedule cure identified Brief Petitioners 17. See Milwaukee Illinois, 451 304, 320-322, 101 1784, 1794-1795, 68 114 again, consideration. 25 Both respondents weight requirements. Supp.IV).13 They indicates According evidences Congress' paramount interests justify make judgment. 26 construe broadly. read serves different complementary purpose, noncompliance Executive Order 12088, CFR 243 (1979), implements authority, agency requesting certify meet "Exemptions conflict standards crucial resolved through development program." 26, n. 30. 27 Should receive here, there no need invoke machinery Presidential exemption. If not, remains open. enable President, believing require, authorize Reading way eliminates role scheme. 28 Like structure passed abate inadequate vital aspect." 3674. past failings included efforts Rivers Harbors Appropriation 1899 (Refuse 401 "major purpose" establish comprehensive long-range policy elimination pollution." 95, 3758. system key policy. new regulation illegal anyone except pursuant 310-311, 1788-1789; see generally California ex rel. Resources Board, 426 200, 96 2022, 48 578 (1976). Nonetheless, "[i]n writing procedures involving Government drew extensively existing Refuse 1899." S.Rep.No.92-414,supra, 63, 3730. Violations automatically led injunctions. Reserve Mining 514 492, 535-538 (CA8 1975); States Rohm Haas 500 167, 175 (CA5 1974), cert. denied, 420 962, 1352, 439 Kennebec Log Driving 491 562, 571 (CA1 1973), remand, 399 754, 759-760 (Me.1975). III 29 (1944), major departure long tradition implied. there, "in favor interpretation affords opportunity treat proceedings accordance practices, conditioned protect." 330, foreclosing Rather 30 must ability fully stage proceedings. face situation likely issue, therefore vindicated permitted become issued forthcoming, require reconsider balance struck. 31 enacting proper standard appellate abused denying applied reverse remand consistent opinion. 32 ordered. Justice POWELL, concurring. I join opinion Court. my record clearly establishes abuse refusing discharges. Finding acted within left (FWPCA), decision affirmed.* 34 propriety disposition dissenting STEVENS, post, 322. agree his view statute, some constrain more narrowly others. stand indication manner STEVENS. might leave open permissible promote both clarity economy us hold reinstated. 35 Justice, dissenting. 36 depends primarily character violation. specifically commands form subject discretion.1 command time unpermitted occurs, today obviously correct asserting "automatically" "mechanically" nevertheless equally channeled judiciary much glib suggests. Indeed, situations obtain am convinced circumscribed narrow cases. quite kind exceptional justifies rule. 37 mischaracterization Appeals' premise essay analytically flawed overlooks limitations implicated defendant's law ongoing. greater importance, grants open-ended license judges carve gaping holes reticulated precious natural resource ad hoc judgments about specific pollutants. 38 Contrary impression created opinion, "under circumstances," ante, 313, "mechanically law," ibid. "absolute duty" mentioned Island.2 worth repeating—the like else,3 obey formulating "conclude[d] interests." 835, 861 1981). free disregard "congressional ordering priorities" judiciary's 'responsibility mandated Congress.' " Ibid. (quoting Jones Lynn, 477 885, 892 1973)). deemed "technical" "[utter of] mandate." 861-862. then pointed prohibiting most, all, land-based. 862, 55. Finally, significant effect security. 862; 40 circumstances—the blatant technical, predicament foreseen accommodated Congress—the essentially retained exercised wholly odds FWPCA. essence, judicial exempting President. two principal bases matters commit First, persuaded harming 646, 706-707 (PR 1979); second, concerned security, id., 707-708. correctly business EPA4 second President.5 41 unfairly uses springboard lecture reasoning respects. categorically prohibits Unlike 314-315, requested bring timetable.6 demonstrated reasons offered compelling position constrained strong presumption written it. By reversing, casts doubt validity position. especially dangerous area, temptations delay already substantial.7 42 Our concerning distinctions simply ignores today. distinction involved those implicate interest. Second, danger recur treated differently certain 441, 834, illustrates distinction. constitutionally preclude price adjudication validity. special deference given interest: "Even suits balances "But case, interest, reflected opposition availability relief. stated, factor same favored injunction: 46 "This another principle, declared Virginia Ry. Federation, 300 515, 552, [57 592, 601, 789], 'Courts may, frequently do, go farther give furtherance accustomed involved.' 675. 47 cites, involve attempt future fell prevent Cf. Grant 345 629, 633-636, 73 894, 897-899, 97 1303; Oregon Medical Society, 343 326, 332-334, 690, 695-696, 978. inadvertent, promptly terminated, taken vigorous adequate steps recurrence, But reaching made large litigation, measure cases." 331, 694. "should acute awareness Congressional admonition" issue. contrast Hecht, pays mere lipservice mandate attaches corrected.8 cites precedent ongoing deliberate garden-variety nuisance widest fashioning relief.9 49 prior stringent test applies City County San Francisco, 310 16, 60 749, 84 1050, claimed city's electric prohibited "this call invocation generalities maxims determine issued." 30, 757. doctrines relied militate capacity forum effective." 31, prohibit necessary." Ibid.10 50 Albemarle Moody, 405, 2362, 280, plainly stated automatic one hand, other.11 holds measured purposes inform violated. 417, 2371. 51 discussion creates change 1899. 319. far little codification common nuisance.12 casual attitude toward 114, stark. allow supplement enjoining nuisance, create loophole Why define explained. 52 Illinois described terms: pursuit expert permit-granting process. inconsistent 'write own ticket' guise after permittees planning operating reliance them." 1797. 54 Ironically, "write ticket" issued. 55 distinguishes ground contained "flat ban" Ante, 314. permit.13 Surely directive gradual possibly irreversible contamination less darter.14 placed value protection vanishing forms life our resources ignore text, history,15 previously statute.16 56 true room compromise project species; either sacrificed. tells Therefore, continues, 315, content actually being On analysis, distinguish Courts better decide acceptable cost completing Dam. decisions, nothing respective histories invited second-guess former latter. 58 roles three branches government tarnishes argument expansive area.17 points gradually, immediately, equities." 316. "scheme compliance." Equitable states, 59 sophistry premised gross misunderstanding Naturally, expect dischargers end immediately.18 Rather, entrusted task establishing timetables reach goal. permits; constitute measured.19 Quite obviously, then, requirement discharger itself operation continuing intolerance obvious "exercise equities" tasks delegated agencies, courts, yet difference. IV depend peculiar unique language. rest darters. profound respect allocation lawmaking responsibilities Government.20 There sit committee review. Today free-thinking just that. Instead adherence carefully integrated assign nonjudicial decisionmakers evaluating potential supply unnecessarily casually substitutes chancellor's clumsy foot respectfully dissent. charged Policy 1969, 4321 Supp.IV); Clean Air 7401 Noise 4901 seq.; Resource Conservation Recovery 1976, 6901 1973, Historic Preservation 1966, 470 Coastal Zone Management 1451 Marine Mammal 1361 1899, Constitution, directives neighboring Culebra, (NEPA) failing file Impact Statement (EIS) reviewable statement, 705 (P.R.1979), failed nominate sites Register EIS. 708. 858, 860, 862 NEPA orders dismiss filed EIS interim. 862. Only categories classes sources. E. I. du Pont de Nemours Train, 430 112, 965, 204 (1977); part 400 somewhat Interior has, Migratory Bird Treaty 703 regulated deposit shot duck hunters Rifle Assn. Kleppe, 425 1101 (D.C.1976), affirmance order, 187 U.S.App.D.C. 240, 674 (1978). wrote: "In fact, anything, aesthetically anywhere, Plaintiff's witnesses unanimously testified best fishing grounds Vieques." 667. "[I]f truth said, areas [by Navy] probably constitutes positive ecology. zones modest numbers marine practically nonexistent civilian sector main Rico, eloquent example res ipsa loquitur." 682 took plaintiffs claims. laches totally bar strongly Title relevant part: department, instrumentality executive branch determines so. No exemptions shall due lack appropriation unless budgetary appropriation. Any period excess year, additional periods exceed year President's making determination. report January section during preceding calendar together reason exemption." respects suits, ingenuity E.g., Spur Industries, Del Webb Development 108 Ariz. 178, 494 P.2d 700 (1972); Boomer Cement N.Y.2d 219, 309 N.Y.S.2d 312, 257 N.E.2d 870 (1970). abatement manner, extent nongovernmental entity. S.Rep.No. 92-414, 80 pp. 3668, 3746, "[f]ederal Department Defense" pollution. December 1979. May 1981, draft notice 1341(a). Quality Board Commonwealth certificate connection June 1981. February 1982, reconsideration announced adhering original ruling. letter dated 9, Solicitor General informed Clerk challenging denial certificate. Civ. Action 82-0726 (Dist.Ct.PR). "a achieving limitations. NPDES, unlawful person complying terms. transform standards—including based quality—into obligations (including timetable compliance) individual discharger, provide direct permits. With few exceptions, sections based. short, defines, facilitates with, preponderance discharger's Amendments." 205, 2025, (1976) have, related absolute. Crushed Stone Assn., 449 64, 295, 268 (1980). Middlesex Sewerage Authority Clammers Ass'n., 453 2615, 69 435 (1981), pre-empted Acts: indicia contrary intent, conclude provided precisely considered appropriate." 15, 2623; But, observed construing Act: what thinks regulatory intended. 138, 980. Here intending abolish 1319(b). directed Price restraining order" 322, 588. overrode Administrator. properly refuse circumstances seems this, expressed benefit EPA's recommendation discharge. unlike ceased sought. institution suit Administrator, 327, 590. dissent's characterization, 327-328, base ceased. 6, supra. thorough demonstrates reasonableness pertinent factors, evident caused harm," 706 (PR1979), indeed area "probably ecology," 682. "abundantly evidence takes place defense States." Balancing stood, nonetheless affirmative aimed possibility changed later date. Steelworkers 361 39, 54-59, 177, 182-185, (Frankfurter Harlan, JJ., concurring). statement entirely comments legislation "[e]nforcement relatively minimum discretionary delay," factual 3730, 3746. expressly subjects laws "respecting entity." leadership pollution," 67, 3733, "be model Nation," H.R.Rep.No. 92-911, 118 (1972). "Not technical problems difficult—doubtless vested administer possessing expertise—but particularly unsuited approach inevitable regime criticized approaches 'sporadic' 'ad hoc,' Leg.Hist. 1511, apt characterizations applying law, Wilburn Boat Fireman's Fund Ins. 348 310, 319 [75 368, 373, 99 337] (1955)." 325, 1796, 114. security persuasive suitable evaluation. wisely virtually unlimited grounds. Commander Chief, unlearned matters. curious complements noncompliance. 'with speed.' 708 1979) Education, 349 294, 301, 75 753, 756, 1083). ironic comes aid (particularly military) analogous activities, effort. paraphrase Report, industry ceasing willing least 67 (1971). continuous entire decade enactment. unaware steel seizure Frankfurter rejected Government's overriding prevents despite illegality seizure": 'Balancing equities' considering lawyers' jargon choosing conflicting When struck balance, interests, justified ignoring pronouncement discretion." Youngstown Sheet Tube Sawyer, 579, 609-610, 863, 896-897, 1153 (concurring opinion). petitioners contend guidance, beyond indicating backpay awards disagree. mandatory remedy; 'may' invoke. implicitly calling another, and—owing judiciary—these choices are, instance courts. However, 'inclination, judgment; judgment guided principles.' Burr, F.Cas. (No. 14,692d) (CC Va. 1807) (Marshall, C. J.). bestowed complex design evil proportions. 'in Act,' 331 [64 754] nature, Curtis Loether, 189, 197 [94 1005, 1010, 260] (1974), unfettered meaningful shielded Mitchell [Robert] DeMario Jewelry, 288, 292 [80 332, 335, 323] (1960), held, silent enjoyed 'historic equity' lost wages workmen unlawfully discriminated Fair Labor Standards 1938, 1069, 217 (1958 ed.). simultaneously 'the [leave] reimbursement.' 296 337]. "It '[e]quity eschews mechanical rules [and] flexibility.' Holmberg Armbrecht, 327 392, 396 [66 582, 584, 743] (1946). invokes Chancellor's conscience transcendent purposes, principled 'equity [which] varies foot.' Important goals frustrated 'produce[d] results breaches differentiated policy.' Moragne Lines, 398 375, 405 [90 1772, 1790, 339] (1970)." 415-417, 2370-2371, 280 (footnotes 314, n.7. proposition consistently, repeatedly, unequivocally reaffirmed Court: 'pollutants' or, developed complies State." Train Colorado Public Interest Research Group, 7, 1941, 434. "Under terms." 578. "We that, concerns formulation often vague indeterminate concepts jurisprudence, occupied field establishment supervised agency." 317, 1792. 268, "plain statute," 73, firms "either conform BPT production." 76, 303. "Congress' all-encompassing regulation. Every covered directly apparatus goals." 318, 1792 original; footnote "if throughout met, threat sanction real, swift direct." 65 3731. self-consciously certainly exist [406 91, 92 1385, 712] decided, improve law." 319, 1793. Today's inherent presents dramatic : "Federal impose imposed administering scheme." 320, 1794. n.5, believes no-discharge declaration useful tool. [§ 301] declares unlawful. clarify point: right pollute. immediately. exception meets section, 402, others listed bill." 43, "An 2025 (citations "Our appraisal wisdom unwisdom consciously selected put aside interpreting Once meaning enactment discerned constitutionality determined, end. review, veto. lines ascribed Sir Thomas More Robert Bolt relevance here: Roper, know what's legal, right. And I'll stick legal. I'm God. currents eddies wrong, you plain-sailing, can't navigate, voyager. thickets oh forester. What do? Cut road get Devil? last down, Devil turned round you—where hide, flat? country's planted thick coast—Man's laws, God's—and cut down d'you really think upright winds blow then?. Yes, I'd safety's sake.' R. Bolt, Man All Seasons, I, 147 (Three Plays, Heinemann 1967). constitutional commitment separation powers too fundamental pre-empt judicially decreeing accords 'common sense weal.' Constitution vests political branches." 194-195, 2301-2302, 117.

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