Document: 467 U.S. 837 104 S.Ct. 2778 81 L.Ed.2d 694 CHEVRON, U.S.A., INC., Petitioner,v.NATURAL RESOURCES DEFENSE COUNCIL, et al. AMERICAN IRON AND STEEL INSTITUTE, al., Petitioners, v. NATURAL William D. RUCKELSHAUS, Administrator, Environmental Protection Agency, Petitioner, Nos. 82-1005, 82-1247 and 82-1591. Supreme Court of the United State Argued Feb. 29, 1984. Decided June 25, Syllabus The Clean Air Act Amendments 1977 impose certain requirements on States that have not achieved national air quality standards established by Agency (EPA) pursuant to earlier legislation, including requirement such "nonattainment" establish a permit program regulating "new or modified major stationary sources" pollution. Generally, may be issued for sources unless stringent conditions are met. EPA regulations promulgated in 1981 implement allow adopt plantwide definition term "stationary source," under which an existing plant contains several pollution-emitting devices install modify one piece equipment without meeting if alteration will increase total emissions from plant, thus allowing treat all within same industrial grouping as though they were encased single "bubble." Respondents filed petition review Appeals, set aside embodying "bubble concept" contrary law. Although recognizing amended does explicitly define what Congress envisioned source" should apply, issue was squarely addressed legislative history, court concluded that, view purpose nonattainment improve rather than merely maintain quality, "inappropriate," while stating it mandatory programs designed quality. Held: EPA's is permissible construction statutory source." Pp. 842-866. (a) With regard judicial agency's statute administers, has directly spoken precise question at issue, whether answer based statute. 2781-2783. (b) Examination legislation its history supports Appeals' conclusion did specific intention applicability these cases. 842-845. (c) portion dealing with areas plainly discloses sought accommodate conflict between economic interest permitting capital improvements continue environmental improving 851-853. (d) Prior Amendments, had used "source," but 1980 ultimately adopted regulation essence, applied basic reasoning Appeals here, precluding use States' enhance However, when new administration took office 1981, EPA, promulgating involved reevaluated various arguments been advanced connection proper "source" given areas. 853-859. (e) Parsing general terms text Act—particularly provisions §§ 302(j) 111(a)(3) pertaining "source"—does reveal any actual intent To extent congressional "intent" can discerned language, would appear listing overlapping, illustrative intended enlarge, confine, scope power regulate particular order effectuate policies Act. Similarly, consistent broad discretion implementing Amendments. fully policy reasonable growth, explanation serve objectives well. fact time changed interpretation lead no deference accorded An agency, engage informed rulemaking, must consider varying interpretations wisdom continuing basis. Policy concerning legislators administrators, judges. here represents accommodation manifestly competing interests entitled deference. 859-866. 222 U.S.App.D.C. 268, 685 F.2d 718 (1982), reversed. Paul M. Bator, Cambridge, Mass., petitioners. David Doniger, Washington, D.C., respondents. Justice STEVENS delivered opinion Court. 1 In 1977, Pub.L. 95-95, 91 Stat. 685, enacted applicable legislation. required source met.1 this allows source."2 Under definition, plant. presented cases decision "bubble" 2 * containing October 14, 1981. 46 Fed.Reg. 50766. Respondents3 timely District Columbia Circuit 42 U.S.C. § 7607(b)(1).4 regulations. National Resources Defense Council, Inc. Gorsuch, (1982). 3 observed relevant part "does 'stationary source, . apply," further stated "squarely history." Id., 273, F.2d, 723. light bearing "at best contradictory," reasoned "the purposes guide our here." 276, n. 39, 726, 39.5 Based two precedents bubble concept programs,6 "mandatory" held "inappropriate" 726. Since program—its "raison d'etre," court's view—was inapplicable prior precedents. Ibid. It therefore We granted certiorari judgment, 461 956, 103 2427, 77 1314 (1983), we now reverse. 4 legal error static decided itself commanded definition. do defend Appeals.7 Nevertheless, since reviews judgments, opinions,8 determine resulted erroneous judgment validity II 5 When confronted questions. First, always, issue. If clear, end matter; court, well give effect unambiguously expressed Congress.9 If, however, determines simply own statute,10 necessary absence administrative interpretation. Rather, silent ambiguous respect statute.11 6 "The agency administer congressionally created necessarily requires formulation making rules fill gap left, implicitly explicitly, Congress." Morton Ruiz, 415 199, 231, 94 1055, 1072, 39 270 (1974). left fill, there express delegation authority elucidate provision regulation. Such controlling weight arbitrary, capricious, statute.12 Sometimes implicit explicit. case, substitute made administrator agency.13 7 long recognized considerable executive department's scheme entrusted administer,14 principle interpretations. 8 "has consistently followed whenever meaning reach reconciling conflicting policies, full understanding force situation depended upon more ordinary knowledge respecting matters subjected See, e.g., Broadcasting Co. States, 319 190 [63 997, 87 L.Ed. 1344]; Labor Board Hearst Publications, Inc., 322 111 [64 851, 88 1170]; Republic Aviation Corp. 9 Board, 324 793 [65 982, 89 1372]; Securities & Exchange Comm'n Chenery Corp., [332] 194 [67 1575, 1995]; Seven-Up Bottling Co., 344 [73 287, 97 377]. 10 ". choice committed care statute, disturb appears sanctioned." Shimer, 367 374, 382, 383, 1554, 1560, 1561, 908 (1961). 11 Accord Capital Cities Cable, Crisp, 691, 699-700, 2694, 2700-2701, 580 (1984). 12 well-settled principles clear misconceived nature role reviewing Once determined, after examination actually regarding program, before context Administrator's appropriate one. follows, agree cases, conclude make. III 13 1950's 1960's series statutes encourage assist curtailing See generally Train Natural 421 60, 63-64, 95 1470, 1474-1475, 43 731 (1975). 1970, 91-604, 84 1676, "sharply increased federal responsibility effort combat pollution," U.S., 64, S.Ct., 1474, continued assign "primary assuring quality" 1678. Section 109 1970 directed promulgate Ambient Quality Standards (NAAQS's)15 110 develop plans (SIP's) specified deadlines. addition, provided pollution conform technology-based performance standards; publish list categories (NSPS) each. 111(e) prohibited operation violation standard. 14 111(a) defined setting enforcing sources. provided: 15 "For section: 16 ..... 17 "(3) source' means building, structure, facility, installation emits emit pollutant." 1683. 18 only NSPS 111, also each state implementation plan contain procedure location proposed preventing preclude attainment maintenance standards.16 19 due course, NAAQS's, approved SIP's, detailed governing NSPS's equipment. programs, 1974, nonferrous smelting industry apply modification units their offset reductions other portions plant.17 Nonattainment 20 primary NAAQS's 1975. many country, particularly most industrialized goals attained.18 1976, 94th fundamental problem, others control. As always area, struggle basically seeking strict schemes reduce rapidly eliminate social costs advancing concern retard development attendant costs. Congress, confronting interests, unable response public interest: proposals deal failed command consensus.19 21 situation, published Emissions Offset Interpretative Ruling December see 41 55524, "fill gap," respondents put it, until acted. address restrict prohibit growth expanded sources." 55524-55525. general, "a locate area worse standard met." 55525. gave emphasis rapid statute's goals.20 Consistent emphasis, every meet "lowest achievable emission rate" current art type facility. 1976 not, reject concept."21 IV 22 lengthy, detailed, technical, complex, comprehensive A small statute—91 745-751 (Part D Title I Act, 7501-7508)—expressly deals focal point controversy phrase Amendments.22 23 Basically, prepare obtain approval SIP July 1, 1979. interim those comply interpretative 21, 1976. 745. deadline extended 31, 1982, some 1987, SIP's number achieve expeditiously possible.23 24 Most significantly purposes, shall 25 "(6) require permits accordance section 173. ." 747. 26 Before issuing permit, 173 (1) sufficient region progress toward attainment, exceed allowance 172(b)(5); (2) applicant certify his compliance SIP, (3) otherwise being implemented, (4) lowest rate (LAER).24 27 reference concept." Nor contained 111(a)(3), program. 302(j), defines "major follows: 28 "(j) Except expressly provided, 'major emitting facility' mean facility pollutants emits, potential emit, hundred tons per year pollutant (including fugitive pollutant, determined rule Administrator)." 770. V 29 comment does, disclose Indeed, House Committee Report identified "two main purposes" bill. stated: 30 "Section 117 bill, during committee markup establishes 127 purposes: assure fixed date; greater flexibility former present afford. 31 pursue options. proceed 'tradeoff' 'offset' ruling. Administrator authorized, moreover, amend ruling section. 32 State's second option revise provision." H.R.Rep. No. 95-294, p. 211 (1977), U.S.Code Cong. Admin.News pp. 1077, 1290.25 33 Senate states "supersede approach," expansion permitted could "demonstrate facilities accommodated overall provide standards." S.Rep. 95-127, 55 (1977). notes value "case-by-case seeks exceeding ambient standard," explaining "requires matching against expected introduction prevent deadline." This description case-by-case approach additions, emphasizes net consequences impact achievement standards, raised Senator Muskie following remarks: 34 "I note test determining subject [the Ruling]—and revised conference bill into pollutant—or precursor. Thus, still 'lowest rate' even constructed replacement older resulting reduction previous levels. 35 "A source—including ordered convert coal—is makes physical change increases amount exceeded." 123 Cong.Rec. 26847 VI 36 previously noted, adhered After adoption considered least three formal proceedings. 37 January 1979, restriction included scheduled go noting "whether different processes points 44 3276 (1979), effect, bifurcated question. rejected definition; hand, circumstances authorized SIP. 38 "Where implemented satisfy Part D, requirement, modifications exempt accompanied intrasource offsets so emissions. endorses exemptions, effectively manage cost." Ibid.26 April, again September additional comments indicated circumstances. id., 20372, 20379, 51924, 51951, 51958. On latter occasion, rulemaking proposal installations units. explained: 40 " 'Bubble' Exemption: inside called 'bubble.' proposes 'source' (see above) limit respects: "i. SIPs include needed 172 carried out need bubble, PSD proposal. "ii. 'installation' identifiable process equipment."27 Significantly, noted word might narrower purposes. wrote: "Source building regulated pollutant. 'Building, installation' except where prohibitions adequate exists out." 51925.28 45 summary flexible rigid programs: "In summary, proposing ways kinds NSR 47 "(1) For complete SIPs, plants, unrestricted plant-wide bubble. 48 "(2) ruling, restrictions construction, incomplete both plants individual pieces equipment, causing 49 modification' entirely. Finally, alternative discussed favored reviewed, minor escape regardless plant." 51934. 50 August 1980, then-recent decisions, bright-line employed Relying heavily cases,29 dual either entire components, result significant completely elsewhere "more intent" because "would bring review," 52697 (1980), analysis predicated decisions. 51 initiated "Government-wide reexamination regulatory burdens complexities." 16281. review, 52 conclusion, first definitional "judgment how carry Act." then forth reasons concluding appropriate. pointed "can act disincentive investment modernization discouraging facilities" control older, dirtier new, cleaner ones." Moreover, simplify using PSD, moratorium. reduces confusion inconsistency." explained remained place accomplish achieving possible.30 These conclusions formally October. VII 53 rationale decision. That viewed sufficiently cover covering unit components. interpreted mandate clean forbid fundamentally They contend definition—if component whole, over 100 source. insofar air, areas, violate statute.31 Statutory Language 54 refers "any installation" supra, 846. statute; make Petitioners language ascertaining 851. disagree petitioners point. tells us "major" means—a qualify sheds virtually equate facility—a facility" synonymous 302(j). "facility" collection integrated elements purpose. certainly affront common English usage take connote opposed constituent parts. compel "source." 56 recognize hence 111(a)(3). literally much anything statute.32 out, words "building, installation," read plant.33 "word character submerged association." Russell Motor Car 261 514, 519, 428, 429, 67 778 (1923). ascertained objectives, associated indicate true convey idea. reasonably discrete, integrated, pollutes. gives terms—a larger operation, covered pollution, installation. implies sorts: enumerated item seem treated While insist discrete meaning, argue section, equates whereas among items. 57 persuaded parsing Congress.34 know dispositive; overlapping precisely operation. Legislative History 58 foreclose sharp break 59 unilluminating. remarks "were obviously narrow mind cannot said demonstrate Congressional desire. Jewell Ridge Coal Mine Workers, 325 161, 168-169, 65 1063, 1067-1068, 1534 (1945). Respondents' argument relies Muskie's observation LAER requirement.35 But statement like itself, tell is, less inflexible find whole us. 60 More importantly, identifies concerns motivated enactment; concerns—the growth—and, believe implements other, 857-859, 29; 855, 27. supported record developed process,36 private studies.37 61 Our "source"—both Amendments—convinces primarily responsible administering important flexibly—not sterile textual vacuum, decisions technical complex arena. argue, initial instantly carved stone. contrary, definitions contexts adds flexible, never disapproval reading 62 inflexibly distinction drew sensible one, labored problem surely disclosed ever articulated found courts began work product. decisionmakers who position taken agency. 63 parties' briefs create impression waging forum battle lost jurisdictions opting concept," waged Congress. properly judges.38 64 terests deference: complex,39 matter fashion,40 involves policies.41 level specificity Perhaps body consciously desired strike balance level, thinking great expertise charged better so; perhaps level; forge coalition side question, chances devised things occurred. Judges experts field, political branch Government. Courts must, reconcile basis judges' personal preferences. contrast, delegated policy-making responsibilities may, limits delegation, rely incumbent administration's views wise inform judgments. agencies accountable people, Chief Executive entirely Government choices—resolving inadvertently resolve, intentionally resolved everyday realities. 66 challenge provision, fairly conceptualized, really centers policy, open fail. judges—who constituency—have duty legitimate choices do. assessing resolving ones: "Our Constitution vests branches." TVA Hill, 437 153, 195, 98 2279, 2302, (1978). hold reducing growth. Regulations allowably [an] effective reconciliation twofold ends. 1560. 68 69 ordered. 70 MARSHALL REHNQUIST consideration 71 O'CONNOR 172(b)(6), 7502(b)(6), provides: subsection shall— (relating requirements)." "(i) 'Stationary "(ii) pollutant-emitting activities belong grouping, located contiguous adjacent properties, person (or persons control) vessel." CFR 51.18(j)(1)(i) (ii) (1983). Citizens Better Environment, North Western Ohio Lung Association, Chevron U.S.A. American Iron Steel Institute, Petroleum Chemical Manufacturers General Motors Rubber Association leave intervene support remarked regard: "We regret, advert specifically concept's application clarifying directive facilitate endeavors legislators' will." U.S.App.D.C., 39. Alabama Power Costle, 204 51, 636 323 (1979); ASARCO 188 77, 578 argued below terms, respondents' contention inconsistent here. ground finds record. Ryerson 312 405, 408, 656, 658, 85 917 (1941); LeTulle Scofield, 308 415, 421, 313, 316, 355 (1940); Langnes Green, 282 531, 533-539, 243, 244-246, 75 520 (1931). E.g., Black Cutter Laboratories, 351 292, 297, 76 824, 827, 1188 (1956); J.E. Riley Investment Commissioner, 311 55, 59, 95, 97, Williams Norris, Wheat. 117, 120, 571 (1827); McClung Silliman, 598, 603, 340 (1821). judiciary final issues constructions intent. FEC Democratic Senatorial Campaign Committee, 454 27, 32, 102 38, 42, (1981); SEC Sloan, 436 103, 117-118, 1702, 1711-1712, 148 (1978); FMC Seatrain Lines, 411 745-746, 93 1773, 1784-1785, 620 (1973); Volkswagenwerk FMC, 390 261, 272, 929, 935, 1090 (1968); NLRB Brown, 380 278, 291, 980, 988, 839 (1965); FTC Colgate-Palmolive 385, 1035, 1042, 904 Social Security Nierotko, 327 358, 369, 637, 643, 90 (1946); Burnet Chicago Portrait 285 16, 275, 281, 587 (1932); Webster Luther, 163 331, 342, 963, 967, 179 (1896). employing traditional tools ascertains law effect. generally, R. Pound, Spirit Common Law 174-175 (1921). permissibly uphold reached initially arisen proceeding. 46; Zenith Radio 443, 450, 2441, 2445, 337 75, 1479, (1975); Udall Tallman, 792, 801, 616 Unemployment Compensation Aragon, 329 143, 245, 250, 136 McLaren Fleischer, 256 477, 480-481, 577, 577-578, 1052 Morton, 822, 834, 2769, 2776, 680 (1984) Schweiker Gray Panthers, 453 34, 44, 101 2633, 2640, 460 Batterton Francis, 432 416, 424-426, 2399, 2404-2406, 448 (1977); Telephone Telegraph 299 232, 235-237, 170, 172-173, 142 (1936). INS Jong Ha Wang, 450 139, 144, 1027, 1031, 87, 1485. Aluminum America Central Lincoln Peoples' Util. Dist., 380, 389, 2472, 2479-2480, 301 (1984); Blum Bacon, 457 132, 141, 2355, 2361, 72 728 (1982); Union Electric 427 246, 256, 96 2518, 2525, 474 (1976); Company Institute Camp, 401 617, 626-627, 1091, 1097, (1971); 153-154, 250-251; 131, 860, 1170 (1944); 577-578; 967; Brown 113 568, 570-571, 648, 649-650, 1079 (1885); Moore, 760, 763, 588 (1878); Edwards' Lessee Darby, 206, 210, 603 (1827). Primary whose protect health, secondary specify welfare. 110(a)(2)(D) 110(a)(4). 83-84, 325-327. rendered enactment Commission Quality, Breathe Air, 3.3-20 through 3.3-33 (1981). Comprehensive bills pass Chambers Congress; Conference Senate. 122 34375-34403, 34405-34418 (1976). example, "Particularly considerations subordinated NAAQS maintenance. violating insure achievement, expense health." 55527 issue: commenters explicit 'source.' Some readers unclear changes 'any installation, combination thereof) properties owned operated control.' precludes large separated production lines requirements." 3276. Specifically, 172(b)(6) 7502(b)(6). "proposed 173(2) 7503(2), requirements, 172(b) require, interim, (as 171(1)) obtained adoption, minimum, available technology; "(4) comprehensive, accurate, inventory Administrator) resubmitted frequently paragraph met assess date (1); "(5) identify quantify emissions, any, allowed area; "(8) limitations, schedules measures section." 171(1) 'reasonable progress' annual incremental substantial early years promulgation 110(a)(2)(I) regular thereafter) 172(a)." 746. 171(3) reflects— "(A) limitation class category owner operator demonstrates limitations achievable, "(B) practice whichever stringent. event excess allowable performance." During floor debates Congressman Waxman struck controls dirty America. There clearly poses jobs. neither compromised. "This fair balanced approach, undermine vitality, impede ultimate objectives." 27076 "main purpose" provision—allowing "greater flexibility" intend freeze requirement. Ruling, added: above exemption because, revisions 1979 made. Furthermore, circumstances, dates 1982 attainment. FR 21673-21677 (May 19, 1978). Also, latitude depart plan, therefore, emissions." 3277 (1979). 51926. Later "However, believes enforceable Use avoiding once col. (January 1979). low enough credit jeopardize attainment." 51933. why especially deterioration (PSD) encourages voluntary upgrading productive capacity." 51932. ASARCO. Different sections "Moreover, together suggest "Promulgation follows Power, sources, 'building,' 'structure,' 'facility,' (1980). "5. remain practicable show interfere "6. New Source Performance up-to-date techniques review. "7. avoid undergoing experience Where significantly, required." 16281 "What do, four plants. rules, just that. compounded mistake abandoned definition." Brief 56. 51.18(j)(1)(i), 51.18(j)(1) dispute suggest. 173, classic example circular reasoning. One (LAER). submit provides waiver another "offset condition"—the condition unnecessary newly retirement according respondents, prohibits—the proves nothing indeed words, term. 853. critical amendments. ibid. York Department Conservation, pointing denying selecting options "simpler cheaper operate old, polluting trade up. App. 128-129. "Economists incentives substituted cumbersome administrative-legal framework. objective profit cost marketplace [The 'bubble' 'netting' concept] attempt direction. By giving manager places cheaply, quickly cheaply." L. Lave G. Omenn, Cleaning Air: Reforming (1981) (footnote omitted). brand factory so, conditions, old modernized less—but tons—the "it happens built site, pre-existing 4. 390, 2480 1711; Adamo Wrecking 434 5, 566, 574, 538 Skidmore Swift 134, 140, 164, 124 (1944). 2700-2701;

Category: 7