Document: 453 U.S. 1 101 S.Ct. 2615 69 L.Ed.2d 435 MIDDLESEX COUNTY SEWERAGE AUTHORITY et al., Petitioners,v.NATIONAL SEA CLAMMERS ASSOCIATION al. JOINT MEETING OF ESSEX AND UNION COUNTIES, Petitioner, v. NATIONAL CITY NEW YORK Petitioners, ENVIRONMENTAL PROTECTION AGENCY Nos. 79-1711, 79-1754, 79-1760 and 80-12. Argued Feb. 24, 1981. Decided June 25, Syllabus Respondents (an organization whose members harvest fish shellfish off the coast of New York Jersey one individual member) brought suit in Federal District Court against petitioners (various governmental entities officials from York, Jersey, Government), alleging damage to fishing grounds caused by discharges ocean dumping sewage other waste. Invoking a number legal theories, respondents sought injunctive declaratory relief compensatory punitive damages. The granted summary judgment for petitioners. It rejected respondents' federal common-law nuisance claims on ground that such cause action is not available private parties. And as based alleged violations Water Pollution Control Act (FWPCA) Marine Protection, Research, Sanctuaries 1972 (MPRSA), court refused allow proceed with independently provisions Acts, which authorize citizens (defined "persons having an interest or may be adversely affected") sue injunctions enforce because had failed give notice Environmental Protection Agency, States, any violators required citizen suits. Appeals reversed. With respect FWPCA MPRSA, held failure comply did preclude suits under Acts addition authorized construed citizen-suit intended create limited "private attorneys general" ("non-injured" plaintiffs), opposed "injured" plaintiffs respondents, who have alternative basis saving clauses preserving right person "any statute common law" standard limitation seek relief. then concluded implied statutory action. claims, Court's conclusion parties bring claims. Held: 1. There no MPRSA. Pp. 11-21. (a) In view elaborate both authorizing enforcement government citizens, it cannot assumed Congress implication additional judicial remedies suing Acts. absence strong indicia contrary congressional intent, must provided precisely considered appropriate. 13-15. (b) are ambiguous Congress' intent "preserve" doubtful phrase statute" those includes very contained. Since clear apply only persons can claim some sort injury, there reason infer existence separate "non-injured" plaintiffs, did. 15-17. (c) legislative history does lead conclusions either Act. Rather provides affirmative support limitations imposed all P. 17. (d) express demonstrates supplant remedy otherwise might 42 U.S.C. § 1983 (1976 ed., Supp. III) violation municipalities sewerage boards among 19-21. 2. law has been fully pre-empted area water pollution FWPCA, Milwaukee Illinois, 451 304, 1784, 68 114, and, extent waters covered involved, 21-22. 616 F.2d 1222 (3rd Cir.), vacated remanded. Milton B. Conford, Elberon, N. J., 79-1754 79-1760. Alan I. Horowitz, Washington, D. C., No. 80-12 Robert Corbin, Philadelphia, Pa., National Sea Clammers Association, Justice POWELL delivered opinion Court. these cases, involving waste, we faced questions concerning availability damages remedy, two Acts—the (FWPCA), 86 Stat. 816, amended, 33 1251 seq. ed. Supp.III), 1052, 1401 Supp.III). 2 * member organization. 1977, they United States petitioners—various York,1 Jersey,2 Government.3 Their complaint sewage, "sludge," waste materials were being discharged into Harbor Hudson River complained directly maritime vessels. that, result activities, Atlantic Ocean was becoming polluted, made special reference massive growth algae said appeared offshore 1976.4 stated this causing "collapse fishing, clamming lobster industries operate Ocean."5 3 wide variety theories,6 relief, $250 million damages, petitioners7 counts complaint.8 4 holdings relevant here, law, see Illinois Milwaukee, 406 91, 92 1385, 31 712 (1972), noted 60-day requirement "citizen suit" provision 505(b)(1)(A) Act, 888, 1365(b)(1)(A). This allows but authorizes prospective first EPA, State, violator. Ibid.9 Because requisite notice, them independent general jurisdictional grant 28 1331.10 applied same analysis contains similar provisions. 1415(g).11 Finally, possible tort, plead explicitly procedural requirements state Tort Claims Acts.12 5 Third Circuit reversed nuisance, tort. Na- tional Assn. City (1980). 505(b)(1)(A), 1365(b)(1)(A), specific suits" 505. clause 505(e), 1365(e), (or class persons) effluent relief." at 1226-1228; n.10, supra. went our precedents rights action,13 "Congress permit courts entertain terms [FWPCA], preserved savings behalf individuals groups will injured its terms." F.2d, 1230-1231. 6 concluding again erred dismissing Although explicit question, apparently well could MPRSA.14 7 also held, applying principles, "alleged sufficient recover essentially public nuisance." Id., 1234. thus considerably beyond involved purely plaintiff.15 8 Petitions writ certiorari raising arguments filed group authorities (No. 79-1711), Joint Meeting Essex Union Counties 79-1754), Mayor 79-1760), defendants named 80-12).16 We petitions, 449 917, 314, 66 145, limiting review three questions: (i) whether MPRSA imply their provisions, (ii) actions now scheme contained (iii) if not, standing nuisance. hold statutes pollution.17 II 9 enacted 1948. 30, 1948, 62 1155. emphasized quality standards. When legislation proved ineffective, passed Amendments 1972, Pub.L. 92-500, shifted emphasis "direct restrictions discharges," EPA California ex rel. State Resources Board, 426 200, 204, 96 2022, 2024, 48 578 (1976), "unlawful discharge pollutant without obtaining complying terms," id., 205, S.Ct., 2025.18 While still allowing administration federally approved plans, §§ 402(b), (c), 1342(b), created various minimum standards, 301-307, 1311-1317. 10 92-532, comprehensive regulation near coastline. Section 101(a) requires waters, when material transported American vessel aircraft. 1411(a).19 addition, outside territorial seas zone extending 12 miles coastline, "to affect sea territory States." 1411(b). 11 exact nature clear, appear fall categories. main contention Army Corps Engineers permitted dump pollutants amounts seem allege violated permits. question before us raise monetary where expressly Acts.20 unnecessary discuss length principles set out recent decisions recurring saying so explicitly.21 key inquiry Legislature. Texas Industries, Inc. Radcliff Materials, Inc., 630, 639, 2061, 2066, 500 (1981); Sierra Club, 287, 293, 1775, 1779, Universities Research Coutu, 450 754, 770, 1451, 1461, 67 662 Transamerica Mortgage Advisors, Lewis, 444 11, 15, 100 242, 245, 146 (1979); Touche Ross & Co. Redington, 442 560, 568, 99 2479, 2485, 61 82 (1979). look first, course, language, particularly therein Then traditional aids interpretation determine intent. 13 These contain unusually conferring authority purpose citizens. example, Administrator respond compliance orders civil 309, 1319.22 He penalty up $10,000 per day, 309(d), 1319(d), criminal penalties available, 309(c), 1319(c). desiring administer own programs demonstrate possess adequate abate through means enforcement. 402(b)(7), 1342(b)(7). 509(b), 1369(b), interested person" appeals particular Administrator, including establishment standards issuance permits pollutants.23 Where obtained provision, issue challenged subsequent proceeding 1369(b)(2). 14 mechanisms, most counterpart MPRSA,24 supplemented 505(a) 1365(a), 105(g) 1415(g). See nn. 9, statutes.25 Plaintiffs invoking specified procedures—which here ignored—including cases 60 days' prior potential defendants. 15 FWPCA. As supra, "it elemental canon construction remedies, chary reading others it." U.S., 19, 247. 571-574, 2486-2488. compelled conclude 16 above, avoided inference. Discussing rule forms arrived asserting general"—"non-injured member[s] public" promote welfare rather than redress injury welfare. 1227. conclude: 17 "A party violation, were, alternate section jurisdiction Judicial Code, 1331 (1976). 505(e) preserves Administrator. Coupled parties." Ibid. (footnotes omitted) (emphasis added). 18 least problems reasoning. First, language relied, n. 10, quite itself. merely states nothing "shall restrict . statement contained.26 19 Moreover, reasoning relied flawed another reason. draws distinction between litigation virtue clauses. fact, is, therefore, plaintiffs. "Citizen" defined "a affected." 505(g), 1365(g). Senate Conference Report possessing decision Club Morton, 405 727, 1361, 636 (1972). S.Conf.Rep. 92-1236, p. broad category necessarily seeking general, injuries "noneconomic" probably noncompensable, like assert suffered tangible economic violations. 20 take account rest opportunity within 90 days, 1369(b). 13-14. 21 But persuaded evidenced apart many respects almost identical do limit fact alone affirmatively parallel after setting manner enjoin 22 Cort Ash, 422 66, 78, 95 2080, 2088, 45 26 (1975), identified several factors remedies. include history. ibid. ("Second, indication implicit, deny one?") Indeed, Reports debates provide Acts.27 Thus, structure should implied.28 Where, contemplated, ignore judgment. B 23 suggested it, remains source authorization Last Term, Maine Thiboutot, 448 1, 2502, 65 555 (1980), statutes. Accordingly, argued petitioners29 1983. 24 appropriate reach applicability Thiboutot setting, despite below. began long decision. controlling, argument would obviate need consider arguably falls scope involves claiming color injury. Court, however, recognized exceptions application Pennhurst School Hospital Halderman, 1531, 694 (1981), remanded certain determination foreclosed enactment itself, kind enforceable "rights" 28, 1545. present find second "rights, privileges, immunities" meaning 25 remedial devices sufficiently comprehensive, suffice STEWART, later joined majority Chapman Houston Welfare Rights Organization, 441 600, 673, 2, 1905, 1945, 508 (1979) (dissenting opinion), official scheme, procedure bypassed bringing 1983."30 discussed mechanisms. hard believe preserve provisions.31 Chesapeake Bay Foundation Virginia 501 F.Supp. 821 (ED Va. 1980) (rejecting Chairman comprehensiveness federalism concerns raised). therefore foreclose Cf. Carlson Green, 446 14, 23, 1468, 1474, 64 III remaining issues relate principal precedent found raised Wisconsin commissions, Lake Michigan. decide plaintiff, entirely more completely revised soon Milwaukee. 114 (1981). 27 disposes since suppose pre-emptive effect less coastal issue. To regulated different treatment pre-emption question. regulatory dumping, analogous FWPCA.32 dismiss underlying statute. lack vacate below remand further proceedings. 29 ordered. 30 STEVENS, whom BLACKMUN joins, concurring part dissenting part. allowed his court? seemingly simple recently presented difficulty substantive come us.1 During history, presumption usually answer. laws benefit large expected enforced officials, presumptively afforded Pacific R. Rigsby, 241 33, 39-40, 36 482, 484, L.Ed. 874.2 Applying presumption, truly conservative judges—men Harlan,3 Clark,4 Frankfurter,5 Judge Kirkpatrick6—readily obtain For rules meant obeyed, violate responsible misdeeds. 39, 484. earliest days business fashion wrongs.7 32 years, properly concerned about burdens upon judiciary, work product Congress, sheer bulk new legislation, reluctant open courthouse door citizen. 1975, 26, cut back fashioning four-factor formula led denial case.8 multifactor balancing tests generally tend produce negative answers, Members inclined little perfunctory nod Ash factors. See, e. g., 302, 1783, (REHNQUIST, judgment). touchstone ante, 13. unlikely reveal evidence itself fails mention,9 I agree disposition implied-private-right-of-action write separately emphasize current approach task step tradition. More importantly, appraisal expressed (Clean Act), III), palpably wrong. 34 context course know ultimate merits asserted respondents. us, make assumptions analyzing presented. assume speaks truth alleges dumped quantities toxic tributaries, operations Clean Northwest Airlines, Transport Workers, 77, 80, 3, 1571, 1575, 750. Second, illegal commercial interests. Third, "persons" allegedly acted recognizes, 29, III)10 statutes, unless withdrawn remedy. 555. Finally constitute net enacting deliberately deprived effective them. my judgment, belies improbable conclusion. 35 holding decided withdraw seems mention mechanisms "quite comprehensive," finds "hard ." Ante, 20. flaws "intended action," action.11 preserve, or, precisely, intend withdraw, intention comprehensive." agree, implicit ends answered determining pursue exclusive. 1545, 694. address looks elsewhere answer character quarrel matter proposition 93-94, 1581-1582. However, lose sight evaluation statute's tool used discern intent; end No how be, liberty leave avenues open. Express references rebut whatever exclusivity arises indicating 37 Despite available. words shall rise inference states: 38 "Nothing (including agency)." 1365(e). And, 105(g)(5) 39 "The subsection Secretary, 1415(g)(5). 40 Respondents' light plain substituted citation "42 1983" 41 makes mean what say. "It noted, specifically law. shown, remain Compliance defense damages." S.Rep.No.92-414, 81 (1971), Code Cong. Admin. News 3746. 43 H.R.Rep.No.92-911, 134 corresponding report similarly supersede litigant law." S.Rep.No.92-451, pp. 23-24 4250. H.R.Rep.No.92-361, (1971). 44 former latter surely encompass themselves. short remarkable unambiguous expressions read discusses opinion. 15-17, 26. rejecting Appeals' conclusion, clauses, invoke "doubtful" refers appear. 15-16. doubt reinforced use word "other" passages quoted above. 16, holds refer MPRSA; 1983, even though clearly qualifies law," history.12 46 uncover mandate"13 opposite: mandate existing respectfully dissent portion 47 city Milwaukee's complete damage. was, difficult me reconcile excerpts above—particularly statement: "Compliance 49 Today, pursues rationale inexorable noncompliance claim.14 already exposed detail issue, 333-347, 1800-1808 note applies force case.15 50 neither implicitly route. Under 23-24, primary plaintiff member. past, "[t]hat looking itself." Cannon University Chicago, 677, 689, 1946, 1953, 560. 51 nor defines class. Both breadth authorizations indicate "enacted protection public." Cannon, 690, 1954.16 liberal represented Rigsby antecedents, 294-296, 1779-1780. 52 fortified relies. deliberations Air 17-18, 27, illuminate MPRSA—since time environmental objectives—and conscious choice reached Part II-A opinion, remainder Department Conservation; Ogden Reid, individually Commissioner Department; York; Abraham Beame, City; West Long Beach Sewer District; County Westchester Facilities; Beach; Glen Cove. Protection; David J. Bardin, Bergen Authority; Counties; Passaic Valley Sewerage Commissioners; Middlesex Linden-Roselle Middletown Authority. Agency; Russell E. Train, Administrator; Engineers; Martin Hoffman, Secretary Army. "covered ranging approximately southwest Island, point due east Cape May, few sea," Complaint ¶ 35, App. 25a. brief "this algal bloom died, residuals settled floor, creating condition anoxia, oxygen deficiency, ocean's floor. resulted death destruction enormous amount marine life, ocean-bottom dwellers life unable escape blighted area." Brief 4. 26a. FWPCA; law; Rivers Harbors Appropriation 1899, 407; Policy 1969, 4321 seq.; statutes; Fifth, Ninth, Fourteenth Constitution; 740; 1346(b), 2671 tort previously dismissed agencies directors. court's pendent state-law prejudice. 505, forth 1365, provides, part: "(a) Except section, commence behalf— "(1) instrumentality agency eleventh amendment Constitution) (A) chapter (B) order issued limitation, "(2) perform act duty discretionary district jurisdiction, regard controversy citizenship parties, order, duty, case 1319(d) title. "(b) commenced— (a)(1) section— "(A) sixty given occurs, violator standard, "(B) commenced diligently prosecuting require intervene right. (a)(2) except immediately notification respecting sections 1316 1317(a) Notice prescribe regulation." suit. 505(c)(2), 1365(c)(2). infra (legislative emphasizing Act). original added Amendments, citations Code. inapplicable "saving clause" "(g)(1) paragraph (2) person, (to Constitution), prohibition, criterion, established subchapter. permit, be. permit; Attorney General "(C) impose pursuant initiated revocation suspension proceedings (f) section; "(D) subchapter." 1415(g)(1), (2). 1415(g)(3)(B). Like clause," N.Y.Gen.Mun.Law 50-e, 50-i (McKinney 1977 Supp.1980-1981); N.J.Stat.Ann. 59:1-1 (West Supp.1981-1982). timely defendant—New City. petitions acts Eleventh Amendment court. granted. 560 (1975). After stated: "Having reject defendants' sovereign immunity argument. 1976 amendments title waived officers. Whether recovered speaks." 1231 (footnote omitted). passage suggests matter, recognizing included An decision, too important complain died 1976. handed down until 1980. 1412a(a) sludge December 31, offered allegations cognizable admiralty jurisdiction. 1236. requirements, seq., federal-law defendants, 1237, although precluded "money recovery Petitioners cross-claims ever party. navigable "territorial seas," 1362(7), (12), sources "other floating craft", "contiguous zone" high seas, 1362(9), (10), (12). 75 U.S.Code Admin.News 1971, 3668. 1412, dredged materials, Army, 1413. "provides unburdened 505(b)." Instead, explicit, 505(b). implied-right-of-action pre-existing clause. arisen increased frequency. 741-742, 1980 (Powell, dissenting). doing himself. 1319(a)(1). days. 509 "[a]ny person," 85 supplementing W. Rodgers, Law 87-88 (1977). assessment 1415(a), penalties, 1415(b), General, 1415(d), suspensions revocations, 1415(f). payable Government, ordered 505(a), 1365(a). clause: 3746 4234 (Report MPRSA) (the law"). limitation" We, unpersuaded meaning. phrase, limitations, "effluent limitations" decrees placed authorized. 23; 81. modeled 7604 79. indications for. Senator Hart, argued, burden unduly. argue S. 4358 carefully drafted prevent consequence arising. First all, bill individual. incentives protect health situated. rare, ordinary, suspect, who, hope financial gain real prospect loss, initiate bill." 116 Cong.Rec. 33104 (1970). Similarly, during Muskie, response Senators, contrasted 3201, consumer damages: "Senate 3201 fines restitution, pending [sic] abatement administratively act, excludes actions." 33102. Record staff memorandum stating "would encourage frivolous harassing agencies." 33103. Highland Park 519 681, 690-691 (CA7 1975), cert. denied, 424 927, 1141, 337 Evansville Kentucky Liquid Recycling, 604 1008 1979), 1025, 659 municipal suable Monell Dept. Social Services, 436 658, 98 2018, 56 611 (1978). Meyerson Arizona, 507 859, 864 (Ariz. 1981) ("[T]he circumvent Revenue Sharing Act"). STEVENS clauses—§ 15-16, antipollution arising A far different, convinced statutes—regardless asserted. Even correct relates accompanying provision. 329, 1798, (1981) "means [a citizen] revoke remedies"). equally limited. 1415(g)(5) ("The law") overall schemes sum, think holding, STEVENS' argument, post, 27-28, suggest altogether continued date, represents sense adjust coming change. Terms significant docket occupied presenting 101; 662; 146; 82; 560; Industries 500; unanimous plainly disregard command wrongful results especial enacted, default implied, according doctrine maxim, Ubi jus ibi remedium." firmly 299-300, 1782 (STEVENS, concurring), numerous occasions Marbury Madison, Cranch 137, 163, (" '[I]t indisputable rule, right, suit, whenever invaded' "); Kendall Pet. 524, 623, 1181 power performance somewhere, often involve monstrous absurdity organized government, undeniable shown exist"); Pollard Bailey, Wall. 520, 527, 376 ("A liability action"); Hayes Michigan Central Co., 111 228, 240, 369, 374, 410 ("[E]ach specially breach obligation entitled compensation, recovery"); De Lima Bidwell, 182 176-177, 743, 745, 1041 ("If admitted wrong, supply remedy"). Bivens Six Unknown Narcotics Agents, 403 388, 402, 91 1999, 2008, 619 (concurring judgment) ("[I]n lacking where, view, necessary effectuate policy underpinning statute"). Case Borak, 377 426, 433, 84 1555, 1560, 423 ("[I]t alert purpose"). Montana-Dakota Utilities Northwestern Public Service 341 246, 261, 71 692, 700, 912 opinion) purposes statute, denied authorized"). Kardon Gypsum 512, 513-514 Pa. 1946) [T]he fundamental deeply ingrained withhold plainly"). full powers counterparts, see, 95, 1582, cited nonetheless wrongs traditionally courts. adopted single-factor test combined inquiries: "In providing one, relevant. 'one enacted,'—that favor plaintiff? one? consistent finally, relegated basically concern inappropriate solely law?" 2088 (citations original). 694, 1956; 94, 1582. provides: "Every ordinance, regulation, custom, usage, Territory, Columbia, subjects, causes subjected, thereof deprivation rights, immunities secured Constitution laws, liable equity, proper redress." semantic dispute. formulates inquiry, show redressed actions. formulation, places defendant access enforcing face, applicable alleged, 4, 2504, 555, exception carry identifying revealing establishing departure "plain language" dominated decisions, disregards Just last statute: 'and laws,' says, subset laws. Given attached modifiers undoubtedly embraces Security Act." 2504. 15. recognize, defendant's technically irrelevant. anomalous today text. Solicitor notes: indicates understood well." 37. cites Congressman Dingell, cosponsors House, referring 118 Rec. 33757 Legislative History (Committee Print compiled Committee Works Library Congress), Ser. 93-1, 252 (1973). statement, Dingell H.R.Rep.No.92-1401, 31-33 approval pursued polluters. 343-344, 1806 (BLACKMUN, statements serve range 1251(a), objective restore maintain chemical, physical, biological integrity Nation's waters." 2(b) declares regulate types strictly human health, welfare, amenities, environment, ecological systems, potentialities." 1401(b).

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