Document: 412 U.S. 669 93 S.Ct. 2405 37 L.Ed.2d 254 UNITED STATES and Interstate Commerce Commission, Appellants,v.STUDENTS CHALLENGING REGULATORY AGENCY PROCEDURES (SCRAP) et al. ABERDEEN AND ROCKFISH RAILROAD COMPANY al., Appellants, v. STUDENTS Nos. 72—535 72—562. Argued Feb. 28, 1973. Decided June 18, Syllabus The Act permits railroads to file proposed freight rate increases, with at least 30 days' notice the Commission (ICC) public before putting new rates into effect. ICC may, pursuant § 15(7) of Act, suspend operation for as long seven months, in order investigate lawfulness rates. At end seven-month period, carrier may put suspended effect unless has completed its investigation found unlawful. Proceeding under statutory scheme, substantially all Nation's sought a 2.5% surcharge on nearly rates, an emergency measure obtain increased revenues pending adoption selective increases permanent basis. Shippers, competing carriers, other interested persons requested tariff period. Various environmental groups, including Students Challenging Regulatory Agency Procedures Environmental Defense Fund, appellees here, protested that failure would cause their members 'economic, recreational aesthetic harm,' specifically, structure discourage use 'recyclable' materials promote raw compete scrap, thus adversely affecting environment. On February 1, 1972, issued announcing decision not April 24, ordered filed by carriers be full period ending November 30, permitted collection until date. SCRAP present suit seeking, inter alia, injunction restrain enforcement 1 24 orders allowing collect surcharge. SCRAP, unincorporated association formed five law students enhance quality environment, claimed 'suffered economic, harm directly result adverse impact railroad structure,' each was caused pay more finished products, uses forests, rivers, mountains, natural resources Washington, D.C., area his legal residence camping, hiking, fishing, purposes, these have been affected main thrust SCRAP's complaint ICC's were unlawful include detailed statement required 102(2)(C) National Policy 1969 (NEPA), 42 U.S.C. 4332(2)(C). three-judge District Court had standing sue. court held power grant barred Arrow Transportation Co. Southern R. Co., 372 658, 83 984, 10 52, because NEPA 'implicitly confers authority federal courts enjoin any action taken violation NEPA's procedural requirements . so review is confined determination whether requisites followed.' concluded 'major significantly human environment,' granted prohibiting 'from permitting' collecting' 'insofar relates goods being transported purposes recycling.' Held: 1. Appellees' pleadings sufficiently alleged they 'adversely affected' or 'aggrieved' within meaning Administrative Procedure withstand motion dismiss ground lack Sierra Club Morton, 405 727, 92 1361, 31 636, distinguished. Pp. 683—690. (a) Standing those who show economic harm, '(a)esthetic well-being, like are important ingredients life our society.' Club, supra, 734, 1366. P. 686. (b) Here, specific allegedly illegal them Washington area. 686 687. (c) denied many people suffer same injury. 687—688. (d) It cannot said could prove allegations, which, if proved, place squarely among injured fact entitled supra. 688—690. 2. lacked jurisdiction issue injunction. 690—698. Transportation, Congress vested exclusive final deliberately extinguished judicial such relief; factual distinctions between instant case inconsequential. 690—692. noncompliance did give injunction, intended repeal implication statute, policies identified basis undermined suspension powers simply NEPA. 692—698. 346 F.Supp. 189, reversed remanded. Sol. Gen. Erwin N. Griswold, United States Commission. 2 Hugh B. Cox, Aberdeen Rockfish Railroad Company others. 3 Peter H. Meyers, Procedures, pro hac vice, special leave Court. 4 John F. Dienelt, others, 5 Mr. Justice STEWART delivered opinion 6 Under initiative remains railroads. But absence permission from seeking increase must provide Public 49 6(3).1 During 30-day maximum months 15(7).2 earlier unlawful.3 7 this regulatory December 13, 1971, authorization January effective date interim designed produce some $246 million annually 8 As justification surcharge, increasing costs severely inadequate revenues. In last general revenue case, less than two years earlier, found: 9 '(T)he financial condition industry whole, status individual rail, dangerously low level. precipitous decline working capital serious loss liquidity reduced truly marginal operation. This most clearly demonstrated recent bankruptcy application Penn Central. We think it undeniable number roads approaching similar crisis.' Ex parte 265/267, Increased Freight Rates, 1970 339 I.C.C. 125, 173. that, since close proceeding, over $1 billion annual basis, $305 wages, while indicators decreased debt obligations pointed toward ever-worsening condition.4 11 dated 21, acknowledged need, particularly revenues, but 'would preclude participation.' No. 281, Rates Charges, 340 358, 361. authorized refile notice, no 5, 1972. 12 refiled become Fund (EDF), harm.' Specifically, materials, thereby environment encouraging unwarranted mining, lumbering, extractive activities. groups forced forests streams impaired unnecessary destruction timber extraction accumulation otherwise recyclable solid liquid waste materials. replied increase, made competitive relative commodities, past discouraged movement scrap 13 shortly automatically effective. recognized 'the critical need additional interstate charges offset, part, recently incurred operating costs,' announced period.5 anticipation avoid further complication specified refusal conditioned upon carriers' setting expiration later 1972.6 railroads' which instituted 21 abeyance indicated With respect appellees' arguments, involved will significant traffic railway (National) 1969.' 14 averaging 4.1%, subsequently various parties again also suspended. By served March 6, request go allowed republish May 45 public. entered suspending 1972.7 continued. Since supplant temporary suspended, modified eliminate continue collecting 15 * 12, against Columbia along relief, preliminary Commission's 16 stated amended 'an September, 1971. Its primary purpose members, citizens ..' To establish bring suit, repeated allegations 281. structure, actions 281.' '(u)ses streams, surrounding Metropolitan residence, sightseeing, (and) purposes,' breathes air metropolitan suffered pollution member taxes sums expended dispose reusable 17 decisions insofar declined failed requires 'every recommendation report proposals legislation major Federal Ibid.8 contended recycling, constituted 18 Three intervene plaintiffs, group railroads, appellants intervened defendants support surcharge.9 After single district judge defendants' restraining order, convened 28 §§ 2284, 2325, decide cross-motion complaint. 19 July 10, opinion, permitting,' court.'10 20 first rejected contention without sue 'a interest seeing enforced,' id., 195, distinguished unlike petitioner here used mountains disturbed nonuse goods. Second, 667, 988, where we enacting 15(7), intentionally 'in sole suspend' withdrew judiciary pre-existing injunctive relief.' reasoned requirements' 'so F.Supp., 197 n. 11. 22 Finally, turning merits, "major environment." Id., 199. premise 'whenever arguably impact,' 201, danger real require case.' Ibid. 23 stay appeal Court, 19, THE CHIEF JUSTICE, Circuit Circuit, applications 409 1207, 34 21. noted probable appeals States, 1073, 683, 662.11 II challenge sue, arguing vague, unsubstantiated, insufficient respond (APA), 702,12 point specifically brought about commodities. sufficient dismiss. agree. 25 large long-established organization, historic commitment protecting heritage man's depredations,' U.S., 739, S.Ct., 1368, declaratory judgment officials approving creation extensive ski-resort development scenic Mineral King Valley Sequoia Forest. maintain 'public interest' lawsuit "a conservation (the) sound maintenance national parks, game refuges country .." 730, 1364. insufficient. 26 Relying prior Association Data Processing Service Camp, 397 150, 90 827, L.Ed. 184, Barlow Collins, 159, 832, 192, APA conferred agency only 'that challenged 'injury fact,' injury 'arguably zone interests protected regulated' statutes agencies violated.' 733, 1365.13 27 interpreting fact' clear 'economic although both kind Nor, said, shared reason disqualify agency's person Rather, explained: 'Aesthetic society, particular rather few does make deserving protection through process.' Consequently, neither enjoyment area, nor deprives standing. though, went stress importance demonstrating party himself injured, requirement gives litigant direct stake controversy prevents process becoming vehicle vindication value concerned bystanders. No Club. asserted 'will felt Park, whom values lessened highway ski resort,' 735, 1366, yet '(t)he allege activities pastimes development.' contrast, Area. 29 Unlike geographically limited complained applicable country. Rather picturesque valley California, utilize country, indeed breathe air, claim here. already Indeed cases relied patent across Nation governmental actions. See, e.g., Hardin, 138 U.S.App.D.C. 391, 428 F.2d 1093, 1097 (interests consumers Secretary Agriculture refusing registration certain pesticides containing DDT); Reade Ewing, Cir., 205 630, 631—632 oleomargarine fair labeling product regulated Security Administration). deny others mean injurious widespread Government questioned nobody. accept conclusion. very different far perceptible. there construction project affect Valley. asked follow attenuated line causation eventual complained—a nonrecyclable commodities compared goods, resulting might refuse discarded parks protest never effect, contend ploy fact. Of course, something ingenious academic exercise conceivable. A plaintiff he perceptibly harmed action, can imagine circumstances action. And equally true capable proof trial. deal perceptible affected.14 If, now assert, untrue, then should moved summary sham raised genuine fact.15 say import seek review. correct denying appellants' lawsuit. III 32 reach whether, conventional standards equity, justified issuing enter event. 33 enjoined 'permitting,' 'collecting,' Finding implicitly 'on requirements,' 197, case. Arrow, railroad's voluntarily deferred months. When reached intent adopt effectuating change, From language history lawfulness, relief. 35 after expired represented attempt extend judicially during grounded finally determined holding depend availability passed. Indeed, cited approved instances M. C. Kiser Central Georgia 236 573, aff'd, 239 718; Freeport Sulphur 199 913; Bison S.S. Corp. 182 63; Luckenbach 179 605, 609—610, vacated part moot, 364 280, 80 1611, 1719; Carlsen 107 398. 36 Similarly, significance litigation ran well way comply court's constitutes interference discretionary turn sheer formality effectively amend accomplish what And, again, compel suspension. supra; cf. supra.16 Thus, distinction However, agree sub silentio created implicit exception relief revived.17 NEPA, one efforts reversing deterioration country's declares continuing policy practicable means measures manner calculated foster welfare, create conditions man nature exist productive harmony, fulfill social, future generations Americans.' 4331. implement lofty imposed responsibilities agencies, notably producing environment.' 4332(2)(C).18 nowhere, either legislative language, indication restore temporarily away Act. 38 fact, indicates statute. 4335 specifies goals set forth (NEPA) supplementary existing authorizations agencies,' 4334 instructs 'shall (not) providing wholesale overruling law, 'present authority, administrative regulations, current procedures determining deficiencies inconsistencies therein prohibit compliance provisions shall propose President necessary conformity intent, (NEPA).' 4333. anomalous provided time responsibility implementation NEPA,19 ask legislation, ignore described congressional oust 671 22, 991.20 39 nothing suggests restoration previously eliminated power. While primarily Appeals Calvert Cliffs' Coordinating Comm. Atomic Energy Comm'n, 146 33, 449 1109, Committee Nuclear Responsibility, Inc. Seaborg, 149 380, 463 783, supports rules promulgated consideration Responsibility consider executive conduct nuclear test satisfied question however, determine complied equitable not, 991, Scripps-Howard Radio, FCC, 316 4, 62 875, 86 1229, context revived explicitly Congress. issue, statute restricts injunctions.21 40 Our conclusion confirmed alleged. 41 First, diverse results courts. differed existence scope consequence uniformity jeopardized, shippers, areas subjected disparate treatment. grounds see 2321—2325, easily '(reach) results, (engendering) confusion (producing) inequities.' 663, 987. short, New York disallowed Jersey. stressed represents careful accommodation involved. prevent excessive lost recouped shippers. hand, aware act shippers eventually mitigate loss, keep accounts repay allow disturb balance interests. rate, perfectly just reasonable. Granting based deprive vitally needed unjustified windfall 43 survival represent undesirable orderly context, even though substantive interfere when 'Congress meant foreclose timing changes out harmony levels fostered doctrine jurisdiction.' 668, 990. Second explained Port Authority 451 788, where, rates: 44 'The Arrow—that permit invite disruption tariffs preclude—applies equal force us.' Accordingly, do so,22 remanded proceedings consistent opinion. 46 Reversed 47 POWELL took cases. 48 BLACKMUN, BRENNAN joins, concurring. I join Court's presence sentence Part misunderstanding my posture, add words. 50 For reasons dissenting 755, 1376, 636 (1972), hold evaluating warranted, appellees, capacities, injured. responsible sincere representatives interests, irreparable substantial. 51 DOUGLAS, part. 52 These problems. They concern rate-making shipment litter recycling. Paper, glass, metals items today's garbage.1 Bureau Mines Appendix America's method disposing garbage landfill incinerators bury residue. Sorting recycling several impacts: (1) reduction lessens pollution; (2) establishing removal landscape; (3) saves renewable nonrenewable resources. respects last, tons paper recycled, burned, translated trees cut pulp next year; recycled protect remaining supplies ore, on. 53 fixed encourage vast shipments are, therefore, perhaps immediate dramatic illustration erosive conditions.2 would, affirm eminently 189. 54 1969, Stat. 852, 4321 seq., 55 'which enjoyable environment; damage biosphere stimulate health welfare man; enrich understanding ecological systems Nation; Council Quality.' 4321. 56 That broad expounded 4331(b) include, objective assure Americans safe, healthful, productive, esthetically culturally pleasing surroundings (6) depletable resources.' urges increases. diminished total amount manufactured expensive marketplace. addition, 'forests, .' reuse bottles cans, depletion 57 'We (environmental) lay (5 702). Aesthetic own personal continued it. 58 'There unusual novel granting consuming actions.' Office Communication Church Christ 123 328, 359 994. 'statutes concerned, trend enlargement class action.' 154, 830, 184. 59 Littering commonplace phenomenon affects every person, almost everywhere. reports writings know littering defaces mountain trails, alpine meadows, highest peaks. Those valleys often inundated litter. Where river polluted dependent drinking water, suppose slightest doubt claim. smog settles city, feel sulphuric acid forming eyes, obvious resident whose paths strewn litter, picnic defaced tender court. seem cover abetted recycle implicate residents area' important. standing, capacity, BLACKMUN states, 'as 60 Quality (CEQ), Executive President, 4342, estimated produced 4.3 refuse, paper, industrial fly ash, metal, plastics, 100 automobile tires, bottles, millions automobiles appliances. First Annual Report CEQ, Aug. 1970, pp. 107—113. reported secondary material reused replacement virgin material, small fraction recycled. One high cost transportation costs. 61 noted, 'enhance approach attainable 4331(b)(6). October 9, Chairman Russell Train CEQ wrote follows: deeply facets quality. Solid disposal aspect problem, desirable alternative strongly supports. degree technique depends entirely economics. costs, compete, disincentive believes rail haul biases currently discuss you. general, across-the-board percentage widen price Also, raise doing business hinder salvage reclamation industry. 63 'In light President's quality, growing problems alleviating them, express Council's hope key goals.' App. 68. 64 1971 impose virtually freight. details followed presently material. Suffice submitted verified statements view intensify disincentives Thus Institute Scrap Iron Steel study showing: 65 '(1) Present markets retarded transport usage iron ore. Future investment logically directed scrap-intensive steelmaking diverted ore-intensive steelmaking. ore (a domestic resource) exploited conserved. (4) Some unable move, despoiled accumulations metallic waste.' T. Barnes, Impact Recycling Ferrous (Jan. 14, 1972). 66 proceeding concerning guidelines follow. 508. spokesman eastern 'any possible form movements come fail adequate efficient service' Appellees alleging discourages 67 'have environment' See 358; 341 287. 68 69 'It understandable difficulties encountered quantifying consequences incremental view, assessed disparity rise problem place. matter magnitude, calling thorough assessment precondition subsequent statements. Clearly individually 'insignificant' cumulatively 'significant.' products 'emergency' needs completion required, overall evaluation, loses much basic uncompleted. argument itself, however legitimate, forecloses alternatives meet potential resolved. Alternatives sort were, suggested partial opinions Commissioners Brown Deason (who approval commodities), majority justify summary, feels issues related thereto, evaluated logical, analytical timely fashion appear inconsistent objectives analyses undertaken offer draw conclusions staff available assist structuring work assess adequately rates.'3 87—89. 70 'no effect' EPA 'transparent' ruse.' 200—201. leads analysis 102 NEPA.4 71 section 'all Government,' course includes directs interpret administer policies, laws' administers 'to fullest extent possible' accordance EPA. agency5 'by official on—(i) (ii) effects avoided proposal implemented, (iii) (iv) relationship local short-term enhancement long-term productivity, (v) irreversible irretrievable commitments implemented. Prior making statement, consult comments expertise Copies appropriate Federal, State, develop enforce standards, 552 Title accompany processes.' 853. 72 obviously relevant ease expedition transported. get plants quantities fast depleting resources6 relieve landscape plagues us incentive 73 report, H.R.Conf.Rep. 91—765, makes exempt 'expressly prohibits directives impossible.' states: 74 subparagraphs (A) (H) operations expressly impossible. If directive immediately required. agency, conferees provision avoiding 102. excessively narrow compliance.' U.S.Code Cong. & Admin.News, 91st Cong., 1st Sess.1969, p. 2770. 75 acting responsibly clear-cut sets "high standard" "escape hatch footdragging agencies," preparation "discretionary," intend tiger." 199.7 76 entrusted only; intrude acted. Here acted; reasonable, derived therefrom earnings return excess enable' render lowest furnishing service.' Exparte Order 1972 (unreported). prescribing attached added. court: 'A blackmails submitting agency-authored functionally indistinguishable rates.' 197. 77 Moreover, Judge Friendly observed City 337 164, 'NEPA imposing duties overlie jurisdictional responsibility.' 78 today greatly weakens crucially segment field. Movement plants8 critically important, abundantly clear. underfoot cart off pollute landfills getting difficult find.9 copper, iron, glass practical. pilot plant Edmonston, Maryland, boasts 'urban ore,' calls debris, $3 ton worth $11 ton. told thousands acres year.10 79 appraisal chairman weighty one, 204 appraise programs Government' recommend improvement quality.' 855; 4344(3), (4). is, words, expert ombudsman apparent tendency Congressman Dingell says,11 want prepare apologia done. puts horse. construction' compliance' standards—all condemned Conference 10. say, considerations possible, shape decisions. 81 indeed, Exhibit practice undermine Rail discriminatory retarding South. 331 284, 91 1492. engulf us. wisdom Train, technical maneuvers guide. 82 APPENDIX TO OPINION OF J., DISSENTING IN PART 84 incinerator residue processing Lowell, Massachusetts, Resource Recovery Project. 85 Edmonston engaged following Bureau's description project. FACT SHEET (Md.) Waste Project DEPARTMENT INTERIOR 87 An utilization research carried methods processes mineral urban refuse. Engineers College Park Metallurgy Research Center operate reclaim ferrous metals, nonferrous unburned facts pertinent underway plant. 88 xxx—100 pounds typical municipal contains: 89 36.6 cardboard; 20.2 garbage; 8.4 metal; 8.5 glass; 17.4 leaves, grass, hedge clippings tree prunings; 2.6 wood; 1.1 pound plastics; 5.2 miscellaneous leather, rubber, textiles, bricks, stones, dirt. xxx—Urban generated totaled 300 tons, equivalent daily man, woman, child. xxx—Only 220 regularly collected private firms. remainder (80 tons) abandoned, dumped origin, hauled uncontrolled sites. xxx—The volume accumulating year half size State Connecticut (2,500 sq. mi.) layer foot deep. contains steel, aluminum, zinc, lead, tin, copper. xxx—Collecting cities average $23 per ($18, $5, disposal). City, $40 ton, spends dollars day waste. Total bill runs $6 annually. 94 xxx—Most disposed dumping, landfill, incineration. About burned incinerators. generate 7.5 residues, buried. developed residues attracted world-wide attention. commercial type soon seventy-five percent the.$3.2 Protection Agency. 95 xxx—Successful prompted save burning. reduce building incinerators, saving income salvaged plastics glass. connected 96 xxx—Equipment mechanical separation incineration assembled Edmonston. involves coarse shredding classification, magnetic separation, screening, optical sorting, electrostatic gravity concentration—all proven minerals industries. 97 xxx—Other schemes development. unique respects: embodies complete system, capturing concentrating putrescibles produces tin suitable detinning, accepting extremely massive pieces (5) successfully separate energy processes. 98 xxx—A 1,000 expected enough metal steel parts 4-door sedans. 99 xxx—About Each American discards bottle days. returnable beer round trips brewery, consumer, back brewery. trips. cities, 4. People discriminating nonreturnable bottles. xxx—Glass reclaimed salable wool insulation, road surfacing (when mixed asphalt). 101 xxx—Aluminum cans alone amounts production. together aluminum recovered find ready market smelters conversion grade casting alloys. heavy readily brass ingot mixture refind separated constituent metals. 103 refined years, able wastes space remain same. now, harder find. 104 (Refuse-disposal refuse-recovery charts 718 719 respectively.) 105 URBAN REFUSE DISPOSAL 106 [NOTE: MATERIAL SET AT THIS POINT IS NOT DISPLAYABLE (GRAPHIC OR TABULAR MATERIAL)] BUREAU MINES DRYSORT RECOVERY SYSTEM 108 109 Section 4332 provides: 110 4332. Cooperation agencies; reports; information; recommendations; international coordination efforts. 111 authorizes possible: laws interpreted administered chapter, shall— 112 systematic, interdisciplinary insure integrated social sciences design arts planning 113 (B) identify procedures, consultation established subchapter unquantified amenities given decisionmaking considerations; 114 (C) on— 115 (i) 116 117 118 119 views processes; 120 study, develop, describe recommended courses unresolved conflicts resources; 121 (E) recognize worldwide long-range character and, foreign lend initiatives, resolutions, maximize cooperation anticipating preventing mankind's world 122 (F) counties, municipalities, institutions, individuals, advice information useful restoring, maintaining, enhancing (G) initiate resource-oriented projects; 124 chapter. 125 Pub.L. 91—190, I, 102, Jan. 126 WHITE, JUSTICE REHNQUIST join, 127 reverse dismissed suit. None cases, inferences drawn dicta there, confer plaintiffs these. satisfy threshold constituting justiciable controversy. causing consumption (some area), undisposable 128 acknowledges reflect 'attenuated causation,' ante, 688, willing dim trial unexplained flesh nexus complain of. me, injuries remote, speculative, insubstantial concrete, real, substantial added marketplace somehow pollution. Allegations qualify litigate taxpayer expenditures pocketbook, Massachusetts Mellon, 262 447, 486—489, 597, 600—601, 1078 (1923), offensive morals. 'right, possessed citizen, government according moneys wasted' Fairchild Hughes, 258 126, 129, 274, 275, 499 (1922). merely diversion water Lake Michigan hypothetical developments indefinite future.' Illinois, 274 488, 490, 661, 1164 (1927). Assumed invasions bases Arizona 283 423, 462, 522, 528, 1154 (1931). reality little general-interest too remote permitting fall disagree. 129 Assuming, adheres constitutional exists use, erred entering quite divested enter. anemic guarantee are—far beyond built all. 130 MARSHALL, concurring 131 fully wherein sustains Appril take seq. goes on, barring due stage proceeding. sure, one; concerns remedies character,1 refrains deciding proper subject so, constitute juncture process. p.2421 22. Nonetheless, am third portion convinced therefore respectfully dissent 132 outset, essential disposes perspective. addresses must, assume sake reach—namely, NEPA2 review3—are decided favor. assertions raising shipping accentuate unjustifiable irrationally lead degradation considering power, correctness 'strong likelihood' "will 1969," 200, excused 133 Turning recalled injunction; permanently had, likelihood, stage. Properly viewed, legitimate effort quo legality established. explored length 1229 (1942), appeal, Communications stay. Speaking Frankfurter 134 'No stand still. change irrevocably pendency despite anything do. limits reasonable appellate premature wrong. always held, traditional equipment administration justice, outcome appeal.' 9—10, 880. 135 FTC Dean Foods 384 604, 1738, 1742, 802 (1966); Whitney Bank Jefferson Parish Orleans Trust 379 411, 425, 551, 560, 386 (1965). 136 consistently adhered deprived face clearest evidence so. 11, 15, 880, 882. acted lies outside expertise.4 664, 987, (1963), '(i)t unambiguous extinguish whatever existed (the establishment Commission) voluntary suspension, threatening awaiting Despite ambiguity history, examination overridden extent. But, factors motivated reveals, presents problem. 137 extending involve serious, unintended intrusion aspects Arrow. reasonableness necessarily pass rate,' 671, providing, advisory instance. Certainly, matters economics recognized, expertise. initial So aware, deemed especially impact.5 instance necessitating intervention sought—in contrast situation remained Even assuming element passed disposed, namely, once. presented action6 interfering stayed appeals.7 139 focused S.T., 989. Insofar enacted scheme account necessity persuade questionable unsuspended investigated, most, 15(7). time, attempted accommodate gave records monies received payment refunds ultimately unreasonable.8 ibid. 140 accounting 'refund' discriminates unreasonably NEPA?9 says '(t)o interests' struck refund provisions. 697. Yet simple carefully introduction circumstances, hardly infer responsibility, passing parties10—that carrier's forever charged preserve surcharge.11 enjoining believe powers. 141 summarize, then, assertion 'each alleged.' 2420. pains 'reflect prescribed channels.' 991. True, '(s)uch derogation manifested Act.' remark judged underlying finding 'such purpose.' seen, certainly extension litigation.12 remember '(w)here wished (their) (to review), knew how apt 17, 883. Cf. Hecht Bowles, 321 321, 329, 564 587, 591, 754 (1944). Nothing compels done ultimate disposition 6(3) fares, joint published common section, except thirty aforesaid, plainly state schedule changed effect; shown printing schedules, schedules kept open inspection: Provided, discretion good shown, herein specified, modify publishing, posting, filing tariffs, peculiar conditions: Provided further, regulations simplification charges, classifications amendment fare, charge, classification covering if, judgment, interest.' provides part: 'Whenever stating complaint, once, answer formal pleading hearing (or) charge .; thereon delivering writing defer ., longer hearing, reference thereto initiated period; property, accurate detail specifying behalf paid, refund, interest, justified. involving September 1940, burden questions preference speedily possible.' Other giving 316(g), 318(c) (Motor Carrier Act); 907(g), (Water 1006(e) (Freight Forwarders Act). Figures net Class 1671, $75.4 million, approximately $33.7 year-end figure. Long-term maturing $43.6 higher 31, 1970. Equipment $4,448 twice 1960. unreported. exclusion trailer bodies, semi-trailers, vehicles containers flat cars, export traffic.' western southern disrupted port relationships. apply originating moving transit arrangements. 4332, '(C) '(i) '(ii) '(iii) '(iv) '(v) 'Prior Parks Conservation Association, Izaak Walton League America plaintiffs. SCRAP. EDF, example, 'EDF nationwide membership 32,000 composed scientists, educators, lawyers dedicated wise EDF's free substances possible. contributed financially EDF representation legally afford. 101(c) contribute preservation contributing EDF. Parte 281 continuance discriminate (recyclable) individualized pasttimes. member: place, non-use manufacture, comparatively opposed nation's purposes. encourages timber, resources, discharge materials.' moot relating terms 5. appealed below, regard 4.1% ripe did, retain events bear validity highlight hover background litigation. approving, exceptions, 290. actually potentially 314. 23, delayed submission parties. Upon comments, unreported 8, reopened evaluation statute—until extended 1973, appeals. throughout resilient Whether supplanted mooting litigation, second treating having maintains moot. Pacific Terminal ICC, 219 498, 515, 279, 283, 310. Both motions Court: intervening supplemental found, concededly appears speculative unsound continued: record dire straits—some verge bankruptcy—and badly obtained increase. $340 millon year, flow halted necessary.' merits us, them. 7, Contending inadequate, Like base APA, 702, suffering wrong aggrieved thereof.' 'zone undisputed 'environmental contends limit 'significantly' begin define mean, fundamentally misconceived. 'Injury reflects 'aggrieved,' serves distinguish litigation—even small—from mere vindicated vote, Baker Carr, 369 186, 691, 663; $5 fine McGowan 366 420, 1101, 393; $1.50 poll tax, Harper Virginia Bd. Elections, 383 1079, 169. dealing restrictive interpretation 'aggrieved.' Professor Davis it: idea comes numerous identifiable trifle fight principle; principle motivation.' Davis, Standing: Taxpayers Others, U.Chi.L.Rev. 601, 613. K. Law Treatise 22.09—5, 22.09—6 (Supp. 1970). object precise—that 'forest' named, lumbering camp facility wholly barren specifics. really definite 12(e), Fed.Rule Civ.Proc., normal civil discovery devices faulted failing came thought evidence, believed appropriate, 'just reasonable,' reasonable' commonly orders. quoted Naph-Sol Refining 269 530, 531; Oscar Mayer 268 977, 978—979. considered Grocery Atchison, S.F.R. 284 370, 183, 348, decision, 'agency-made' 'carrier-made' rate. Moss CAB, 430 891, inapposite. There CAB innovative passenger continental States.' 899. Board 'Even cursory reading file; step-by-step formula requiring practices adopt.' 899—900. level carriers. expire standard meaningful sense, transform carrier-made Commission-made Greene County Planning FPC, 455 412, 420; 43, 1119; 160; Cohen Price 1236, 1241. restored itself. petitioners Policy, 899, altered drive barge lines existence, contrary declaration threatened competition. 'nothing revive Commission.' 673, 992. mandate amenable was. with, precluded another provision. App.D.C., 39, F.2d, 1115. endorsed principle, 'repeal disfavored.' 382, 785. posed urge pressures event, 783; 977; 573; Luckenback 605; stage, enforced be, nonreviewability command requirement, encompass 532; 982 (Doyle, concurring); Long Island 193 795. issues. Mines' survey, weight Economics Metals Minerals Urban Refuse, Technical Progress Report, (Apr. 1971). familiar newspapers, ingots, pulp, fuel oil, methane gas manufactured. developed, glass-phalt street paving, wool, colors specifications 'severe weather' facing brick. 7. launched 1227, 3251 HEW assistance developing resource recovery programs. Mill Ross, How Succeed Recycling, Magazine, 51. realized processed 250 day. (Economics 1.) Massive bulk operations. concentration outlying factor. 1968 survey 8.2 capita areas; figure risen pounds. trends continue, years. Kramer, Science Affairs 1973). Senate, Senator Jackson, three legislators stated: 'To defined infused ongoing Government, establishes 'action-forcing' procedures. laws, conformance act. decision-making. outline proposals. 'Taken together, (sic) takes management considerations.' Cong.Rec. 40416 (1969). totality dissent. Jackson saying: move. anticipate compliance. work.' Cahn, Can Help Citizens Save Nature's Fragile Beauty?, Christian Monitor (Feb. Waldo E. Smith, Geophysical Union, supply sharply limited; dig deeper, farther, lower ores. optimism intelligent by-product cleaning up clean Resources Long-Forecasts, (May desires exceptions exemption provided. Pub.Law 92—307, 191, license reactor holds findings, insuring generating capacity utility system. empowered deems necessary, taking affirmative 105. Securities Exchange adopted amendments reporting forms disclosure pertaining issuer's federal, state, business, disclosures expenditures, earnings, position issuer subsidiaries. contain descriptions proceedings. Comm'n Release (Securities Rel. 5386, Apr. 20, Scientists' AEC, 156 395, 481 breeder program. saying statements: generic statements—updated six so—for policy, decisions.' Most relocated dumps 10% 15% sanitary landfills. 2, 17. Dingell, sponsor success should, (way) complying poorly. going write decision. mind. fearful breeding race writers right words down don't decision-making itself thing judgments reflecting discipline informed Robert Cahn (former CEQ), Environmentalists Wary Transport Trend, Given presumably Nor themselves, Wichita Trade, 800, 2367, 350. Upper Pecos Ass'n Stans, 452 1233 (C.A.10 1971), mootness nom. Peterson, 1021, 458, 313 (1973); 1109 (1971); 158—160 (E.D.N.Y.1972). 'whether explicity Congress.' 696. ever for—as seen—Congress surely lodged Quality. L. Jaffe, Judicial Control Action 688 Contrast fails recordkeeping sua sponte, mechanism reparations unreasonable. 13(1). sure dispute was, instead, decreases destroy objectives. Obviously, reparation nonshipper '(c)onflicts enactment provisions) .. (namely, 4(2)) (that powers) dealt addition creates damages—based violative Act—which 669, account, for, disputes this, recall Stone's oft-quoted admonition: 'Courts equity frequently do, farther withhold furtherance accustomed involved.' Virginian Systems Federation 40, 552, 592, 789 (1937). 329—330, 591—592, recognizing plight 'allowing carriers) goods.' 202. experience injunctions 'resulted treatment sections 'discrimination hardship public." conflicting 663—664, 986—987. unevenhanded fortuity located, allegation statute—NEPA—relevant NEPA—relevant has, consequence, joined defendant. party, ensure exist. 2.5 cent surcharge' 'pending court.' Jurisdictional Statement 30a. warrant staying

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