Document: 449 U.S. 64 101 S.Ct. 295 66 L.Ed.2d 268 ENVIRONMENTAL PROTECTION AGENCY, Petitioner,v.NATIONAL CRUSHED STONE ASSOCIATION et al. Douglas COSTLE, Administrator, Environmental Protection Agency, Petitioner, v. CONSOLIDATION COAL CO. No. 79-770. Argued Oct. 7, 1980. Decided Dec. 2, Syllabus Under § 301(b) of the Federal Water Pollution Control Act, Agency (EPA) is to set 1977 effluent limitations for categories point sources, requiring such sources meet standards based on application "best practicable control technology currently available" (BPT), and 1987 limitations, all available economically achievable" (BAT). Section 301(c) Act provides variances from BAT individual upon a showing "that modified requirements (1) will represent maximum use within economic capability owner or operators; (2) result in reasonable further progress toward elimination discharge pollutants." However, contains no similar variance provision authorizing consideration ability operator cost complying with BPT standards. In 1977, EPA promulgated pollution coal mining industry certain portions mineral processing industry. regulations, greater than normal implementation be considered acting request variance, but not granted basis applicant's inability implementing uniform standard. Respondents sought review regulations various Courts Appeals, challenging both substantive clause. All petitions were transferred Court Appeals Fourth Circuit, which aside as unduly restrictive required consider, inter alia, factors out 301(c), including capability. Held : The erred accepting EPA's interpretation Act. by consider granting its Pp. 73-85. (a) statute's plain language does support Appeals' position. 301(c)'s requirement "reasonable progress" pollutant discharges refers prior standard, there comparable standard respect limitations. And since do require an industrial category commit resources possible control, even if affordable, factor inapposite context. More importantly, under Administrator EPA, determining directed benefits reductions compared defining best at level that would effect goal substantially reducing total produced each category. Thus, statute contemplated substantial number poorest performances either conform cease production. To allow adherence prescribed minimum permit employment very practices had rejected establishing 73-78. (b) statutory also supported legislative history, shows Congress understood was limited variances; foresaw accepted hardship, closing some plants, cause; took steps alleviate this did include allowing 79-83. (c) face explicit limitation absence any other specific direction provide connection permits adopted construction mandate, concluding that, are more stringent latter must least flexible former affordability. 83-84. CA 4, 601 F.2d 111 (first case) 604 239 (second case), reversed. Andrew J. Levander, Washington, D. C., petitioner, pro hac vice, special leave Court. George C. Freeman, Jr., Richmond, Va., respondents Consolidation Coal Company, Theodore L. Garrett, National Crushed Stone Association, Justice WHITE delivered opinion 1 April July (EPA), (Act), amended, 86 Stat. 816, 33 U.S.C. 1251 seq., portion comprising crushed-stone, construction-sand, gravel categories.1 Although expressly authorize limitation, contained provision.2 clause.3 Circuit. Assn. (1979), Co. Costle, "unduly restrictive" remanded reconsideration.4 2 obtain discharger demonstrate "factors relating equipment facilities involved, process applied, fundamentally different establishment guidelines." costs considered.5 A therefore, 3 Circuit It "take into consideration, among things, 301(c)," authorizes become effective specifies major taken account.6 court held 4 " 'if [a plant] doing pollutants . reason appears why [it] should able secure it comply variance.' F.2d, 124, quoting Appalachian Power Train, 545 1351, 1378 (CA4 1976). 5 We certiorari resolve conflict between decisions below Weyerhaeuser 191 U.S.App.D.C. 309, 590 1011 (1978), upheld. 444 1069, 100 1011, 62 750. 6 * shall first briefly outline basic structure translates Congress' broad eliminating "the navigable waters," 1251(a)(1), met sources.7 7 1311(b) (1976 ed. Supp. III), sources.8 With existing section increasingly two steps. step, accomplished 1, requires [BPT] defined Administrator. ." 301(b)(1)(A). second 1987, achievable [BAT] class. ."9 301(b)(2)(A). Both sets limitations-BPT's followed 10 years BAT's-are regulatory guidelines established 304(b). 8 304(b) 1314(b), again divided sections corresponding levels technology, BAT. 304(b)(1) quantify degree reduction attainable through classes sources. assessing 9 relation achieved application, age employed, engineering aspects types techniques, changes, non-water quality environmental impact (including energy requirements), deems appropriate." 1314(b)(1)(B). Similar directions given except longer comparison benefits.10 11 402 Pollutant Discharge Elimination System (NPDES), every permit. applicable specified issued 301. Permits state agencies have been approved Administrator.11 "transform[s] generally obligations timetable compliance) discharger. California ex rel. State Resources Board, 426 200, 205, 96 2022, 48 578 (1976). 12 explicitly modifying (BAT) may obtained operator; circumstances justify 13 No exists standards, E. I. du Pont de Nemours & 430 112, 97 965, 51 204 (1977), we indicated necessary aspect Id., 128, S.Ct., 975. issue case whether afford limitation. For reasons follow, our answer negative.12 II 14 position Appeals. modifications says nothing about relief requirements. Nor although itself affordability decisions.13 This logical reading only listed bore relationship considerations underlying they those controlling regulations. case. 15 301(c)-"maximum operator" pollutants"-parallel general definition "require class, pollutants. 301(b)(2). thus, creates particular source represents same sort technological commitment As assumes has modification ultimate polluting discharges. one who can variance. 16 There First, reference serves is, however, comparable, limitations.14 Second, affordable. Those already using satisfactory need take additional all. factor, "maximum operator," therefore BAT's, i. e., apply source. 17 affordable source, fails undercut purpose function Rather measures technologically feasible, provisions contemplate prohibiting excess referred determine BPT. He categorize examine exemplary plants category, and, after weighing considering 304, define obvious industry.15 Necessarily, diminished, forbid most pollution-prone segment industry, measuring up average performance." So understood, 18 put matter another way, conclusion imposed worth gained meeting limits. grant because cannot him, recalculation costs, inconsistent scheme judgment Administrator.16 19 terms implemented considers suggest determinant. where If show situation, compliance, range then receive could standard.17 situations, acknowledgment without full current practices, refer. Insofar determined practice incomplete. capability, character: simply compliance force displacement calculations performed, incomplete unexpected effects, happened fall operator, rather might better off. 20 Because intended reduce necessarily technology. achieved, these borne eliminated. view, otherwise valid dischargers undermine operative III 21 Administrator's present amply persuades us capability.18 22 indication reach language. statement House managers described "not upgrading over 'best technology.' Leg.Hist. 232. Conference Report noted date applied Similarly, Senate action emphasized purposes avoid imposing "Administrator controls plant single community." 170. 23 restrict understanding hardships impose. Prior passage before report jointly prepared Commerce Department, Council Quality industry.19 That estimated 200 300 closings caused Comments debate explicit: "There doubt suffer disruptions economy efforts; many marginal forced close." 1282 (Sen. Bentsen).20 explained follows: 24 "If determines he go business requirements, clearly expect interim reflect fact available' June 30, 1977." 231. 25 respond foreseen making room impact. fact, possibility specifically rejected: 26 "The alternative [to loan program] waiving strict hardship shown. But approach giving grounds long ago shown risky course: too often, tool used powerful political interests so exemptions timetables filmsiest [sic] pretenses meaningless. short, variances, exceptions cleanup rule, meaning tragic delay stopping destruction environment." 1355 Nelson). 27 Instead added address problem hardship. 28 made low-cost loans small businesses help them improvements. 898, amending Small Business 636. Administration "to make assist concerns concern likely injury assistance." 153. Senator Nelson, offered amendment providing loans, saw dangers felt necessary.21 Several Congressmen program closings: "It smaller hit hardest laws their enforcement. class demands Without assistance, extinction." 1359 McIntyre).22 29 employee protection added, authority investigate plant's claim cut back production close down 507(e), 890, 1367(e).23 purposes: constantly monitor rules threats create pressure relax rules.24 Representative Fraser 30 "[T]he public hearing enforcement water-control relocate shut operations. I think companies excuse change operations going anyway. kind gives whole antipollution effort bad name causes great deal stress strain 659. 31 provision, assurance inquiry facts behind threat. concludes "[n]othing subsection construed modify withdraw order chapter." 1367(e). 32 see it, anticipated cause question what thinks appropriate process; regulations." Du Pont, U.S., 138, 980. IV now commonplace "when faced construction, deference officers agency charged administration." Udall Tallman, 380 16, 85 792, 801, 616 (1965).25 occasion adequacy provision. believe mandate. 34 rejecting relied mistaken conception erroneously believed affordability.26 permitted reasonably decreased afforded once minimal expressed reached.27 35 conclude, judgments 36 Reversed. 37 POWELL part decision cases. published 42 Fed.Reg. 21380 seq. adopting 40 CFR Part 434. 35843 436. reads "In forth section, account information collect, develop solicit (such size plant, raw materials, manufacturing processes, products produced, treatment available, costs) affect subcategorization established. data result, adjusted An interested person submit evidence Regional (or State, NPDES permits) related guidelines. On information, State) written finding facility Development Document. found exist, establish less herein, extent dictated factors. Such Agency. approve disapprove specify initiate proceedings revise See 434.22 (1980) (coal preparation plants); 434.32 (acid mine drainage); 434.42 (alkaline 436.22 (crushed stone) 436.32 (construction sand gravel). actions brought 509(b)(1)(E), which, 1369(b)(1)(E), courts appeals jurisdiction approving promulgating 1311 title. Plaintiffs three producers trade association. producers, association, citizens' associations, Commonwealth Pennsylvania. Stone, vacated Coal, "Thus own national guideline x times setting not, alleging financial status limitation." 43 50042 (1978). 844, 1311(c), allows "upon "point source" "any discernible, confined discrete conveyance, discharged." 502(14), 1362(14) ed., III). Throughout "Administrator" EPA. sustained Amendments 1972, second-stage 1983. deadline extended Clean 91 1567. Depending nature pollutant, falls 1984, 1987. replaced new conventional [BCT]," so-called "conventional 1311(b)(2)(E) distinction BCT relevant presented here. Muskie, principal sponsor "limited cost-benefit analysis" employed being "limit wholly proportion achieving reduction. Remarks Muskie reprinted Legislative History 1972 (Committee Print compiled Committee Public Works Library Congress) Ser. 93-1, p. 170 (1973) (hereafter Leg.Hist.). 304(b)(2)(B) lists "cost" BAT, Establishment programs authorized 402(b), 1342(b) At present, States covered territories operate programs. pre-enforcement "premature," n.19, 975, n.19. petition case, argued reviewing clause regulation discharger's abandoned agree whatever true time premature definitive 44847-44848, (1978); 44 32893-32894 (1979). cf. n.25, infra. District Columbia reached identical context paper mills: elapsed briefed enough indicia Agency's attitude accumulated administration anything 'a speculation.' 330, 1032 (1978) (citation omitted). proper twofold test articulated Abbott Laboratories Gardner, 387 136, 149, 87 1507, 1515, 681 (1967), evaluating ripeness administrative action. "fit" judicial decision, involves law: properly variances. failure "hardship" parties. thousands throughout country-about 4,800 crushed-stone 6,000 facilities, involved associations. resolution continue exist others funding budget controls. They left speculate them. EPA: "a ruling advance impede Act." Brief Petitioners 21, n.17. Moreover, supra, contain valid. definitively stated ground 509(b)(1)(E) pursuant 301, section. Since integral regulation, scope renders invalid Pont. Finally, invalid, while Weyerhaeuser, upheld yet settle controversy time. reasons, ripe review. said "[was no] radical difference mechanism impose 198[7] deadlines" "there 301 304 play role limitations." 127, 974. like dealt power procedures employ. suggestion, nor been, content. follows inference drawn issuing permitting depart Indeed, recognized designed 121, 971, 974, Had thought governed postpone day, scope. 301(c). Also, pollutants," reflects "national goal" 301(b)(2)(A) "eliminating aim limitation; modest step goal. regarded falling goal, frame neither subsequent measure. defines performance sizes, ages unit processes subcategory. subcategory, plants." 39 6580 (1974). Effluent Guidelines Div., Document Mineral Mining Processing Point Source Category 409 (1979) 225 Support 169-170 (remarks Sen. Muskie); id., 231 Rep. Jones). fail tension calculation particularized when argue promulgate industrywide analogy capability/effluent balancing well precluding effectively precludes "total costs" rely Jones cost" 304(b)(1)(B): "internal, external potential unemployment, dislocation rural area development community, area, region." Unless considered, argued, impossible closing. merit respondents' contention, supports hold discloses "fundamentally different" rather, included consideration. makes regardless reject. nonuniformity attribute much weight passages points, express desire expectation "each polluter achieve nationally practicable' later 162 (statement Muskie). also, e. g., 170; 302, 309 (Conference Report); 787 (Report Works). exception individualized source: "No excused Act's [and] instead limit 32893 Therefore, expressions intent "all" argument. Quality, Dept. Commerce, Economic Impact (Mar. 1972). 156, 523. remarks quoted n.22, quotation above. Harrington ("No wishes legislate irresponsibly drive sincerely wish abide who, economy, close. $800 million completely adequate. start," 450). 507(e) pertinent part: conduct continuing evaluations loss shifts issuance chapter, including, appropriate, investigating threatened closures allegedly resulting order. Any discharged laid-off, lay-off alleged results chapter investigation matter. [T]he findings discharge, lay-off, discrimination recommendations appropriate. report, findings, public." 654-659. Abzug provision: "This get look effects legislation this, thus place remedial ameliorate effects." 658. Miller "some especially communities single, older pending bill," opposed addressed systematically Ibid. contend consistently interpreted instance applications. 44846-44848 response 1351 1976), steam electric generating subject court's argument Power, 1359, relies Stone. 123. situations identical, Mining, supra n.15, 438, illogical former. "close 1979 allowed 1983." 124. assumes, though met, assumption rejects, 27, questionable light history. ("This [§ 301(c)] (Rep. Jones, chairman Conferees)). suggested contradiction accordingly unlikely appear. event, minor significance facial validity provisions. find contention implicitly passed amendments primarily discussion document Transportation, Case Law FWPCA (Comm. 1977). notes United way indicates correct interpretation. 28.

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