Document: 445 U.S. 198 100 S.Ct. 1095 63 L.Ed.2d 329 Douglas M. COSTLE, Administrator, Environmental Protection Agency, Petitioner,v.PACIFIC LEGAL FOUNDATION et al. No. 78-1472. Argued Dec. 5, 1979. Decided March 18, 1980. Rehearing Denied May 12, See 446 947, 2177. Syllabus Section 402(a)(1) of the Federal Water Pollution Control Act (FWPCA) authorizes Administrator Agency (EPA), "after opportunity for public hearing," to issue a permit discharge any pollutant upon condition that such will meet all applicable requirements FWPCA or conditions as determines are necessary carry out Act's goals and objectives. Implementing regulations provide notice proposed issuance, denial, modification permit; direct EPA Regional hold hearing on action if he finds significant degree interest; interested person request an "adjudicatory hearing" after EPA's determination take action. Such be granted it "[s]ets forth material issues fact relevant questions whether should issued, denied modified." Respondent city Los Angeles (city) owns sewage treatment plant is operated under permits issued by pursuant National Pollutant Discharge Elimination System (NPDES), established FWPCA. The city's current permit, in 1975, conditioned continued discharges from into Pacific Ocean compliance with schedule achieving full secondary wastewater October 1, In April 1977, advised extend expiration date 1975 second time, December 17, 1979, other terms remain unchanged. Notice was published Times, but neither nor party, including respondent Legal Foundation, requested filed comments extension, determined interest proposal insufficient warrant hearing. After Kilroy's postdetermination adjudicatory ground did not set question extended, respondents petitions Court Appeals seeking review Administrator's held had failed "opportunity required § when extended federal remanded "proper hearing." so holding, court concluded justify every failure proof facts supporting "are subject dispute." Held: 1. erred concluding NPDES takes unless can show its Rather, implementing fully consistent FWPCA's purpose "opportunity" concerning agency actions respecting water pollution control, valid. Pp. 213-216. 2. Respondents have demonstrate were applied properly context this case. 216-220. (a) Under circumstances presented here, reasonable permit's without further hearing, grounds exhibited action, information pertinent decision would been adduced held. 216-218. (b) form newspaper publication adequate. argument inadequate because understanding schedules contrary agency's date. 218-219. (c) err failing raised extended. 219-220. 586 F.2d 650, reversed. William H. Alsup, Washington, D. C., petitioner. Robert K. Best, Sacramento, Cal., respondents. Mr. Justice BLACKMUN delivered opinion Court. 1 This case, sense, tale great city's—and Nation's—basic problems disposing human waste. "How" "where" ultimate questions, they intertwined. presently before Court, however, center administrative processes which Nation seek resolve those basic problems. 2 * operates Hyperion Wastewater Treatment Plant located Playa Del Rey, Cal. Since 1960, has processed most sewage, discharged wastes through three "outfalls" extending Ocean. shortest outfall terminates about one mile coastline 50 feet water. It operative only during emergencies caused increased flow wet weather power failures at pumping plant. five miles out. Approximately 340 million gallons treated day ocean, depth 187 feet, outfall. receives least "primary treatment,"1 one-third also "secondary treatment"2 activated sludge process. third seven coast. solids removed 300 feet. Prior solid materials, commonly referred digested, screened, diluted effluent. App. 3-4. 3 (EPA) California Quality Board (CRWQCB). 402 (FWPCA), added Amendments 1972, 86 Stat. 880, amended, 33 U.S.C. 1342 (1976 ed. Supp. II).3 enacted stated obviously worthy objective, is, "to restore maintain chemical, physical, biological integrity Nation's waters." 101(a), 816, 1251(a). order achieve Congress declared "it national goal pollutants navigable waters eliminated 1985." 101(a)(1). 4 As means reaching goal, 301(a) provided: "Except section sections 302, 306, 307, 318, 402, 404 [33 §§ 1312, 1316, 1317, 1328, 1342, 1344], shall unlawful." 844, 1311(a). EPA, pollutant, notwithstanding 301(a), Act, 1342(a)(1). One publicly owned works, plant, specified 301(b)(1)(B). That provision requires works existence July "effluent limitations based defined Administrator."4 845, 1311(b)(1)(B). II 5 promulgated providing participation proceeding NPDES. Those regulations, statutory requirement focus state: "Public denial circulated manner designed inform potentially persons issue, deny, modify discharge." 40 CFR 125.32(a) (1978).5 "shall include least": (1) circulation within affected geographical area posting post office "public places" nearest applicant's premises, "near entrance premises nearby places," local newspapers; (2) mailing applicant "appropriate" state authorities; (3) group who placement list affecting area. Ibid. 6 Following issuance directed 30-day period may submit written views 125.32(b)(1). If "finds permit," parties oral statements data. 125.34. forward copy submitted comments. substantially changed initial must give determination. either event, his constitutes final timely granted. 125.35. 7 Any person, 10 days following determination, "legal decision" respect 125.36(b). A 125.36(c)(1)(ii). Issues law, hand, considered raises legal officer Assistant Enforcement General Counsel resolution. issues, refer aforementioned officers. 125.36(m). III 8 CRWQCB first joint November 1974. 4. covering 1- 5-mile outfalls, intent submission comments, On August 1974 rescinded authorities, replaced outfalls. Id., 3. gradual elimination ocean over 30-month "concept approval" plan alternative disposal sludge. 17-19.6 9 1976, notified expire February new needed continue beyond Record 44. application 30. 45-80. Thereafter, September suggested might six months account effect pending legislation mandatory dates achievement effluent treatment. 119. n. 4, supra. January 24, June 30, citing time permit. 93.7 26, again 1979.8 All 115-120. Times day. L. A. Apr. 27, part V, p. 2, cols. 6-7. described modification, wishing comment objections appear their requests regional 30 days. Neither PLF, convening 23, officially until 154. transmitted same 1979 149. 11 10, PLF Freedom Information enforcement division extension and, specifically, approved. 157. When informed telephone 13 made could accepted day, see 125.36(b)(1), Kilroy, represented attorneys, request. granted, automatically stay effectiveness disposition 125.35(d)(2). 12 two wished raise: "1. Whether modified project CA010991 [the permit] being evaluated EIS NEPA, mandated NEPA study completed; 14 "2. procedures used record developed adequate [for the] permit." 160. 15 Within receiving request, responded certified mail, stating Thus, met construe raising law relating appropriate interpretation given He therefore 166.9 Before Counsel's ruling announced, joined now Torrance, theretofore stranger formal proceedings, petition United States Ninth Circuit similar Angeles. consolidated review. stayed incorporated cases. Even though expired than aspects requiring completion remained effect, both Appeals' operation law.10 therefore, clearly become moot. IV 16 matter holding 660-661 (CA9 1978). determining jurisdiction hear respondents' petitions, rejecting Angeles' State authority id., 654-657, agreed conducted prior 1977. contended, provided; claimed that, no proper conclude there necessitate 125.34(a). rejected contention, holding: 17 "The appropriately analysis, decisive. shown F.2d, 658-659 (footnotes omitted). 18 relied language Independent Bankers Assn. v. Governors, 170 U.S.App.D.C. 278, 516 1206 (1975), certain Bank Holding Company 1956, 84 1765, 1843(c)(8), Governors Reserve evidentiary "show gain nothing thereby, disputed none rest." U.S.App.D.C., 292, 1220. 19 distinguished decisions constituted waiver right thereto Coal Mine Health Safety 1969, 83 742, 801 seq., place burden demonstrating case presents party challenging 658-659, nn. (discussing Operators' Kleppe, 423 388, 397-398, 96 809, 814, 46 580 (1976); Weinberger Hynson, Westcott & Dunning, Inc., 412 609, 620, 93 2469, 2478, 37 207 (1973); Storer Broadcasting Co., 351 192, 205, 76 763, 771, L.Ed. 1081 (1956)). 20 it, "the reasonableness [incorporated depends silent." 659. With factors adequacy Palos Verdes landfill site, ability acquire capacity transport site designated limits, possible land sludge, stated: "[W]e unequivocally dispute these matters do." found itself unable deny based. 21 petitioned conduct taking where, taken subsequently fact.11 We certiorari important rapidly developing law. 442 928, 99 2487, 61 295 (1979). V 22 Petitioner's contentions entitled availability filing similarly identification party. agree contentions. 23 Initially, we our disagreement characterization Appeals. They argue court's finding comply own governing process, rather conclusion invalid. conclude, contrary, although explicitly invalid, renders them essentially meaningless. Rather permitting decide, instance, sufficient 125.34(a), limit situation where fact, 125.36(c)(1)(ii), require Court's approval past rules, seeks threshold tendering evidence suggesting need See, e. g., U.S., 620-621, S.Ct., 2478-2479, cases cited therein. 24 Moreover, note Part opinion, supra, implement command 402(a)(1), 1342(a)(1) (emphasis supplied). past, provided keyed 398-399, 814-815.12 And recently re-emphasized fundamental principle formulation basically left discretion agencies confided responsibility substantive judgments." Vermont Yankee Nuclear Power Corp. NRDC, 435 519, 524, 98 1197, 1202, 55 460 (1978). 25 ignore standard Appeals, hearings issuances modifications. Hearings even cases, this, extends earlier hearings. advises us each year grants program, 2,200 permits, thousands permits. Brief Petitioner 34-35; Steel Train, 556 822, 834, (CA7 1977). Affirmance rationale raise serious administer program. Weinberger, 621, 2479; E. I. du Pont de Nemours Co. 430 112, 132-133, 97 965, 977, 51 204 (1977). 26 recognize validity contention legislative history indicates strong congressional desire input pollution. recites: 27 development, revision, regulation, standard, limitation, plan, program . for, encouraged, assisted Administrator." 101(e), 817, 1251(e). 28 Passages indicate general policy encouraging administration 118 Cong.Rec. 37060 (1972) (remarks Rep. Dingell debate override President's veto FWPCA). Report Committee Public Works accompanying Senate bill emphasized essential element participation, "[t]he genuine speak protection S.Rep. 92-414, 72 (1971), U.S.Code Cong. Admin.News 3668. 29 Nonetheless, purpose, Respondents, do contest seriously proposition valid face; thrust arguments apply consistently purpose. B Having invalidation turn framed First, Kilroy contend "significant interest" substantial reliance guidelines control. During regulation 31 "Where called instances, official (including hearing) gained. Instances doubt resolved favor necessary, participation." 105.7(c). 32 Notwithstanding orientation toward encouragement examination leads reject undisputed controversial permit—the treatment, "sludge-out" requirement, resultant develop method disposal—were included advance tentative revise revisions. None objected position advanced petitioner reopen consideration contained purport affect conditions. requests. received individual objection. aware opposition Interim Sludge Disposal Project, asked placed notices 125.32(a)(3). circumstances, think decided another consideration, simply existed 34 Second, suggest inadequate. apprise inconsistent underlies statute regulations. Based amorphous valid, hesitancy 35 argues never regarded subsequent orders CRWQCB. 6, addressed directly appropriate, attempt so. More fundamentally, additional reason dictates lawsuit all. claims more lenient sludge-out adopted 1976 (incorporating four-phase completed 1980) approved modifications alter tested City Angeles, CV 77 3047 R (CD Aug. 1977), brought Government 309 FWPCA, 859, 1319 II). 36 enjoin violating impose civil penalties against schedules. 181. outcome 13. here far effectively Government's awarded case.13 Furthermore, little relevance change complaint. Finally, petitioner, contends legal, factual, notes fashion arguing Counsel. 9, factual greater adverse effects marine environment result Project ocean. regardless merits, impact already long effect.14 C 38 sum, hold, rather, "an judgment remanding 39 ordered. defines treatment" stage floating settleable solids, floatation and/or sedimentation." 125.58(m) describes attain minimum level quality parameters [sic ]." These so-called "parameters" (but compare dictionary's definition term) levels biochemical oxygen demand, suspended pH values. 125.58(r) 133.102 1973, Resources entered gave primary administering California, retaining limits territorial sea, coastline. thus plant's 5- 7-mile CRWQCB, acting California's Porter-Cologne Code Ann. 13260 seq. (West 1971), description original passed 1948, 62 1155, events led 1972 Amendment, particular emphasis implementation Board, 426 200, 202-209, 2022, 2023-2026, 48 578 (1976), repeated here. Although litigation 301(b)(1)(B) end total 1978. asserts less stringent necessitated practical inability requirements. Reply 8, 5. acted operator allowed Compliance attained, 1983. Clean Pub.L. 95-217, 45, 91 1584, 1311(i)(1) ed., secondary-treatment deadline 301(b)(1)(B), yet EPA. central took place. 44 Fed.Reg. 32854 Many features retained. 124.41-45, 124.61-64, 124.71-101, 124.111-127, 124.131-135 references otherwise designated, 1978 compilation. modifying disposal. announced fixed definite Total achieved 51. orders, several deadlines plans specifications various phases project. then dates, 57. CRWQCB's well. infra, meantime, controversy project, funded construction Title 833, 1281 II), Project. (The parties, commendably, refrained referring HTPISDP, we.) process digested dewatered, formed cakes, hauled truck sanitary Verdes. An environmental appraisal estimated trucking operational 255 round trips per week distance 42 miles. Chamber Commerce opposed fund preparing evaluating statement (EIS), alleged Policy 1969 (NEPA), 852, 4321 63. Foundation (PLF) objected. suspend cease PLF's oceans. argued 403 883, 1343, perform analysis cessation well economic social costs involved replacing 84. 31, view noted challenged preceded refused 89. By response attempted, unsuccessfully, prevent funding Quarles, 440 F.Supp. 316 Cal.1977), appeal docketed, 77-3844 (CA9). Subsequent District voluntarily prepare project's funding. 15, 12. Still pending. sued officials Department Interior claiming obligations Endangered Species 87 884, 1531 approving adversely food chain supports gray whales brown pelicans, trucks going kill El Segundo butterfly. motion partial summary fulfilled obligation, consider, course ordered endangered species. Andrus, Civ. C-78-3464-AAH(SX) 1979), appeals Nos. 79-3472, 79-3566, 79-3661 We, course, express merits related challenges "for exceeding years." 402(a)(3), (b)(1)(B), 881, 1342(a)(3), (b)(1)(B) years implemented accordance procedural Counsel: Must informal action? detailed date? "3. covered Impact Statement grant assist project?" 168. parties' presentation briefs ruled Kilroy. She provided. held, modification. addressing brief challenge specifically she undergoing evaluation EIS. 7, support latter ruling. 194. 1977 proceedings remand monitoring reporting requirements, resolution dispute. Because application, passed. 558(c) (a license reference activity continuing nature does renewal thereof finally agency); Tr. Oral Arg. writ dismissed having improvidently inserted certiorari. decline invitation dismiss writ. note, petitioner's "new issue," intend governed adjudication "on record" Administrative Procedure 554 To extent misplaced. passage demonstrates stands waives fails rests. 212. remove basis violations predated 183-187. Respondents' strategy throughout culminating seems based, part, fear evade scrutiny issuing extensions 205-206. potential evasion ever exist, limited one. 402(b)(1)(B) late 1980, culminated unnecessary. Now outside approaching, purposes avoiding impact. well, 706(1) reviewing "compel unlawfully withheld unreasonably delayed") obtain judicial prolonged inaction

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