Document: DONALD C. WINTER, SECRETARY OF THE NAVY, ET AL., PETITIONERS v. NATURAL RESOURCES DEFENSE COUNCIL, INC., AL. No. 07-1239. Supreme Court of United States. Argued October 8, 2008. Decided November 12, CHIEF JUSTICE ROBERTS delivered the opinion Court. "To be prepared for war is one most effectual means preserving peace." 1 Messages and Papers Presidents 57 (J. Richardson comp. 1897). So said George Washington in his first Annual Address to Congress, 218 years ago. One important ways Navy prepares through integrated training exercises at sea. These include use modern sonar detect track enemy submarines, something has done past 40 years. The plaintiffs complained that Navy's program harmed marine mammals, should have an environmental impact statement before commencing its latest round exercises. Appeals upheld a preliminary injunction imposing restrictions on training, even though court acknowledged "the record contains no evidence mammals been harmed" by 518 F.3d 658, 696 (CA9 2008). was wrong, decision reversed. I deploys forces "strike groups," which are groups surface ships, aircraft centered around either carrier or amphibious assault ship. App. Pet. Cert. (Pet. App.) 316a-317a. Seamless coordination among strike-group assets critical. Before deploying strike group, requires extensive analysis prioritization threats, execution military missions, maintenance force protection. 110-111. Antisubmarine warfare currently Pacific Fleet's top war-fighting priority. 270a-271a. Modern diesel-electric submarines pose significant threat vessels because they can operate almost silently, making them extremely difficult track. Potential adversaries States possess least 300 these submarines. 571. effective technology identifying submerged within their torpedo range active sonar, involves emitting pulses sound underwater then receiving acoustic waves echo off target. 266a-267a, 274a. Active particularly useful tool it provides both bearing distance target submarines; also sensitive enough allow quieter than surrounding environment.[1] This case concerns "mid-frequency active" (MFA) transmits frequencies between kHz 10 kHz. Not surprisingly, MFA complex technology, operators must undergo become proficient use. Sonar reception affected countless different factors, including time day, water density, salinity, currents, weather conditions, contours sea floor. Id., 278a-279a. When working as part able coordinate with other ships planes while avoiding interference. conducts regular under realistic conditions ensure thoroughly skilled variety situations. waters coast southern California (SOCAL) ideal location conducting exercises, this only area west relatively close land, air, bases, well landing areas. 141-142. At issue Composite Training Unit Exercises Joint Tactical Force Exercises, individual naval units (ships, aircraft) train together members group. A group cannot certified deployment until successfully completed demonstration ability simulated hostile conditions. 564-565. In light posed all demonstrate proficiency antisubmarine warfare. Accordingly, SOCAL detecting, tracking, neutralizing during "mission-critical," given proven method operating battery power. 568-571. Sharing 37 species dolphins, whales, lions. parties strongly dispute extent activities will harm those animals disrupt behavioral patterns. emphasizes used years, without single documented sonar-related injury any mammal. asserts that, most, may cause temporary hearing loss brief disruptions mammals' Natural Resources Defense Council, Jean-Michael Cousteau (an enthusiast filmmaker), several devoted protection ocean habitats. They contend much more serious injuries acknowledges, permanent loss, decompression sickness, major disruptions. According plaintiffs, mass strandings (outside SOCAL) "associated" sonar. argue certain mammalssuch beaked whalesare uniquely susceptible from sonar; would not necessarily detected Navy, whales "very deep divers" spend little surface. II procedural history rather complicated. Marine Mammal Protection Act 1972 (MMPA), 86 Stat. 1027, generally prohibits "taking" mammal, defined harassing, hunting, capturing, killing it. 16 U.S. §§1362(13), 1372(a). Secretary "exempt action category actions" MMPA if such actions "necessary national defense." §1371(f)(1). January 2007, Deputy Defenseacting Secretarygranted 2-year exemption case. 219a-220a. conditioned adopting mitigation procedures, including: (1) lookouts officers watch mammals; (2) requiring five binoculars each vessel anomalies (including mammals); (3) report vicinity exercises; (4) reduction transmission levels 6 dB mammal 1,000 yards bow vessel, 500 yards; (5) complete shutdown 200 vessel; (6) operated "lowest practicable level"; (7) reporting procedures. 222a-230a. National Environmental Policy 1969 (NEPA), 83 852, federal agencies "to fullest possible" prepare (EIS) "every . Federal actio[n] significantly affecting quality human environment." 42 §4332(2)(C) (2000 ed.). An agency required full EIS determinesbased shorter assessment (EA)that proposed environment. CFR §§1508.9(a), 1508.13 (2007). February issued EA concluding 14 scheduled 2009 226-227. divided potential into two categories: Level harassment, destruction biological tissue (i.e., physical injury), B disruption patterns migration, feeding, surfacing, breeding. 160-161. computer models predicted eight harassments common dolphins year, could avoided voluntary measures, travel large pods easily located lookouts. 176-177, 183. 274 per none result injury. 185-186. Beaked surface, so precise effect unclear. Erring side caution, classified projected A. 186, 223. conclusion environment, determined unnecessary EIS. See §1508.13. Shortly after released EA, sued seeking declaratory injunctive relief grounds violated NEPA, Endangered Species 1973 (ESA), Coastal Zone Management (CZMA).[2] District granted plaintiffs' motion prohibited using remaining held had "demonstrated probability success" claims NEPA CZMA. 207a, 215a. equitable appropriate because, Ninth Circuit precedent, established "`possibility'" irreparable 217a. Based scientific studies, declarations experts, record, concluded there fact "near certainty" outweighed possible Navy. 217a-218a. filed emergency appeal, stayed pending appeal. 502 859, 865 After oral argument, agreed appropriate. appellate concluded, however, blanket prohibiting overbroad, remanded narrow provide conduct exercises." 508 885, 887 On remand, entered new allowing long implemented following measures (in addition adopted pursuant exemption): 12-mile "exclusion zone" coastline; additional monitoring restricting "helicopter-dipping" limiting geographic "choke points"; shutting down when spotted 2,200 powering ducting travels further otherwise due temperature differences adjacent layers water. 530 F. Supp. 2d 1110, 1118-1121 (CD Cal. notice challenging last restrictions. sought Executive Branch. President, §1456(c)(1)(B), Section 1456(c)(1)(B) permits exemptions activity question "in paramount interest States." President continuation limited "essential security." 232a. He compliance Court's "undermine necessary combat effectiveness groups." Ibid. Simultaneously, Council Quality (CEQ) authorized implement "alternative arrangements" "emergency circumstances." §1506.11.[3] CEQ alternative arrangements were "create[s] unreasonable risk Strike Groups fully mission capable." 238a. Under arrangements, permitted procedures conjunction MMPA. imposed notice, research, requirements. actions, moved vacate respect 2,200-yard zone refused do so, 527 1216 (2008), affirmed. regarding whether CEQ's interpretation circumstances" regulation lawful. Specifically, questioned true "emergency" case, obligation comply moment planned F.3d, 681. entirely predictable parties' litigation history. likelihood success claim 693. holding EAwhich resulted finding impactwas "cursory, unsupported cited evidence, unconvincing." Ibid.[4] carried burden establishing "possibility" Even own figures, 564 170,000 disturbances behavior. 696. Lastly, balance hardships consideration public weighed favor plaintiffs. emphasized negative "speculative," since never 698-699. particular, that: unlikely affect operations, often shuts systems course power-down requirement rare, previously trained 699-702. struck proper competing interests stake. We certiorari, 554 U. S. ___ now reverse injunction. III plaintiff establish he likely succeed merits, suffer absence relief, equities tips favor, interest. Munaf Geren, 553 ___, (2008) (slip op., 12); Amoco Production Co. Gambell, 480 531, 542 (1987); Weinberger Romero-Barcelo, 456 305, 311-312 (1982). shown merits claim. disputes determination, arguing low reasonably justified compliance. §1506.11. Plaintiffs' briefs barely discuss ground relied upon lower courtsthat plain meaning does encompass order "entirely predictable" Instead, separation powers readjudicating factual already decided Article court. Moreover, assert interpretations entitled deference statutory authority adjudications. demonstrates strong prevailing based harm. 696-697; 2d, 1118 (quoting Faith Center Church Evangelistic Ministries Glover, 891, 906 2007); Earth Island Inst. Forest Serv., 442 1147, 1159 2006)). courts met standard declarations, "a near 1118. challenges holdings, injury just possibilityin obtain relief. facts contends alleged too speculative give rise injury, ever began ago, SOCAL. And number failed offer species-level adversely scientific, recreational, ecological interests. For part, prevail formulation standard, found agree Circuit's lenient. Our frequently reiterated Los Angeles Lyons, 461 95, 103 (1983); Granny Goose Foods, Inc. Teamsters, 415 423, 441 (1974); O'Shea Littleton, 414 488, see 11A Wright, Miller, & M. Kane, Practice Procedure §2948.1, p. 139 (2d ed. 1995) (hereinafter Wright Miller) (applicant injunction, applicant rendered"); id., 155 ("a simply prevent possibility some remote future injury"). Issuing inconsistent our characterization extraordinary remedy awarded clear showing Mazurek Armstrong, 520 968, 972 (1997) (per curiam). It articulating incorrect Although referred precedent along same lines, affirmed "`near certainty'" 696-697. time, nature itself originally sonar-training generally. But final decision, challenged six supra, 7-8. did reconsider four failure exclusion coastlineone unchallenged restrictions"would bar portion habitat." 1119. find pertinent defendant type completely unknown effects Government activity, "NEPA mandate particular results." Robertson Methow Valley Citizens 490 332, 350 (1989). imposes requirements "ensur[e] agency, reaching available, carefully consider, detailed information concerning impacts." 349. Part attempts one, about prospective harms mitigating measures. Here, contrast, enjoinor substantially restrict taking place series approved took "hard look consequences," Kleppe Sierra Club, 427 390, 410, n. 21 (1976) (internal quotation marks omitted)), evidenced issuance detailed, 293-page EA. As explained next section, effective, sailors. factors alone denial requested reason, we address courts' merits. right. Munaf, S., __ 12). "must consider party granting withholding relief." Co., 542. "In exercising discretion, equity pay regard consequences employing injunction." RomeroB-arcelo, 312; Railroad Comm'n Tex. Pullman 312 496, (1941). understated impose injunction's consequent adverse defense. "complex, subtle, professional decisions composition, equipping, control force," "essentially judgments." Gilligan Morgan, 413 1, (1973). "give great judgment authorities relative importance interest." Goldman Weinberger, 475 503, 507 (1986). Term, "neither Members nor judges begin day briefings describe threats Nation people." Boumediene Bush, 68). senior officers, whom underscored need counter threat. Admiral Gary Rougheadthe Chief Naval Operationsstated exercises: "It stress ship crews dimensions simultaneously. If elements impactedfor example, possiblethe value degraded ." 342a. Captain Martin Maythe Third Assistant Staff Readinessemphasized "mission-critical." 570-571. described "highly perishable skill" repeatedly practiced 577. During learn how avoid sound-reducing "clutter" floor topography conditions; interference efforts 574. Several accomplished Courtthe power See, e.g., 333a (powering presence "unreasonably prevent[s] training"); 356a (shutdown "result significant, training"). accept officers' assertions utmost Nation. against ecological, recreational legitimately Plaintiffs submitted asserting take whale watching trips, observe underwater, research photograph natural injure alter patterns, impairing study animals. While seriousness interests, conclude overall tip observe. forcing deploy inadequately jeopardizes safety fleet. reliable detecting tracking Presidentthe Commander Chiefhas plainly outweighs advanced Of course, always trump considerations, do. determination where lies us question. C 1. Despite assessing determining grant addressed considerations cursory fashion. court's entire discussion consisted (albeit lengthy) sentence: "The satisfied Plaintiffs, Defendants incur prevented absent subset state period." prior panel put it, staying original "[t]he district factor." 863. remand nothing cure defect, but repeated nearly verbatim sentence previous order. Compare 1118, subsequent framed reviewing exercise 697-699, discretion exercised here. favored largely view certify groups. deemed "speculative" similar before. seeks defendant's conduct. properly defer specific, predictive judgments reduce Miller §2948.2, 167-68 ("The policy imposition judicial restraints adjudication becomes reason believe decree burdensome"). 2. shut sonar-emitting vessel. stated overly burdensome sightings rare. regardless frequency sightings, greatly increase size zone. Pursuant MMPA, yards, turn system yards. graduated power-down, instead total There exponential relationship radius length (Area = π r2). Increasing accordingly expand factor over 100 (from 125,664 square 15,205,308 yards). sufficient weight views who scenarios days develop, days' worth training. 344a. Limiting shutdowns usually less weeks. Bird operational commanders "lose awareness tactical situation constant stopping starting [sonar]." 332a; ("It get pivotal attack warfare, minutes confound results certification based"). sighting, clearly disruptive forced perform 27 times SOCAL; cases, turned beyond selfimposed 200-yard 700, 65. Locklearthe Fleetstated avoidance tactically insignificant times; discounted explanation supported record. conclusion, ignored key portions Locklear's declaration, unequivocally commanding "would legally contact submarine." 354a-355a. Similarly, officer submarine, CO expected continue unless another helicopter gain regulatory reasons dictate otherwise." 355a. supports contention occurred justify mandatory feasible 2,000-meter low-frequency (LFA) LFA long-range detection thus involve quite associated (noting equating "is misleading like comparing 20 degrees Fahrenheit Celsius"). 3. Again, think Surface phenomenon energy penetrates layer occurs, greater depths. 299a-300a. Dieselelectric submariners advantage distortions being 333a. occurs rarely, 701-702. reasoning backwards. Given rare unpredictable, especially occur. powerdown makes valuable "exposes [sonar operators] unrealistically mutual caused multiple Group." 281a (footnote omitted). seem terribly decibels measured logarithmic scale, decrease equates 75% reduction. 284a-285a. 4. "`the require adapt way traininga substantial challenge. Nevertheless, presented reflects employed past, sacrificing objectives.'" 1238. Apparently good deed goes unpunished. taken mammalsor, matter, elected challenge 7-8 hardly other, intrusive preparedness war. stating return request basis" "actually result[s] inability 703. cold comfort hinder ultimately leaving vulnerable Unlike Circuit, wait defense" dissolution. By late. IV noted above, underlying claims. proceed point, 13-14), doing addition, complicated issues raised, chosen defend below ground.[5] what abuse enter lines matter discretion; follow course. 313 judge sitting chancellor mechanically obligated every violation law"). examined abovethe interestare propriety permanent. 546, 12 essentially exception show actual success"). ultimate legal EIS, cease basis enjoining manner credibly security. going episode many remedial tools disposal, tailored preparation interim. Steffel Thompson, 452, 466 (1974) ("Congress intended act medicine injunction"). meantime, jeopardizing security, present does. confirmed argument whole ball game," Tr. Oral Arg. 33, applicable well. * Theodore Roosevelt navy made efficient practice sea, existed." President's Message, Cong. Rec. 67, 81 (1907). discount mammals. Those neutralize abused reversed, vacated ordered. BREYER, STEVENS joins I, concurring dissenting part. December 2006, engage coast. Inc., others NRDC) brought claiming (NEPA) (assessing mammals) engaging reaches us, NRDC demand EIS; forbidden adopts measures; adopt controversy unwilling adopt. "shutdown zone," circle center try spot found. controverted condition enlarge one-tenth mile (200 yards) one-quarter (2,200 second special called "surface conditions." encounters condition, diminish sonar's 75%. contained 703 decide correct forbidding assume, Court, (Indeed, process preparing one.) And, ask whether, "balance[d the] harms." 545 (1987). Respondents' plaintiffs) favoring one. JUST-ICE GINSBURG points out, post, 4-5 (dissenting opinion), very point NEPA's insistence writing "carefully" "consider. impacts," "giv[ing] assurance `has indeed considered decisionmaking process.'" 349 assure officials aware relevant considerations. make lead account how, act. 354. Thus, obligations attach informed requires, place. fuller bring. thereby threatens preaction might led (say, proposes). Consequently, continue, designed mitigate interim hand, features me lacks adequate support First, weak uncertain. (based matter) instances 196a-197a. (The (EA) actually 223-224.) defines "any injures stock wild" "destruction tissue," "slight severe." 160. "`any disturbs disturb causing including, to, nursing, breeding, sheltering behaviors abandoned altered'" describes "short term" "temporary" "disturbance." 161, 175. raw numbers large. mean says classifications estimates err caution. (When doubt amount assumed qualify harassment. 200.) out definition, recover injuries, quickly. notes despite coast, injured 274a-275a. (It adds swim alongside ships. 290, 346.) stranded. add studies connection beachings see, 600-602, stranding "U. midfrequency identified plausible contributory source event," 168. uncertainty figures create plans, estimate contest here Without assess harmthat is, uncontested (but contested measures) Second, affidavits explaining detail delay completion (approximately year) maintain 260a-357a. Taken themselves, proposition seriously interfere defense explain 263a; 566; complexity involving 343a; place, 299a-300a, "cascading" "effect" aspect set coordinated ready forces," cost accompany adoption seeks, ibid.; resulting adequately personnel, 278a; mammal-protecting 285a-298a; reasonable prove adequate, 296a. Third, my view, why rejected affidavit-supported contentions. stated: [mid-frequency (MFA)] Following Appeals, repeated, word word, statement. said: (or suffer) With yard zone, poses therefore persuaded 2200 protect harshest consequences, represents minimal [on] conclusion. all. 1120-1121. free summary fashion, instance neither anything else opinion, answers extra will, effect, carry equipment ducting" unusually determine diesel submarine hiding below. Rear John Bird, expert power-reduction equivalent related 297a. paragraph 52 declaration: "Training critical transmissions altered them." far tell, acknowledge asserted "shutdown" area) quarter. Both sides shutdowns. Roughead, Operations, states declaration expanded "will increased interruptions vastly increas[ing] negating effectiveness, preventing certification, disrupting orchestrated plans meet world-wide commitments." specifically explains so. 1119-1120. Fourth, sought, thorough examination supply missing explanations. explanations sufficient. contentions "rar[e]," trainings encounter am certain, rarity Rarity argues encountered contrary. expansion area, earlier sited one-half mile, larger engaged equipment, foreign navies 699-701, nn. 63, 67. farther distances "likely times," 356a, (unlike issue) easier monitor reducing personnel involved, experience potentially demands navies, 508-509. Finally, mirroring suggestion language quoted, sonar." 702. "shows still locations, reduced number, simulation." Ibid., 69. "provides justifications Southern Operating Area suited hardship alternatives instead." Fifth, heard broad, absolute crafted Noting had, "reduce harmful sonar," "vacate[d] stay remand[ed] 2007) (emphasis added). stated, reject effectively Neither Nor parts pointed explanation. Nonetheless, ordinary could, Appeals' direction, forth wildlife enabling But, January, latest, opportunity moot. Courtbut resolution "[i]n short commence exercise, representation Operations current form `unacceptably risk' responsibility `organiz[e], train[], equip[] Navy,'" appropriate, modified issue. 704, 705 suspend except "critical exercise," proportional mammal's proximity 705-706 ducting, altogether meters again source. 705-706. believed permit go forward imminently minimizing wildlife. reflect best created available ready. February, remain status quo. Therefore, modify 29, 2008, provisional acceptable GINSBURG, SOUTER joins, dissenting. central (EIS). 2009one month instant conclude. action, instructs, benefited analysis proceeded interruption. acted first, thwarted purpose serve. To dispensation executive council countermand revise hold manageable conscientiously balanced discretion. announced intent readiness Range Complex. 71 Fed. Reg. 76639 (2006). intensification development, testing various weapons. 76639, 76640. underway, 2009. Brief Petitioners 11; 11. Assessment undertake L 235a.[1] impact. 225-226. commenced 227 Proposed Action hereby implemented."). March 22, (NRDC) suit Central California, violations statutes. here, principles warranted August 7, enjoined mid-frequency 11 31, disposition 13 order, stay, merits" 886 remanded, instructing received briefing parties. "toured USS Milius base San Diego, improve understanding feasibility Counsel [parties] present." 1112 (2008). 3, revised slightly response filings later, denied application 15, (CEQ), advisory body Office responded 233a. "arrangements" purported timely review. 241a-247a. accepted day. 228. requesting immediate vacatur urged, eliminated foundation. alternative, aspects appeal: ante, targeting explicitly reserved right appeal Responding motion, intervening action. Pending conducted sixth exercise. 4, motion. appealed, reiterating position justification argued irrespective "conditions imposed, decibel (75%) severely degrade training." Appellants 08-55054 (CA9), 15. 29 review, judgment. continued meantime indicates, defends launching arrangements"arrangements obtained overcome rulings. below, undermined "promotes sweeping commitment" integrity "by focusing attention action." Marsh Oregon 360, 371 "By attention, ensures incomplete information, regret late correct." core requirement. Department Transportation Public Citizen, 541 752, 757 (2004). characterized "action-forcing." Andrus 347, (1979) "integrated decisionmaking" "interwoven fabric planning." 350-351. discussing 351-352 (1989) (citing §§1508.25(b), 1502.14(f), 1502.16(h), 1505.2(c) (1987)). "ensures overlooked underestimated discovered resources committed die cast." U.S., "Publication serves informational role." concerns, "perhaps significantly, springboard comment." affords governmental bodies "notice plan corrective manner." 350. objectives, timing regulations instruct "integrate planning earliest insure values." §1501.2 "early serve practically contribution rationalize made." Andrus, 351-352, 3 §1502.5 (1979)). publication occur completed, defeats participatory purposes. inverted timing, bears emphasis, confront Had beginning functioned drafters intended: input convinced voluntarily impeded 756, 769, 2 results, establishes "focus improving decisionmaking"). options. Most importantly, assistance Congress. sometimes congressional authorization fulfilling Floyd D. Spence Authorization Fiscal Year 2001, Pub. L. 106-398, §317, 114 1654A-57 (exempting programmatic low-level flight training); §10141(c) Agency development criteria handling spent nuclear fuel high-level radioactive waste); 43 §1652(d) construction trans-Alaska oil pipeline compliance). Rather resorting "sought Branch." Ante, 8. 10, asked CEQ, adviser approve §1506.11 233a; supplementary material after-action reports, orders, analyses Fisheries Service (NMFS). 237a-238a. notified NRDC, materials orders addressed. Four Chairman letter Repeating submissions independent analysis, risks 238a ("You providing precluding ready."). continued: "Discussions staffs, your supporting documents, received, terms orders. [exercises] timeframe circumstances nine C.F.R. warranted." 240a. vindicate objectives. "public participation measures," notices arrangements. 242a. "seek post-exercise assessments" "include jointly representatives arrangements." 242a-243a. existing efforts. 243a-247a. hasty one-sided substitute two-sided record.[2] More fundamentally, exemplary review effected circuit sought. absolve duty assist advise policy, §4342, 1977 Order charged issuing implementation provisions, Exec. 11991, 123 (1977 Comp.). recognized "substantial deference," Robertson, 355, indicates play consultative role circumstances, suggested eliminate statute's command. obligations, lay Legislative courserapid, self-serving resort office White Houseis surely Congress mind instructed possible." §4332.[3] Flexibility hallmark jurisdiction. essence jurisdiction Chancellor mould necessities rigidity distinguished it." (1982) Hecht Bowles, 321 321, 329 (1944)). Consistent equity's character, insist litigants uniformly predetermined quantum probable awarding evaluated "sliding scale," high. §2948.3, 195 1995). formulation, today. Equity's flexibility context. Because uncovering harm, rely heavily "simply injury." 155). "However, inflicted occur; trial basis." 155-156 linked hemorrhaging brain ears, acute spongiotic changes nervous system, lesions vital organs. E.g., 600-602; 360-362; 478-479. noted, predicts "use (Level harassment) harassment), 8,000 loss." 696; 223-224. Within totals, 436 Cuvier's which, according NOAA, few 1,121 exist combined. Likewise, 1,092 bottlenose 5,271 Offshore stocks." 691-692. majority acknowledges findings, 9, "only year" "274 injury," 6. capture EA's predictions. A, B. "modeling non-injurious exposures." 185. correctly notes, 6, "all exposures counted A," "[b]y developed NMFS." 200. known sensitivity 365 (National Oceanic Atmospheric Administration letter), study, Further, maintained methodology `best science.'" 669.[4] harm170,000 disturbances, loss; harms, population numbering 1,121cannot lightly dismissed, face authorize violate command, recourse Legislature remains open. "Of do." 16. likely, NRDC's inevitable litigation, interest, signal Cf. (1987) ("Environmental nature, seldom remedied money damages duration, i.e., irreparable. sufficiently therefore, environment."). affirm Circuit. NOTES [1] passive "listens" introduce Passive silently. identify exact submarine. 266a-271a. [2] CZMA "that affec[t] land coastal shall consistent maximum enforceable policies State management programs." §1456(c)(1)(A). [3] That provision full: "Where observing provisions regulations, consult Agencies limit impacts emergency. Other subject review." [4] ESA. [5] bulk GINSBURG's dissent mentions Post, outweigh balance. BREYER's 3-9 (opinion part), disagree completes 9-11. injunction; once conclude, BREYER does, vacated, longer pertinent. managing resolves ceases relevant. 706 2008) ("the partial Court"). Unexamined certainly entry "for prepare" (2004) §1508.9(a) (2003)); 5. satisfy agency's spare 2007. cured error regard, closely measure too, letter, (CZMA) §1456(c)(1)(B). exemption, expressly CZMA, deserves "have years," "this 13. "status quo 128. proposal employ "surge" strategy, ibid., commander option concurrent events," 124.

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