Document: 490 U.S. 332 109 S.Ct. 1835 104 L.Ed.2d 351 F. Dale ROBERTSON, Chief of the Forest Service, et al., Petitionersv.METHOW VALLEY CITIZENS COUNCIL al. No. 87-1703. Argued Jan. 9, 1989. Decided May 1, Syllabus The Service is authorized by statute to manage national forests for, inter alia, recreational purposes. Because its decision issue a special use permit "major Federal action" within meaning National Environmental Policy Act 1969 (NEPA), that must be preceded preparation an Impact Statement (EIS). After study designated particular forest location as having high potential for development major downhill ski resort, Methow Recreation, Inc. (MRI), applied develop and operate such resort on site adjacent private land MRI had acquired. In cooperation with state local officials, prepared EIS (the Study), which, among other things, considered effects various levels wildlife air quality both on-site and—as required Council Quality (CEQ) regulations—off-site, outlined steps might taken mitigate adverse effects, indicating these proposed were merely conceptual would "be made more specific part design implementation stages planning process." Study's options regarding off-site mitigation measures primarily directed governments. Regional Forester decided recommended Study, respondents appealed who affirmed. Respondents then brought suit review Service's decision, claiming Study did not satisfy NEPA's requirements. District Court's Magistrate filed opinion concluding was adequate, but Court Appeals reversed, inadequate matter law grounds, NEPA imposes substantive duty agencies take action federal actions, which entails further i clude in every detailed explanation actions will employed impact; if difficulty obtaining adequate information make reasoned assessment project's environmental impact, it obligation "worst case analysis" basis available information, using reasonable projections worst possible consequences; failure complete plan violated own regulations. Held: 1. does impose or include each fully developed plan. Although requirement "action-forcing" procedures implement statute's sweeping policy goals ensuring "hard look" at consequences guaranteeing broad public dissemination relevant well settled itself duties mandating results, simply prescribes necessary process preventing uninformed—rather than unwise—agency action. While reasonably discussion important ingredient EIS, omission therefrom undermine function, there fundamental distinction between discussed sufficient detail ensure have been fairly evaluated actually formulated adopted. Here, since project cannot mitigated unless non-federal government jurisdiction over area appropriate action, incongruous conclude has no power act until finally determined what are necessary. More significantly, inconsistent reliance procedural mechanisms—as opposed substantive, result-based standards—to demand presence before agency can act. Pp. 348-353. 2. impact. prior CEQ regulations requiring analysis may expressed permissible interpretation NEPA, those amended replace new requirements, mandate uncertainty predicting harms addressed exclusively analysis. erred regulation codification law, fact, describe impacts even face substantial uncertainty. Moreover, regulations—which require agencies, unavailable concerning foreseeable significant consequence, prepare summary existing credible scientific evidence evaluation based generally accepted approaches research methods—is entitled deference though rule some respects demanding, good reason change light criticism old subjected, amendment designed better serve EIS' disclosure functions preference distorting decisionmaking overemphasizing highly speculative harms. 354-356. 3. regulations, require, "[e]ach authorization . ontain [t]erms conditions minimize damage environment." Since clear minimal easily mitigated, ameliorative deemed overly vague underdeveloped. although measures, also read all cases condition issuance consideration (and implementation) measures. promulgated pursuant statutory allow direct concern quality. As from text issued MRI, imposing controls MRI's actual operation during permit's term. It unreasonable construed extending efforts authorities, controlling. 357-359. 833 F.2d 810 (CA9 1987), reversed remanded. STEVENS, J., delivered unanimous Court. BRENNAN, concurring statement, post, p. ----. Solicitor Gen. Charles Fried, Washington, D.C., petitioners. David A. Bricklin, Seattle, Wash., respondents. Justice STEVENS 1 We granted certiorari decide two questions law.1 framed petitioners, they are: 2 "1. Whether requires impact statement: (a) harm; (b) 'worst case' harm too costly obtain. 3 "2. absence harm." Pet. Cert. i. 4 Concluding Ninth Circuit misapplied 83 Stat. 852, 42 U.S.C. § 4321 seq., gave we reverse remand proceedings. 5 * "outdoor recreation, range, timber, watershed, fish purposes." 74 215, 16 528. See 90 2949, 1600 seq. Pursuant authorization, "special use" permits approximately 170 Alpine Nordic areas lands. H.R.Rep. 99-709, pt. (1986). 6 involves three separate stages. first examines general financial feasibility decides whether permit. 36 CFR 251.54(f) (1988). 4332. If permit, proceeds select developer, formulate basic terms arrangement selected party, permit.2 not, however, give developer he right begin construction. 251.56(c) final stage review, evaluates permittee's "master plan" development, construction, project. Construction only after additional (although second need always prepared) approval developer's master This arises out authorizing destination Sandy Butte North Cascade Mountains. 7 6,000-foot mountain located Okanogan County, Washington. At present Butte, like Valley overlooks, unspoiled, sparsely populated characterized "pristine." App. 20a. 1968, Congress established Cascades Park Secretaries Interior Agriculture agree designation within, to, park uses, including areas. 82 926, 930, §§ 90, 90d-3. A 1970 conducted this congressional directive identified highest any State Washington resort.3 23a. 8 1978, "Early Winters Ski Resort" 1,165-acre parcel acquired Forest. 3,900 acres Butte; entice visitors travel long distances stay several days time; stimulate extensive commercial residential growth vicinity accommodate vacationers staff. 9 response application, county known Early Winter Sports (Early Study). stated purpose "to provide evaluate skiing Winters" assist making Special Use Permit portion 3900 System land." draft completed circulated 1982, release delayed wilderness area. 26a. When Wilderness 1984 passed, excluded designation,4 released. 10 printed document containing almost 150 pages 12 appendices. five alternative authorized, lowest being "no 16-lift able 10,500 skiers one time. effect level water resources, soil, wildlife, quality, vegetation, visual transportation Valley, probable demographic shifts, economic market summer winter activities energy requirements related developments. limited also, see 40 1502.16(b) (1987), "off-site community facilities, socio-economic Upper Valley." explained "due where lands become developed," difficult impacts, id., 76, thus document's necessarily "not site-specific," Finally, certain neighboring indicated "will Id., 14. 11 received attention Study. chapter "Environmental Consequences," subject true subjects, included cumulative years resulting itself. concluded maintenance, measurable future quality," under alternatives—including severe meteorological inversion periods." 65. burning wood space heat, explained, constitute primary cause diminished increase incrementally successive development. Ibid. cautioned without alternative, automobile, fireplace, stove reduce below standards, added "[t]he numerous discussed" greatly presented model." 67. air-quality could construction suggested County management plan, weatherization buildings, limiting number stoves fireplaces, adopting monitoring enforcement measures.5 addition, control dust comply smoke practices.6 13 endangered threatened species affected sensitive loss pair spotted owls their progeny. 75. With regard 75 different indigenous predicted decade vegetational increased human activity lead decrease population 31 species, while causing another 24 Butte. Two pine marten nesting goshawk, eliminated altogether 14 comment Department Game voiced about losses State's largest migratory deer herd, uses critical range migration route. Appendix D (letter November 18, 1982). estimated total mule most likely "better 30,000 animals" "the ultimate herd exceed 50 percent reduction numbers." asserted "Okanogan residents place great deal importance area's herd." hunters "harvested" 3,247 1981, that, 1980 average spent $1,980 killed contributed $6 million economy 1981. harvest apparently proportional size "Washington business expect lose $3 annually reduced oppo tunity." modest. hill "minor" herd,7 recognized "would noticeably numbers [Valley] alternative." 76. estimate 15 summarized contrary view stressed due described Among possibilities, locating runs, lifts, roads so interference restricting access fawning season, examination routes.8 Off-site zoning tax incentives limit routes, encouragement conservation easements, acquisition tracts land.9 mitigating government. Ultimately, 8,200 On July 5, 1984, Study.10 63a. his found result directly secondary degradation range. 67a. He therefore supervisor Forest, independently identify 67a-70a. 17 Four organizations (respondents)11 opposing Forester's Service. 211.18 hearing, affirmed decision. Stressing approved concept issuing 30-year authorize and, EIS's "adequate 59a. 18 Thereafter, Administrative Procedure Act, 701-706, obtain judicial Their principal claim 4332.12 consent parties, assigned United States Magistrate. 28 636(c). trial, comprehensive written adequate. Specifically, adequately disclosed because essential available. 39a-44a. off-site, secondary, courts apply "rule reason" evaluating adequacy "take speculation involved into account passing impacts." 38a. mitigation, "[m]ere listing regulations," "in more—not much more—but mere measures." 41a. emphasizing tiered nature decisional process, noted strategies continues plans becomes available, conditioned execution agreement mitigation. 41a-42a, 45a. 19 reversed. Citizens v. Forester, 1987). court held rely " 'the measures' support conclusion minor, "since effectiveness yet assessed, themselves developed." 817. so-called analysis." Such 'formulated action.' Save our Ecosystems [v. Clark,] 747 [1240], 1244-45 1984) (quoting 46 Fed.Reg. 18032 (1981))." 20 similar defect treatment violations standards effective put governments affirmative "develop granted." 819 (emphasis original) (footnote omitted). imposed 102 NEPA. 'action actions.' Stop H-3 Assn. Brinegar, 389 F.Supp. 1102, 1111 (Haw.1974), rev'd 533 434 (CA9), cert. denied, 429 999, 97 526, 610 (1976)). For reason, "an thorough action." F.2d, 819. quoting paragraph just announced: 21 'The overestimated. determinative factor statement. Without decisionmaker unable informed judgment t project—one main purposes statement.' 820 Oregon Natural Resources Marsh, 832 1489, 1493 rev'd, 360, 1851, 377). II 22 Section 101 declares commitment protecting promoting 4331. To "infused ongoing programs Government, establishes 'action-forcing' procedures." 115 Cong.Rec. 40416 (remarks Sen. Jackson). S.Rep. 91-296, (1969) U.S.Code Cong. & Admin.News 2751; Andrus Sierra Club, 442 347, 350, 99 2335, 2337, 60 943 (1979); Kleppe 427 390, 409, n. 96 2718, 2730, 49 576 (1976). thus, 23 "directs fullest extent Government shall— 25 "(C) recommendation report proposals legislation significantly affecting environment, statement responsible official on— 26 "(i) 27 "(ii) avoided should proposal implemented, "(iii) alternatives 29 "(iv) relationship short-term man's environment maintenance enhancement long-term productivity, 30 "(v) irreversible irretrievable commitments resources implemented." 853, contemplating serves respects. Baltimore Gas Electric Co. Defense Council, Inc., 462 87, 97, 103 2246, 2252, 76 437 (1983); Weinberger Catholic Action Hawaii/Peace Education Project, 454 139, 143, 197, 201, 70 298 (1981). ensures agency, reaching carefully consider, impacts; guarantees larger audience play role 32 Simply focusing agency's project, overlooked underestimated discovered committed die otherwise cast. ibid.; Kleppe, supra, U.S., S.Ct., 2729. strong precatory language statements inevitably bring pressure bear respond needs quality." 40425 Muskie). 33 Publication form, informational role. gives assurance "has indeed concerns process," Co., perhaps provides springboard comment, L. Caldwell, Science 72 (1982). Thus, reflects work itself, views Game, Friends Earth, many others, whom copies circulated.13 D. respect attributable governmental bodies, function offering bodies notice expected opportunity corrective timely manner. 34 announced realized through set 'hard look' consequences," 410, 21, (citation omitted), information. affect now process. Strycker's Bay Neighborhood Karlen, 444 223, 227-228, 100 497, 499-500, 62 433 (1980) (per curiam); Vermont Yankee Nuclear Power Corp. 435 519, 558, 98 1197, 1219, 55 460 (1978). evaluated, constrained deciding values outweigh costs. 499-500; 21. case, example, complying Act's prerequisites, benefits derived justified notwithstanding percent, herd. Other statutes obligations agencies,14 prohibits 35 sure, consequences.15 contain flows expressly, CEQ's implementing Implicit N PA's "any implemented," 4332(C)(ii), understanding discuss avoided. Mandelker, Law Litigation 10:38 (1984). generally, discussion, neither nor interested groups individuals properly severity effects. An remedied by, inconsequential expenditure certainly serious modestly ameliorated vast resources. Recognizing defining scope 1508.25(b) discussing 1502.14(f), 1502.16(h), explaining 1505.2(c). There distinction, hand, adopted, other. nonfederal authority them, reached consider necessary.16 Even Cf. 100, 2254 ("NEPA adopt internal structure"). 37 erred, first, assuming "NEPA actions,' F.Supp., 1111), second, finding "a action," supplied). III 38 time amended. application Accordingly, case" study. 39 1977, President Carter promulgate binding provisions Exec. Order 11991, 123 (1977 Comp.). Presidential order, Under 1502.22 regulations—a provision became requirement"—CEQ provided either obtain, indication probability improbability occurrence." (1985). 1986, replaced impacts" "evaluation upon theoretical methods community." 1502.22(b) (1987). "retains remote, potentially grounds rather framework conjectural analysis.' 32237 superseded, "[t]his rescission nullify law." 817, 11. conclusion, erroneous Most notably, reveals regulation, decisions. Note, 86 Mich.L.Rev. 777, 798, 800-802, 813-814 cited ultimately Fifth Circuit's Club Sigler, 695 957 (1983). codified "j dicially created principl[e]" "consider probabilities occurrence discusses." 970-971. superseded adoption uncertainty, met mechanism 51 15625 abandonment provision, therefore, previously statute. 41 Nor convinced controlling demanding. 358, 2341, deference. less order 'administrative guidelines' conflict 'with earlier pronouncements agency,' ibid. General Gilbert, 125, 401, 411, 343 (1976)), nonetheless appears change, 2341. came subjected considerable criticism.17 twin EIS—requiring providing individuals. focus generate greatest relevance decision," (1985), harms, 15624-15625 (1986); 32236 well-considered failed analysis."18 IV 814, 3, 819, Those "measures protection rehabilitation operation, termination project," 251.54(e)(4) (1988), scenic esthetic habitat protect environment," 251.56(a)(1)(ii). Applying "[s]ince 'plan' here undeveloped wholly inadequate, grant none arbitrary, capricious abuse discretion." disagree. 43 mitigated. reported "[i]mpacts 'hill' 65, minor," Given steps—which, called "prompt revegetation disturbed areas," 69, "new service away cover," 16—cannot 44 Appeals' turns court's see, e.g., occupancy suitable constructing maintaining hotels, resorts, structures facilities desirable convenience, safety," embodied NEPA.19 term permit.20 surely ameliorate proje "plainly regulation," Bowles Seminole Rock Sand 325 414, 65 1215, 1217, 89 L.Ed. 1700 (1945). Lyng Payne, 476 939, 106 2333, 921 Udall Tallman, 380 16-17, 85 792, 801-802, 616 (1965). V 45 sum, detailing hold adopted accordingly remanded proceedings consistent opinion. ordered. 47 concurring. 48 I write separately highlight observation "one consequences." Ante, 351. granting certiorari, consolidated Marsh 87-1704. 487 108 2869, 905 Our 377. chosen on: (1) "[k]ind services offered"; (2) "[f]inancial capability"; (3) "[e]xperience qualifications relation use"; (4) "[a]bility perform according Federal, State, laws"; (5) "[c]ontrol use." Dept. Agriculture, Final Its suited repeated Joint Plan area, 1974. 299. Senate Committee Report exclude bill, quite remarkable legislative committee: "The developm nt proceed delay. ." 98-461, following action: initiate form tion Air Control Authority administrative structure statutes. airshed incorporates ambient stricter standards. considered: "—Development codes specifically addressing efficiency pollution control. "—Requiring weatherized supplemental heating sources (i.e., wood) beyond central needs. "—Restricting fireplaces stoves. minimum, few allowed accommodations constructed tourist use. "—Encouraging non-polluting sources. "—Establishing certification fireplace inserts. system alert impending episodes record changes levels. data used success stringent violated. assure met." 68-69. on-site, measures: Master prompt mandatory (e.g., rocking oiling) unpaved roads. phase follow Service/State practices Smoke Management Plan. opportunities utilization waste wood, generated thereby minimizing open burning." 69. diminish depending chosen. disturbance "[f]awning adversely 75-76. listed mitigation: "a) Locate roads, blue grouse wintering (primarily ridgetops). "b) Leave dead defective trees standing timbered skier safety protected. "c) Restrict season (June). "d) cover. "e) Evaluate routes "f) Design nearby, timber sales retain corridors, foraging, roosting, sites owls. "g) Protect habitats "h) home "i) Springs riparian protected habitat. 16-17. 77. effects: "[1] Limit along rezoning options, means. "Since disruption declines numbers, vital portions assured Rezoning occur, as: "(a) Review currently densities, space, design. "(b) optional zone districts Conservation Districts amending environmentally "Other probably needed, include: ' (c) Easements trust Game) encouraged. Benefits occur landowner breaks, resource undeveloped, status quo "(d) Acquisition migrating needed insure continued passage. These administered Game). "[2] Minimize road kills warning signs, speed limits, roadway crossings driving occur. Responsibility rests department Federal) Valley. "[3] free-ranging dogs ordinances enforceable. "[4] Through zoning, discourage areas." 77-78. His taking competitive bids. month MRI. four Sportsmen's Chapter, Club. organizations, exception herein. permittee, respondent Court, supports Government's shall "respondents" refer opponents proposal. alleged 1976, 1600-1614, Clean 7401-7626. claims dismissed petitioners' motion longer issue. 22a. preparing request comments Indian tribes, applicant, particular, persons organizations. 1503.1 "discuss points [must] indicate raised." 1502.9. 1503.4. See, Endangered Species 1973, 87 892, 1536(a)(2) (requiring "insure funded, carried jeopardize existence species"); Transportation 1966, 303 (Secretary approve "use publicly owned park, recreation waterfowl refuge historic prudent feasible land; program includes [area] use"). define "mitigation" Avoiding parts Minimizing degree magnitude implementation. "(c) Rectifying repairing, rehabilitating, restoring environment. Reducing eliminating preservation operations life "(e) Compensating replacing substitute environments." 1508.20 distributed, Protection Agency, Ecology, entered memorandum (MOU) committing parties 45a-46a. requirement, wrote: "[T]he MOU offers whatsoever objectives features—performance responsibility third process—would ever fact achieved (let alone implemented), Earl proceed. Preservation Coalition Pierce, 667 851, 860 1982) ] ('Since "mitigations" [third parties] them improper')." 810, 819-820 taken, explained: "Many Council's Advance Notice Proposed Rulemaking pointed limitless inquiry requirement; is, conjure up worse adding variable hypothetical scenario. Experts field risk perception analysis' lacks defensible rationale procedures, current regulatory stands 'without discernible link disciplines devoted thought effort toward developing rational ways cope problems surprising knows how do .', Slovic, P., February 1985, Response ANPRM. "Moreover, institutional context litigation EIS(s) proved counterproductive, led devote analyses useful decisionmakers divert intended purpose." Amicus curiae Center argues applies "environmental Intent (40 1508.22) [was] published 27, 1986." 1502.22(c) grandfather clause r gulation, specifies option applying commenced still progress" date. ordered revise revision today part, remains regulation. October substantially revised operations. Area 3000, 497b (1982 ed., Supp. V). case. provides, permittee "shall submit restore construction," completion acceptance successful seeding planting Authorization (July 1986); prevent soil erosion "by carrying holder officer," 19; "[p]esticides undesirable woody herbaceous aquatic plants, insects, rodents, etc., Service," "[o]pen equipped spark screens," 20.

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