Document: 460 U.S. 766 103 S.Ct. 1556 75 L.Ed.2d 534 METROPOLITAN EDISON COMPANY, et al., Petitionersv.PEOPLE AGAINST NUCLEAR ENERGY al. UNITED STATES REGULATORY COMMISSION, Petitioners, v. PEOPLE Nos. 81-2399, 82-358. Argued March 1, 1983. Decided April 19, Syllabus Petitioner Metropolitan Edison Co. (Metropolitan) owns two licensed nuclear plants at Three Mile Island near Harrisburg, Pa. On a day when one plant (TMI-1) was shut down for refueling, the other (TMI-2) suffered serious accident that damaged reactor and caused widespread concern. The Nuclear Regulatory Commission (NRC) then ordered to keep TMI-1 until it could be determined whether operated safely, published notice of hearing included an invitation interested parties submit briefs on psychological harm or indirect effects renewed operation should considered. Respondent People Against Energy (PANE), association residents Harrisburg area who are opposed further either TMI reactor, responded this invitation, contending restarting would cause both severe damage persons living in vicinity, stability, cohesiveness, well-being neighboring communities. When NRC decided not take evidence these contentions, PANE filed petition review Court Appeals, National Environmental Policy Act (NEPA), inter alia, required address its contentions. court held improperly failed consider risk might health community surrounding Island. Held: need PANE's Pp. 771-779. (a) Section 102(C) NEPA—which provides where agency action significantly affects quality human environment, must evaluate "environmental impact" any unavoidable adverse effects" proposed action—does require assess every impact effect action, but only environment. statute's context shows Congress talking about physical Although NEPA states goals sweeping terms welfare, ends has chosen pursue by means protecting Pp.772-773 (b) does agencies risk, qua risk. § read include requirement reasonably close causal relationship between change environment issue. Here, federal is permitting TMI-1. direct release low-level radiation, increased fog, warm water into Susquehanna River, all which also considered accident. But In chain from damage, element perception members necessary middle links. That lengthens beyond NEPA's reach. 773-777. (c) Regardless gravity alleged PANE, if have sufficiently connection apply. P.778. (d) claim made wake TMI-2 irrelevant. directed past accidents create remedial scheme actions. Pp.778-779 219 U.S.App.D.C. 358, 678 F.2d 222, reversed remanded. Paul M. Bator, Cambridge, Mass., petitioners. William S. Jordan, III, Washington, D.C., respondents. Justice REHNQUIST delivered opinion Court. 1 issue cases petitioner complied with Act, 42 U.S.C. 4321 seq. permit resume Unit power (TMI-1). Appeals District Columbia Circuit area. 222 (CADC 1982). We reverse. 2 Pennsylvania. Both were after extensive proceedings, preparation Impact Statements (EIS). 28, 1979, operating; had been refueling. operating, reactor.1 Although, as turned out, no dangerous radiation released, Governor Pennsylvania recommended evacuation pregnant women small children, many did leave their homes several days. 3 After accident, opportunity determine safely. 44 Fed.Reg. 40461 (1979). specifying safety related issues consideration. 10 N.R.C. 141 stated It invited Id., 148. 4 intervened invitation. reactor. contended communities.2 5 concerning Co., 12 607 (1980); 14 593 (1981).3 Atomic 2011 seq., contentions.4 side NRC. 6 concluded F.2d, 249-253. find, however, requires "the potential operating" arisen since original EIS prepared. 235. that, finds significant new circumstances information exist subject, shall prepare "supplemental [EIS] considers well being communities Island." 235-236. granted certiorari.5 --- ----, 292, 74 276 (1982). 7 All agree can cognizable under NEPA, may health. thought propositions enough complete syllogism disposes case: An Therefore, asserted PANE. See 228. using similar reasoning, contends because (renewed TMI-1), damage. Brief 23. arguments appealing first glance, we believe they skip over essential step analysis. They do closeness "effect" 8 4332(C), directs 9 "include recommendation report proposals legislation major Federal actions affecting detailed statement responsible official on— (i) environmental [and] 11 (ii) cannot avoided proposal implemented . ." To paraphrase statutory language light facts case, proposal. theme 102 sounded adjective "environmental": If seize word "environmental" out give broadest possible definition, words "adverse embrace virtually consequence governmental some "adverse." think statute environment—the world around us, so speak. designed promote welfare alerting actors 13 statements principal sponsors explaining colleagues Conference Report ultimately enacted, illustrate point: "What involved [in NEPA] declaration intend government people initiate endanger continued existence mankind: will intentionally irreparable air, land support life earth." 115 Cong.Rec. 40416 (1969) (Remarks Sen. Jackson) (emphasis supplied). "[W]e now move forward preserve enhance our aquatic, terrestrial environments carry policies set forth bill provide each citizen great country healthful environment." 40924 Rep. Dingell) 15 Thus, although welfare,6 16 consideration particular effect, look For example, Department Health Human Services implement extremely stringent requirements hospitals nursing receiving funds, perfectly adequate forced existence. remaining facilities limited expensive ill unable afford medical care suffer Nonetheless, evaluating proximately 17 Some "caused by" sense "but for" causation, nonetheless fall within too attenuated. relatives parts country. Renewed problems people. "anxiety, tension fear, helplessness," accompanying disorders, n. 2, supra, harmed However, simply remote justify requiring 18 Our understanding congressional concerns led enactment suggests effect" This like familiar doctrine proximate tort law. generally W. Prosser, Law Torts ch. (4th ed. 1971).7 before then, how content requirement. question impression 19 case TMI-1.8 fog (caused plant's cooling towers), River. EIS, again EIA. J.A. 51-58. Another effect.9 58-60. 20 argues alleges "will flow directly [a nuclear] accident." A is, unrealized world. links.10 reach NEPA. 21 Risk pervasive modern life; say more belabor obvious. Many risks face generated technology, brings possibility opportunities tremendous achievements. Medical experts apparently generate stress beings, turn rise level reason among others, gains technological advance worth attendant important public policy quite different same given alteration depletion natural resources. latter rather than former central concern 22 Time resources us intended extend far taken it. Vermont Yankee Power Corp. NRDC, 435 519, 551, 98 1197, 1215, 55 (1978). scope agency's inquiries remain manageable goal "ensur[ing] fully informed decision," id., 558, S.Ct., 1219, accomplished. 23 contentions would, very least, obliged expend considerable developing psychiatric expertise otherwise relevant congressionally assigned functions. available spread thin adequately protection As said another United States Dow, 357 17, 25, 78 1039, 1046, 1109 (1958), "[w]e attribute intention open door such obvious incongruities undesireable possibilities." 24 bears strong resemblance plaintiffs sought crime jail facility neighborhood. e.g., Como-Falcon Coalition, Inc. Labor, 609 342 (CA8 1979) (Job Corps Center); Nucleus Chicago Homeowners Association Lynn, 524 225 (CA7 1975) (low income housing); First Bank Richardson, 484 1369 1973) (jail). (or dislike occupants facility) damage.11 event resulting removed covered closer concerns. 25 qualitatively just described. raised while those presented questions fear disagreement. line easily drawn. Anyone fears dislikes project find himself suffering tension, helplessness." N. supra. Neither nor history suggest citizens general air objections political process, appropriate forum disagreements.12 26 mean denigrate members, not, fact, occur. difficult see differences someone decision much he suffers anxiety stress, "flow directly," 23, associated decision. extraordinarily differentiate "genuine" claims grounded solely disagreement democratically adopted policy. Until explicit instruction contains, undertake inquiry. Maryland Capital Park & Planning Postal Service, 487 1029, 1037 (CA DC 1973). 27 Appeals' seems point acknowledge force arguments, 229, seeks distinguish situation suggested cases. First, Ibid. severity effect. case. addresses character.13 28 Second, noted "in unique traumatic understand transforms effects." "cannot aftermath 1979 falls outside" 230. contrary, enacted future There nothing expanded of" kind 29 reasons, hold contentions.14 judgment reversed, remanded instructions dismiss review. 30 ordered. 31 BRENNAN, concurring. 32 I join doubt injuries ante, 771. points injury arise, sensory cf. Chelsea Neighborhood Associations 516 378, 388 (CA2 1975), Ante, 775. underlying crucial distinction "lengthens reach" statute. President's Accident Specifically, contended, Pet.App. 115-116: "1.) distress vicinity [TMI-2] already impaired individuals, evidenced feelings anxiety, helplessness disorders skin rashes, aggravated ulcers, skeletal muscular problems. Such manifestations seen disasters. [TMI-1] reopen severely aggravates long exists, resolve recover trauma suffered. Operation constant reminder terror felt during happen again. ever present spectre disaster makes impossible operate without endangering safety. "2.) cohesiveness Community institutions weakened result loss confidence ability function properly helpful manner crisis. reoccurrence infrastructure, causing breakdown social order. Sociologists Kai Erikson documented phenomena following "The perception, created locations business industry, establishment law practice, compounds viability vitality depends upon attract persons, teachers, doctors, lawyers, businesses critical economic allowed operate, compound make permanent trapping disintegrating dying discouraging growth." Four individual opinions. majority opinion. While pending, staff prepared assessment (EIA) full permitted renew operation. NRC's Licensing Board ruled EIA required. ruling upheld Safety Appeal Board. re Docket No. 50-289 (ALAB-705) Several additional steps, including repairs steam generator approval repairs, actually resumes 13. argued there "major action" operations operating license issued. rejected contention, stating " 'major action' Commission's exercise supervisory responsibility maintenance." 231. No party holding, intimate view correctness. Similarly, holding. 4321, provides: purposes chapter are: declare national encourage productive enjoyable harmony man his environment; efforts prevent eliminate biosphere stimulate man; enrich ecological systems Nation; establish Council Quality." drawing analogy, cause-effect relation attenuated merit damages suit EIS; converse. courts legislative intent order draw changes actor not. 5, changed 1972. emphasize considering asked occur realized, occurs TMI-1, entirely considered, most recent number perceived differently Indeed, appears perceive greater staff. facts, legal issues. allegations lead crime, plaintiffs' constitute effects. Of course, holdings contention addressed symbolic significance individuals attach Psychological symbol even farther closely connected broader hospital regulations contemplated hypothetical, 773-774, deaths. despite harm, deaths stretch imagination unless found warrant EIS. Since decide all, follows

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