Document: 470 U.S. 729 105 S.Ct. 1598 84 L.Ed.2d 643 FLORIDA POWER & LIGHT COMPANY, Petitioner,v.Joette LORION, etc., et al. UNITED STATES NUCLEAR REGULATORY COMMISSION and United States, Petitioners v. Joette LORION Nos. 83-703, 83-1031. Argued Oct. 29, 1984. Decided March 20, 1985. Syllabus Under 28 U.S.C. § 2342(4), a provision of the Hobbs Act, courts appeals have exclusive jurisdiction over petitions for review "all final orders" Nuclear Regulatory Commission "made reviewable by" 42 2239. Section 2239(b), in turn, provides that Act governs "[a]ny order entered any proceeding kind specified subsection (a) this section." Subsection (a)(1) "[i]n under chapter, granting, suspending, revoking, or amending license . shall grant hearing upon request person whose interest may be affected by proceeding." Respondent Lorion (hereafter respondent) wrote detailed letter to expressing fears about potential safety threats at Florida Power Light Co.'s nuclear reactor near her home, urging suspend reactor's operating license. The treated as citizen petition, its rules, requesting institution administrative proceedings After ultimately denied request, respondent petitioned Court Appeals review. court decided sua sponte it lacked initial subject-matter Commission's denial respondent's concluding such was not an "proceeding" within meaning 2239(a)(1). Held: 2239 vests orders denying made pursuant rules. Pp. 734-746. language is ambiguous because (b) refers "proceeding[s] (a)," but pertinent sentence sets forth both scope licensing requirement proceedings. Thus read authorize either reference whether held (as did here), subject matter agency action, is, issued proceeding. 735-737. Relevant evidence congressional intent legislative history supports interpretation Congress intended provide all before occurred could occurred. 737-740. (c) Whether denials citizens properly lies district must also considered light basic choice 2239(b). specifically contemplates resulting from which no took place. 740-741. (d) Adopting rule would vest with challenges only when result irrational consequences squared general principles respecting judicial action. 741-745. 229 U.S.App.D.C. 440, 712 F.2d 1472 (1983), reversed remanded. Charles A. Rothfeld, Washington, D.C., petitioners No. 83-1031, pro hac vice, special leave Court. Harold F. Reis, petitioner 83-703. Martin H. Hodder, Miami, Fla., respondents. Justice BRENNAN delivered opinion 1 These cases require us decide 2342(4) federal initially decisions deny "institute modify, revoke ." 10 CFR 2.206(a) (1984). 2 * Lorion, on behalf Center Responsibility, September 11, 1981, express Company's Turkey Point home outside Florida. Her urged Point's license1 several reasons action.2 Lorion's petition enforcement action authority 2.206 rules practice. This provides: set facts constitute basis request." 3 requires Director Reactor Regulation, reasonable time after receiving institute requested proceeding,3 written explanation decision request. 2.206(b). interprets requiring issuance show cause raises "substantial health issues." Consolidated Edison Co. New York, N.R.C. 173, 174 (1975). 4 In these cases, take had requested. His explanation—based 547-page record compiled primarily existing materials responded each points.4 See re (Turkey Plant, Unit 4), 14 1078 (1981). unsuccessfully sought Director's then District Columbia Circuit Before court, argued arbitrary capricious Administrative Procedure (APA), 5 706(2)(A). claimed improperly statutory right full public defended substantive integrity hearing. Declining reach merits dispute, challenge petition. based court's reading three provisions define decisions. Orders Review (commonly known referred herein Act) seeking Atomic Energy [now Commission] section title 42." Title 2239(b) [of 2239]." are those "for license." concluded "proceeding license" 2239(a) therefore dismissed lack jurisdiction. (1983). 6 turned interrelation between 2239(a)(1) On requirement, reasoned if interested obtain Because earlier hearing, see Porter County Chapter Izaak Walton League America, Inc. NRC, 196 456, 462, n. 16, 606 1363, 1369, 16 (1979), brief " '[u]nless until granted [Lorion's request] where requester has present evidence,' U.S.App.D.C., 446, F.2d, 1478 (citation omitted), 2239(a). found order, declined hear case.5 holding arguably departed precedent Circuit,6 event created direct conflict holdings two other Circuits.7 We certiorari resolve conflict. 466 903, 104 1676, 80 152 reverse. II 7 issue should exclusively 2342(4).8 Enacting 1954, focus question; establish procedure 20 years later. 39 Fed.Reg. 12353 (1974).9 Our task reviewed 8 begin, Appeals, statute. Reiter Sonotone Corp., 442 330, 337, 99 2326, 2330, 60 931 (1979). crucial is: "Any manner prescribed [the 2341 seq.]." Though seem generally locate cross-reference (a)" problematic. vexing semantic conjunction, ("In proceeding"). 9 "clear-cut." 445, 1477. do find so. linkage definition it, supra, 1601-1602, easily reflecting independent purposes: (1) hearings certain individuals (those "whose affected"); (2) place irrespective alternative reading, meant refer "any license," If way, reflects limit actions To discern correct statute we procedures accompanying (i.e., held) proceeding). former interpretation, relied solely what plain Yet meaning, like beauty, sometimes eye beholder. below inferred "plain meaning" conjunction description without consulting indicia proper forum face, seek guidance structure, relevant history, purposes expressed review, allocation orders. conclude sources indicate B 11 though fragmentary, interpretation. metamorphoses various bills eventually became 1954 strongly suggest according As originally introduced House Senate, governing (§ 189 proposed provided enjoin, aside, annul brought H.R. 8862, 83d Cong., 2d Sess., (1954); S. 3323, (1954). Joint Committee Energy, amended denying, modifying, rescinding (Comm. Print May 21, 1954). change unexplained, appears been proceedings; version more broadly authorized Commission." Soon bill incorporating submitted Congress, shortcoming apparent. Judicial extend terminated short suspension, revocation, amendment license; suspend, revoke, amend Remedying deficiency, Senator Hickenlooper expand authorization act, Amendment 3690, (July 1954) (emphasis added). 12 developed independently last step process. original determinations. supra; supra. prompted expressions concern hearings, 3323 Amend 1946: Hearings 8862 65, 113-114, 152-153, 226-227, 328-329, 352-353, 400-401, 416-417 (1954), led 181 providing action." 9757, soon recognized too broad response perceived need, 100 Cong.Rec. 10686 (1954) (remarks Sen. Pastore) ("That wording thought broad, broader than make it"), tailored Subchapter. accomplished narrowing same he used broaden He simply add 189, governed review; way limited 189. accepted current precise wording. 13 evolution reveals When so procedural particulars That evolved reinforces conclusion intention possible last-minute marriage Amendment. Nothing affirmatively suggests contrary, indicates types place—that ("The limits licenses place"). C contemplated 2347(b) ("When pass issues presented, required law genuine material fact presented"). One purpose avoid duplication effort involved creation separate court. H.R.Rep. 2122, 81st (1950) ("[T]he submission records agencies will making records, one thus going ground twice"). Cf. Harrison PPG Industries, Inc., 446 578, 593, 1889, 1898, 64 525 (1980) most obvious advantage saved compared followed second appeal"). 15 Given primary method orders, reason think preclude occur consequence precluding unnecessary effort. D lead petitions. An examination follow adoption contrary confirms soundness conclusion. specify vested actually Either approach results cannot 17 hinged occurred, some while others depending It clear possibility hearings. Absent required. chapter requests comes proceeding, held. See, e.g., Bellotti 233 274, 725 1380 locus depend "fortuitous circumstance" Crown Simpson Pulp Costle, 445 193, 196-197, 1093, 1094-1095, 63 312 (1980). sorting process layers one. "Absent far clearer expression intent, unwilling creating seemingly bifurcated system." Id., 197, S.Ct., 1095. 18 taken one, different equally follow. All full-blown agency. But summary informal rulemaking does currently situations.10 19 At least implausible flow excluding situations appeals. First, appeals, attendant delays, defeat very agency—saving worth formal consideration record. Investment Company Institute Board Governors Federal Reserve System, 179 311, 317-318, 551 1270, 1276-1277 (1977); Verkuil, Informal Rulemaking, Va.L.Rev. 185, 204 (1974). Second, bifurcation While numerous ancillary preliminary intervention persons who purport absence specific however, resolving core issue. Foti INS, 375 217, 227, 232, 306, 313, 315, 281 (1963); L. Jaffe, Control Action 422 (1965); Currie Goodman, Action: Quest Optimum Forum, 75 Colum.L.Rev. 1, Perhaps plausible justification linking occurrence that, absent reviewing adequate agency-compiled factual evaluate factfinding powers up deficiency. Such cannot, fundamental "[T]he focal point already existence, new court." Camp Pitts, 411 138, 142, 93 1241, 1244, 36 106 (1973). apply appropriate APA standard 706, presents Citizens Preserve Overton Park Volpe, 401 402, 91 814, 136 (1971). 21 support factors, challenged course, except rare circumstances, remand additional investigation explanation. empowered conduct de novo inquiry into being own conclusions inquiry. precisely Term case involving Act. FCC ITT World Communications, 463, 468-469, 1936, 1939-1940, 480 (1984); Moreover, necessary compilation compiling demonstrate, typically compile course §§ 551(13), 704, 706. 22 capacity decisionmaking. Placing negative effect, identical appeals; decide, provides, passes muster jurisdictional waste U.S., 1898; Institute, 317, 1276. firm indication courts, presume depart sound policy placing 23 considerations force cases. Locating certainly probably use ongoing would, unsuccessful, appeals.11 III 24 views policy. 1898. indications able harmony Congress' consistent hold Accordingly, judgment reversed, remanded further opinion. 25 ordered. 26 STEVENS, dissenting. 27 Anyone write initiate proceedings.1 Today holds whenever denies inconsistent controlling regulations. ignores settled principle "individual agency] presumptively 701-706." Heckler Chaney, 821, 838, 1649, 1659, 714 (1985) (BRENNAN, J., concurring). There ambiguity statutes. 2342 29 "The (in whole part), determine validity of— 30 31 "(4) [Nuclear 42. ."2 32 Thus, question construction refusal "final orde[r] 33 cross-referenced statute3 contains subsections, 2239(a), (b). confers "entered kinds identified (a).4 permit, modification regulations dealing activities licensees." Through (b), initiated 34 adopted concerning "Director Regulation serving licensee cause." 2.202(a) proceedings, described his information "set[s] (1984).5 latter event, explain Director, discretion,6 2.206(b).7 35 case, sent 10-paragraph problems might suspension temporary shut-down Co's. # 4. App. 8. Three half weeks later, entitled "Director's Decision 2.206."8 regulation plainly states, "shall proceeding" advise party "that instituted part, respect therefor." type; enumerated 2.202. initiated, hearing.9 Likewise, 37 rejects simple language, observing "subject-matter [not] turn quibbles." Ante, 745, 11. Proper deference exactly result. hardly equivocation argue "[s]tatutory begin employed assumption ordinary accurately expresses purpose." 'N Fly, Dollar 469 194, 658, 662, 83 582 (1985). Even Court's tortured generate were supported implicit efficient decisionmaking, debatable best justify revision text. 38 failure avenue appeal well implement "committed discretion law" courts. 701(a)(2). "This occasions many agency's prosecute enforce, through civil criminal process, committed absolute discretion. recognition existence attributable small part unsuitability refuse enforcement." 831, 1656, (1985).10 reviewability not, my opinion, chooses decides adversary presentations, elected available commence Light's commended giving access reasoning decision. lengthy record, inaction here rejected one-paragraph return mail. 40 are, constitutes abdication responsibilities Dunlop Bachowski, 421 560, 566-576, 95 1851, 1857-1862, 44 377 Cases kind, represent exception rather rule,11 "[t]he initate against individual corporation much prosecutor's move forward prosecution" traditionally unreviewable. Butz Economou, 438 478, 515, 98 2894, 2915, 57 895 (1978). 41 recognizes, ante, 735, 8, 745-746, exercise unreviewable raised actions, any, view "Congress mundane matters," 839, 1660 concurring), nevertheless, Only justice statutes, regulations, law. I respectfully dissent. Sections 181-189 2231-2239, comprehensive scheme govern private operation power facilities. steam generator tubes inspected; plugging consequent deactivation 25% overburdened remaining functional posed risk leakage tubes; (3) steel pressure vessel become dangerously brittle withstand thermal shock accompany emergency cooldown core. 6-8. file [10 CFR] 2.202 license, proper. institutes licensee. According inform of, inter alia, allegations respond, inspection mooted staff October 19, approximately month letter. leaking pose serious hazard. chances remote subjected close monitoring staff. cracking similarly negligible. transferred 1631. Pet. Cert. p. 15. suggested likely 1331 1337. 447, 1479. Seacoast Anti-pollution Hampshire 223 288, 291, 690 1025, 1028 (1982). Rockland 709 766, 774 (CA2), cert. denied, 464 993, 485, 78 681 (1983); Rockford Women Voters 679 1218, 1219-1221 (CA7 1982). address located certiorari, parties briefed addition, APA, 701(a)(2), instances "agency they involve 828-835, 1654-1658, neither nor presented resolution. open choose press it. finding viewed "proceedings" 2239(b); "[c]learly, changes affect content embraced orders." 230, 314, (1963). For example, contention specificity, BPI AEC, 163 422, 502 424 (1974), showing exists, 2.749 Similarly, accompanied notice comment procedures. Connecticut 218 134, 673 525, 459 835, 103 79, 74 76 question, condition restrict ways. particular, argues itself consider term understood argument large authorizes raising substantial questions. refusing argues, none instituted. Also, unfortunate below, commences (1984) issued. (quoting Government 24-25). quibbles. intend first will, reason, culminate terminating prior lie 742-743. terminates products "proceedings." reality claim early argument, understood, exercises such, goes specifying how letters processed. Although Commission, 201(f) Reorganization 1974, 88 Stat. 1242, 5841(f), regulatory Commission. 301(g) successor old applying statutes 1248, 5871(g). enacted 68 955. portion reads follows: "(1) licensees, admit proper." 2.206(c)(2) "[n]o entertained allow exceptional "the motion abused discretion." 2.206(b) "Within paragraph received, accordance subpart writing (Emphasis added.) Illinois 591 12, 1979); cf. 1369 succinctly stating '[a] just that—a Unless granted, evidence.' Brief 26-27 82-1132 (CADC), pp. Southern R. Seaboard Allied Milling 444, 455, 2388, 2394, 1017 (1979); NLRB Sears, Roebuck Co., 132, 1504, 1510, (1975); Moog FTC, 355 411, 413, 377, 379, 370 (1958); States Batchelder, 114, 124, 2198, 2204, 755 Bachowski holds, 1337, conferring 566, 1857. Court, identifies

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