Document: 127 S. Ct. 1423 (2007) ENVIRONMENTAL DEFENSE et al., Petitioners, v. DUKE ENERGY CORPORATION, al. No. 05-848. Supreme Court of United States. Argued November 1, 2006. Decided April 2, 2007. *1427 Sean H. Donahue, Washington, D.C., for petitioners. Thomas G. Hungar, respondent States in support Carter Phillips, the Duke Energy Corporation. Roger R. Martella, Jr., Acting General Counsel, Environmental Protection Agency, Paul D. Clement, Solicitor General, Counsel Record, Department Justice, as Respondent Supporting Petitioners. Jeffrey M. Gleason, J. Blanding Holman, IV, Caleb Jaffe, Southern Law Center, Chapel Hill, N.C., Vickie Patton, Defense, Boulder, Colorado David T. Goldberg, New York, N.Y., Marc E. Manly, Group Executive and Chief Legal Officer, Catherine Stempien, Vice President Corporate Legal, Garry Rice, Associate Corporation, Department, Charlotte, NC, Mark Hopson, Kathryn B. Thomson, Stephen Nickelsburg, Sidley Austin LLP, Henry V. Nickel, F. William Brownell, Makram Jaber, Hunton & Williams Cottingham III, Nash Long, Ann Klee, Chet Thompson, Deputy Granta Y. Nakayama, Assistant Administrator, W. Swegle, Carol Holmes, Schnare, Alan Dion, Attorneys Sue Ellen Wooldridge, Attorney James A. Feldman, to Katherine Barton, Jason Dunn, *1428 As Justice SOUTER delivered opinion Court. In 1970s, Congress added two air pollution control schemes Clean Air Act: Source Performance Standards (NSPS) Prevention Significant Deterioration (PSD), each them covering modified, well new, stationary sources pollution. The NSPS provisions define term "modification," 42 U.S.C. § 7411(a)(4), while PSD use that word "as defined in" NSPS, 7479(2)(C). Appeals concluded statute requires Agency (EPA) conform its regulations on "modification" their counterparts, EPA's 1980 can be given this conforming construction. We hold Appeals's reading regulations, intended align with was inconsistent terms effectively invalidated them; any such result must shown comport Act's restrictions judicial review EPA validity. I Amendments 1970, 84 Stat. 1676, broadened federal authority combat pollution, see Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 U.S. 837, 845-846, 104 2778, 81 L. Ed. 2d 694 (1984), directed devise National Ambient Quality (NAAQS) limiting various pollutants, which were obliged implement enforce, §§ 7409, 7410. amendments dealing authorized require operators pollutants best technology Chevron, supra, at 846, 2778; also 1 Grad, 2.03, p. 2-356 (2006), both newly constructed those undergoing 7411(a)(2). Section 111(a) 1970 within scheme "any physical change in, or method operation of, a source increases amount pollutant emitted by results emission not previously emitted," 7411(a)(4). 1975 implementing provided generally operational an existing facility increase rate atmosphere standard applies shall considered modification meaning [S]ection 111." 40 CFR 60.14(a) (1976). Especially significant here is identification "increase[s]. . rate," "shall expressed kg/hr discharged into atmosphere." 60.14(b).[1] *1429 however, did too little "achiev[e] ambitious goals Amendments," Belden, Act 7 (2001) (hereinafter Belden), 1977, 91 685, included provisions, aimed giving protection quality certain parts country "notwithstanding attainment maintenance of" NAAQS. 7470(1).[2] 1977 required permit before "major emitting facility" could "constructed" area covered scheme. 7475(a). originally enacted, applied only sources, but soon technical amendment following subparagraph: "The `construction' when used connection facility, includes (as 111(a)) facility." 14(a)(54), 1402, 7479(2)(C); York EPA, 413 F.3d 3, 13 (C.A.D.C.2005). other words, "construction" requiring under made include (though it limited to) statutory provisions. 1980, issued regulations,[3] "limited application [PSD] review" modified instances "`major' modificatio[n]," Belden 46, major would net emissions subject regulation Act." 51.166(b)(2)(i) (1987). Further turn addressed elements definition, three are point here. First, specified consisting merely "[a]n hours production rate" constitute "physical operation." 51.166(b)(2)(iii)(f). For purposes permit, is, defines it. Second, "net increase" "[a]ny actual from particular operation," contemporaneous "increases decreases source." 51.166(b)(3). "Actual emissions" "equal average rate, tons per year, unit actually during two-year period precedes date representative normal 51.166(b)(21)(ii). "[A]ctual "calculated using unit's operating [and] rates." Ibid. Third, "significant" "a equal exceed" one another enumerated threshold, "tons year." 51.166(b)(23)(i). *1430 It bold try synthesize these regulatory concise paragraph, points relatively clear about regime covers case: (a) it, operation, emits new one. (b) available pollution-limiting discharge measured kilograms hour. (c) (with same definition) annual above prior years. held Congress's provision defining reference caught whatever gloss puts definition time (for requirement). When, therefore, specify "change" amounts modification" they measure "the hourly discharge, just way do. Petitioners say, contrary, addresses object free put different interpretation common core measuring increased actual, will follow modification, regardless This disagreement nub case. II Corporation runs 30 coal-fired electric generating units eight plants North South Carolina. Corp., 411 539, 544 (C.A.4 2005). placed service between 1940 1975, boiler containing thousands steel tubes arranged sets. Between 1988 2000,[4] replaced redesigned 29 tube assemblies order extend life allow run longer day. filed action 2000, claiming, among things, violated doing work without permits. Carolina Sierra Club, Public Interest Research Citizen Lobby/Education Fund intervened plaintiffs complaint charging similar violations. moved summary judgment, positions being none projects *1431 because rates emissions. District agreed Duke's regulations. reasoned express exclusion operation" implied "post-project levels calculated assuming" preproject operation. 278 Supp. 619, 640-641 (M.D.N.C.2003). Consequently, said, occur "only if project emissions." Id., 641. found further construction letter memorandum written 1981 Director Division Stationary Enforcement, Edward Reich. 641-642. intervenor-plaintiffs (collectively, plaintiffs) subsequently stipulated "that do contend issue case caused maximum Energy's units." App. 504. Rather, claim "is based solely contention have been projected utilization issue." Duke, part, plaintiffs' right appeal Court's determination resulting greater modifications" triggering requirement, absent then entered judgment all claims. Fourth Circuit affirmed, "albeit somewhat reasons." F.3d, 542. "[T]he language interpretations largely irrelevant proper analysis case," Appeals, "because Congress' decision create identical definitions `modification'" "has affirmatively mandated interpreted identically" promulgated 547, n. 550. relied principally Rowan Cos. States, 452 247, 250, 101 2288, 68 814 (1981), where we against Government's differing "wages" tax saw establishes "effectively irrebuttable" presumption contain conditions including emissions.[5] had initially Rowan, 4, sua sponte requested supplemental briefing Rowan's relevance, injected They argued exceeded attack validity raised enforcement proceeding. See 7607(b)(2). Under 307(b) Act, obtained *1432 petition Columbia Circuit, 60 days rulemaking. 7607(b). rejected argument. "Our choice invalidation regulations," interpreted" element requirement. 549, 7. To show open construction, cited conclusions Reich opinions. granted certiorari brought intervenor-plaintiffs, 547 ___, 126 2019, 164 778 now vacate. III understood simply construing permissible left harmony counterpart and, hence, single "modification." say rewriting neither nor consistent own text. true no precise line purposeful adopted bring view statute, invalid. But latter occurred here, efforts trim match counterparts seen implicit declaration invalid written. A applying conduct, thought that, identically reasonably adhered NSPS. principles so rigid. Although presume has occurs there mischaracterized irrebuttable." understand "[m]ost words shades consequently may variously construed, statutes, more than once even section." Atlantic Cleaners Dyers, 286 427, 433, 52 607, 76 1204 (1932). Thus, "natural act rigid readily yields whenever variation warrant conclusion employed intent." take distinct characters association objects calling implementation strategies. share general enough, recognized Robinson Shell Oil Co., 519 337, 117 843, 136 808 (1997). There question whether "employees" 704(a) Title VII Civil Rights 1964 former employees. expressly *1433 "employee," 2000e(f), "consistent either current past employment," U.S., 342, "each section" "must analyzed determine context gives resolve dispute," id., 343-344, 843. If (on relied), later case, read compatible. value meals lodging employees employer convenience should counted computing Federal Insurance Contributions (FICA), 26 3101 seq., Unemployment Tax (FUTA), 3301 seq. Treasury Regulations "includable `wages' FICA FUTA, though excludable substantially identical" income-tax withholding purposes. 252, 2288. ultimately income treatment across board, "substantially appeared Instead, manifest "congressional concern interest simplicity ease administration." 255, 2288 (internal quotation marks omitted). FUTA fell failing "serve interest," 257, defying definitional identity. fact, setting much like recently declined uniformity resolving ambiguities terms. Cleveland Indians Baseball 532 200, 121 1433, 149 401 (2001), notion phrase "wages paid" discrete taxation benefits eligibility contexts" can, standing alone, "compel symmetrical construction," 213, 1433; gave "substantial deference" "longstanding," "reasonable," Internal Revenue Service Rulings. 218-220, 1433. then, "be identically." Context counts. repeat sections; referred back section matter Robinson, distinction making difference Nothing text legislative history cross-reference suggests details mind imposed requirements sources; alone certainly unambiguous congressional code eliminating customary agency discretion questions looking surroundings term, occurs. 19 ("So far appears, [this] incorporatio[n] [is] equivalent having repeated context"); compare 745 (expressly incorporating unrelated *1434 interpretative [EPA] Administrator published 41 Register 55524-30" exceptions); ("Congress's failure incorporation `modification' cuts against" suggestion "Congress incorporate" "preexisting definition" "modification"). Absent iron rule ignore reasons regulating "modifications" differently, need fall limits what reasonable, set common[6] definition. B reasoning led court seems us stretch used. cannot taken track agency's True, seamless narrative, clearly "hourly rate." On face, specifies all, annual, any" regulated pollutant. 51.166(b)(2)(i). mentioned, terms, increase," hourly. Each thresholds quantify described year," 51.166(b)(23)(i), "increase "average" many 51.166(b)(3) (21)(ii). And odds idea relevant mandate "[a]ctual hours," 51.166(b)(21)(ii), since "actual manner looks number probably running. What getting operations averaged over time, squared emissions," 550 (emphasis deleted), dispositive. invoked textual differences. appellate *1435 authorities ostensibly demonstrating "can consistently" test, first necessarily prerequisite excluded "`increase rate'" scope "`[a] operation.'" F.Supp.2d, (quoting 51.166(b)(2)(iii)(f) (3)(i)(a) (1987)). require, effect, source's constant" compared postproject purpose calculating increase." 640. think understanding makes mistake overlooking separate components modification": "[1] [2] 51.166(b)(2)(i); cf. 11 ("[The statutory] changewhether operationaland pollutant" original)); Wisconsin Electric Power Co. Reilly, 893 F.2d 901, 907 (C.A.7 1990) (same). 51.166(b)(2)(iii)(f), speaks ("physical method," 51.166(b)(2)(i)), second ("significant ibid.). preamble explains, forcing companies obtain adjust "would severely unduly hamper ability company advantage favorable market conditions." 45 Fed.Reg. 52704. mere 51.166(b)(2)(iii). took step further. assumed (resulting old hour) ignored enabled independent That reading, turns exception component very facts count second, 51.166(b)(3), 51.166(b)(21)(ii); 57 32328 (1992) ("[A]n attributable construction-related activity .").[7] *1436 support, opinions increasing modification." continues rely asserting "there contrary pronouncements." Brief 28. letters not, heavy ammunition. Their persuasiveness elusive, brief conclusory statement supporting position. Nor, seems, unembarrassed "contrary See, e.g., 258 (Memorandum Don Clay, Radiation) (Sept. 9, 1988) (when "plans inextricably intertwined changes planned," "precisely type o[f] disturb assessment environmental impact undergo scrutiny" alterations omitted)); Fed. Reg. 32328. event, answers citation realize isolated official does authorize inconsistently language.[8] sum, doomed attempt equate counterpart. consequence, form implicating limit challenges proceedings "could obtained" 7607(b); Cinergy 458 705, 707-708 2006); F.2d, 914, 6. Because believe reached validity, consider applicability effect limitation occasion significance ourselves. IV Finally, assumes argument construe done, *1437 charges "retroactively targeting twenty years accepted practice." 37; State Alabama Amici Curiae. claim, too, tackled Appeals; extent procedurally foreclosed, press remand. * vacated, remanded opinion. ordered. THOMAS, concurring part. join Part III-A write separately note my dicta portion opinion, states singular (PSD) explicitly links term's Standard statute: 7411(a) title) contains parties agree cross-reference, same. therefore despite contextual variations admittedly schemes. explicit linkage PSD's NSPS' prevents adopting Cf. IBP, Alvarez, 546 21, 34, 514, 163 288 (2005) (concluding "explicit reference" previous prohibits interpreting differently). 7479(2)(C)'s carries repetition context. When repeats context, possible might alter word. No possibility exists By demonstrated intend hinge factors unique analyzes weight situation. Likewise, differs circumstance faced 1964, determined "employee" sense respect employees, *1438 both. 342-343, Accordingly, upon analyzing 704(a), compelled conclude present conveys intent provide differences compel meanings inapplicable. Even repeating still apply our usual meaning. Cleaners, 607; ante, 1432. overcome While broadly stated differ, unlike contexts proposed unify 70 61083, 3 (terming proposal "an appropriate exercise discretion" stating unified better serves goals). majority repeated, carry explains cases situations. Granting point, burden why outcome done so. NOTES [1] "rate" means technology, 60.14(a)-(b) (1977), way. 2; 7; 32. At appeared: "`Modification' (to applies) facility," 60.2(h); 11-12 (C.A.D.C.2005) (per curiam) ("[N]either explained necessary offer glosses `modification'"). Statutory superseded established 1974. 39 42510. national promulgated." 42514. [3] earlier 1978, 43 26380, argues govern conduct [4] some governed 1992 rather 20, 4. disputes this. 14, acknowledges sets "did materially differ legal here," assume, Court, control. 543, 1; 629 [5] noted abandon requirement accompanied emissions, programs. 550-551. reasonableness apart deviation contained [6] incorporate 1974 program. 44; supra. find text, refers correctly out instructed bulk pre-existing rules `shall remain effect,'" 44 7478(a)), instruction temporary "[u]ntil applicable plan effect," 7478(a). restriction interpret departs invokes Bragdon Abbott, 524 624, 631, 118 2196, 141 540 (1998), proposition "use `carries implication construed accordance interpretations.'" 44. unavailing existence least amendments. ___-___ 2-3, nn. 2. [7] Two Courts agree. 708 2006) ("[M]erely running plant closer capacity involve If, enables output, according interpretation, inapplicable" 916, (the "was facilities fluctuating conditions, activity"); Puerto Rican Cement 889 292, 298 (C.A.1 1989) ("[T]here logical contradiction hand, firms output other, potential basis levels" original)). [8] offers alternative test program: become (1987), meet 60.14(a). sounds right, example, superfluous 51.166(b)(2)(i), presupposed prerequisite, 60.14(a), already satisfied. complementary related subset.

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