Document: 478 U.S. 221 106 S.Ct. 2860 92 L.Ed.2d 166 JAPAN WHALING ASSOCIATION and Japan Fisheries Association, Petitionersv.AMERICAN CETACEAN SOCIETY et al. Malcolm BALDRIGE, Secretary of Commerce, al., Petitioners v. AMERICAN Nos. 85-954, 85-955. Argued April 30, 1986. Decided June Syllabus The International Convention for the Regulation Whaling (ICRW) included a Schedule regulating whale harvesting practices member nations (including United States Japan) setting harvest limits various species. It also established Commission (IWC) authorized it to set quotas. However, IWC has no power impose sanctions quota violations, any country may file timely objection an amendment thereby exempt itself from obligation comply with limit. Because IWC's inability enforce its own in effort promote enforcement quotas by other international fishery conservation programs, Congress enacted Pelly Amendment Fishermen's Protective Act 1967, directing Commerce (Secretary) certify President if nationals foreign are conducting fishing operations such manner as "diminish effectiveness" program. President, his discretion, then direct imposition on certified nation. Later, passed Packwood Magnuson Fishery Conservation Management Act, requiring expedition certification process mandating that, certifies that ICRW, economic must be imposed Executive Branch against offending After zero certain sperm whales ordered 5-year moratorium commercial whaling begin 1985, filed objections both limitations thus was not bound thereby. 1984 concluded executive agreement whereby pledged adhere cease 1988, agreed would under either or complied pledges. Shortly before consummation agreement, several wildlife groups suit Federal District Court, seeking writ mandamus compel Japan, court granted summary judgment groups, concluding taking excess diminished effectiveness ICRW. immediately violation quota. Court Appeals affirmed. Held: 1. political question doctrine does bar judicial resolution instant controversy. courts have authority construe treaties agreements interpret congressional legislation. challenge Secretary's decision presents purely legal statutory interpretation. Judiciary's constitutional responsibility statutes cannot shirked simply because significant overtones. Pp. 229-230. 2. Neither nor required refusing abide secure certainty Japan's future compliance program through rather than rely possibility produce same better result, is reasonable construction Amendments. 231-241. (a) Under terms Amendments, neither permitted until determines "diminishes Although promptly make decision, there definition words specification factors should consider making entrusted him alone. language automatically regardless circumstances nation fails conform Schedule. 231-234. (b) Nothing legislative history addresses nature duty requires every departure scheduled whaling. subsequent shows had intention require program, used phrase give range discretion. designed remove discretion imposing once been made, specifically retained identical standard Amendment, indicate Secretary, circumstances, each Schedules. 234-241. 247 U.S.App.D.C. 309, 768 F.2d 426, reversed. WHITE, J., delivered opinion which BURGER, C.J., POWELL, STEVENS, O'CONNOR, JJ., joined. MARSHALL, dissenting opinion, BRENNAN, BLACKMUN, REHNQUIST, joined, post, p. 241. Arnold I. Burns, New York City, petitioners No. Scott C. Whitney, Washington, D.C., 85-954. William D. Rogers, respondents. Justice WHITE Court. 1 In these cases, we address whether, what referred cases 85 Stat. 786, amended, 22 U.S.C. § 1978; 90 337, 16 1821 (1982 ed. Supp. III), country's annual exceeds Convention. 2 * For centuries, men hunted order obtain food oil, which, turn, can processed into myriad products. at one time harrowing perilous profession, modern technological innovations transformed routine form fishing, allowed multifold increase harvests worldwide. 3 Based concern over effects excessive whaling, 15 formed (ICRW), Dec. 2, 1946, 62 1716, T.I.A.S. 1849 (entered force Nov. 10, 1948). ICRW "provide proper stocks possible orderly development industry," id., 1717, today serves principal mechanism promoting populations. See generally Smith, Commission: An Analysis Past Reflections Future, Nat. Resources Law. 543 (1984). founding ICRW; joined 1951. 4 To achieve purposes, inter alia, regulates sets Art. I, 1723-1727. addition, (IWC), implements portions amend new III, 1717-1718; V, 1718-1719. supra, 547-550. binding members accepted three-fourths' majority vote. 1717. Convention, however, violations. IX, 1720. Moreover, limit unless withdrawn. All nonobjecting countries remain amendment. 5 1967. 1978. Principally intended preserve protect North American Atlantic salmon depletion Danish fishermen ban Northwest Fisheries, protected well. 117 Cong.Rec. 34752 (1971) (remarks Rep. Pelly); H.R.Rep. 92-468, 6 (1971), U.S.Code Cong. & Admin.News 1971, 2409. directs "nationals country, directly indirectly, diminish . ." 1978(a)(1). Upon certification, Treasury prohibit importation fish products 1978(a)(4). decline import prohibitions. enactment five times different engaging "diminish[ed] 95-1029, 9 (1978), 1978, 1768; 125 22084 (1979) Oberstar). None certifications resulted President. able use threat discretionary commitments nations. 7 "the served useful function quietly persuading decisions bodies," 9, pp. 1768, 1773, grew impatient Executive's delay refusal sanctions. 22083 Murphy); As 1801 seq. III). This "periodically monitor activities affect [international programs]," 1978(a)(3)(A); "promptly investigate activity cause .," 1978(a)(3)(B); conclude; reach respect to; [that] investigation." 1978(a)(3)(C). 8 rectify past failure authorized—but required—under removes this element mandates trade diminishes Whaling," 1821(e)(2)(A)(i), State reduce, least 50%, nation's allocation within States' zone. 1821(e)(2)(B). when nation, did alter initial process, except expedition. provided certificate purposes Amendment. 1821(e)(2)(A)(i). 1981, Western Division stock Northern Pacific whales. next year, 1985-1986 season last 1990. 1982, acted grant request 2-year respite—for 1982-1983 1983-1984 seasons—from earlier banning 10 1981 1982 moratorium, limitation. Nonetheless, 1984-1985 near, apparently recognized could continued exceed 11 Following extensive negotiations, November 13, 1984, exchange letters between Charge d'Affaires Commerce. App. Pet. Cert. 85-955, 102A-109A. Subject implementation requirements,1 1988. Id., 104A-106A. return after consulting Commissioner IWC, determined short-term continuance specified level limited coupled promise discontinue all "would Whaling, program." 107A. Accordingly, informed so long pledges, 104A. 12 Several days groups2 compelling Japan.3 view respondents 604 F.Supp. 1398, 1411 (DC 1985). Thereafter, Minister Foreign Affairs perform second condition agreement—withdrawal moratorium—provided obtained reversal Court's order. 116A-118A. 13 A divided 426 (1985). Recognizing Packwood-Magnuson Amendments define specific looked Amendments' concluded, Japanese called Secretary. We certiorari, 474 1053, 787, 88 766 (1986), now reverse. II 14 first petitioners' contention present actions unsuitable review they involve relations federal court, therefore, lacks command official, dishonor repudiate agreement. Relying doctrine, quoting Baker Carr, 369 186, 217, 82 691, 710, 663 (1969), argue danger "embarrassment multifarious pronouncements departments question" bars disagree. carefully pointed out matter touching politics question, 209, S.Ct., 706, more specifically, "error suppose case controversy touches lies beyond cognizance." 211, 707. excludes those controversies revolve around policy choices value determinations constitutionally committed halls confines Branch. Judiciary particularly ill suited decisions, "courts fundamentally underequipped formulate national policies develop standards matters nature." ex rel. Joseph Cannon, 206 405, 411, 642 1373, 1379 (1981) (footnote omitted), cert. denied, 455 999, 102 1630, 71 865 (1982). plainly held, agreements, goes without saying interpreting legislation recurring task courts. evident determine scope upon calls applying traditional rules construction, analysis particular facts presented below. cognizant interplay conduct Nation's relations, recognize premier role play field. But Constitution, characteristic roles statutes, shirk merely our conclude, justiciable controversy, turn merits arguments.4 III 17 issue us necessary hence reject Appeals' holding respondents' submission mandatory whenever allowable take 18 makes determination "are clear but statute of" specify Specifically, state forthcoming Schedules, understand do so. Had otherwise, simple say deliberate limits. 19 Here, do, season. accordingly breach obligations continuing whales, part scheme permit opt Schedules were adopted objections. consultation Scientific Committee opinions, serve ends accept pledge four years risk Japanese. event, made assigned 1985 coastal seasons he otherwise empowered make. 20 course, act contrary will exercised bounds Constitution. If spoken precise intent clear, end matter. Chevron U.S.A. Inc. Natural Defense Council, Inc., 467 837, 843, 104 2778, 2781-2782, 81 694 below concede, contains direction might reasonably construed manner, withheld, despite departures violating duty, urging carte blanche ignore nothing about He argue, example, refuse reason connected aims goals flouting schedules who failed object schedule. insofar plain concerned, forbidden reasons given cases. Furthermore, silent ambiguous issue, longstanding practice defer "executive department's administer," Chevron, U.S., 844, 2782, sufficient clarity agency Congress. Riverside Bayview Homes, 121, 131, 455, 461, 419 Chemical Mfrs. Assn. 470 116, 125, 105 1102, 1107, 84 IV 21 Contrary views, find introduced 1971 extinction caused overfishing disregard (ICNAF), 1969 regulate control high seas fishing. 34751 Dingell). Denmark, Germany, Norway, ICNAF, their right quotas, limitations. correct primarily means restrictions three countries, fail establish automatic whose Both Senate House Reports detail "conservation nightmare" resulting Denmark's ICNAF quota; position "effectively nullified" salmon. S.Rep. 92-582, 4-5 (1971); 5-6 seen leading "eventual destruction valuable sports fish," "critical concern" Committees. 4; 5, 2412. There Committees viewed "diminish[ing] envisioned Reports, support quota.5 23 discussion floor Congressman supporters further demonstrates Congress' primary enacting stave off extermination well heavily fished species, regulated programs. 34752-34754 Reps. Pelly, Wylie, Clausen, Hogan). comments Senator Stevens, acting Chairman reporting only speaker bill during debate, effect. 47054 (if continue indiscriminately seas, become extinct). Testimony hearings supports conclusion program.6 24 Subsequent 1978 phrase, effectiveness," expanded coverage "to authorize embargo where endangered threatened species." 1772. extension premised success realized using convince preserving world's stocks. 9. 25 Report amendment, Merchant Marine addressed decision: 26 "The qualifies diminishing species depend case. general, serious enough warrant finding diminished. isolated, individual convention provision ordinarily section." 15, 1779. 27 statement Congress, exercise determining whether operation like IWC.7 28 held applies addition Trade Endangered Species Wild Fauna Flora (CITES), Mar. 3, 1973, U.S.T. 1087, 8249, unpersuaded. perceived two Conventions objectives. programs conserve stumptail macaque. 9-10 (1978). explains why noted purpose behind expand achieved 1773. 29 operate similar, often parallel, manner,8 applied inflexibly flexibly vis-a-vis Without strong evidence contrary, doubt significantly meanings adjoining paragraphs subsection. Sedima, S.P.R.L. Imrex Co., 473 479, 488-489, 3275, 3280-3281, 87 346 (1985); Morrison-Knudsen Constr. Co. Director, OWCP, 461 624, 633, 103 2045, 2050, 76 194 (1983). explanation original amendment: [is] diminished." 30 Enactment negate ICW's proposal Reports. enough, made—as put it, real teeth efforts," severe transgression rectified. 21742 (1979). 21743 Sen. Magnuson); Breaux); indication henceforth Schedules.9 31 scattered statements hinting per se rule advocated respondents, read whole, quite unconvinced clearly indicates, permissible reading statute, call immediate certification.10 V 32 conclude contradicted frustrated intent. U.S.A., 842-843, 2781-2782. goal furthered objective entering calling acceptance worldwide withdrawal quota, transition period additional Given lack express has, "a cessation contribute single development." Affidavit Baldrige, Brief Addendum 6A-7A. 33 necessarily standard. 34 Reversed. 35 whom REHNQUIST join, dissenting. 36 Since sought lead world, repeated commerce, preventing marine animals. I deeply regret again finally compelled obey law. believe misunderstood posed us, reached erroneous intense concern. therefore dissent. 37 began efforts "[w]hen shall fact President." That although scheme, provide response made. Rather, empowered, all. 38 latitude proved unsatisfactory. Between exceeded quotas—on occasions—the duly trespassing 168, 177.* promised compliance, believed obliged Yet basis assurances, option violators. 193, 195. 39 Unhappy President's sanction violations responded 1979 provides reduce 50 percent. 1821(e)(2). sanctions, seemed, improve providing definite consequence disregarding (statement 40 declined intentional Rather Amendment's certifying persistence operations, Baldrige negotiate domestic law promises reduced years. compromise, 1988 withdraw Arguing withhold action court. 1398 1985), Appeals, (1985), found certification. renders illusory finds exactly result prevent Amendment: compromise conservation. 41 devotes leaves room need certified. framed way parties most approach resolving dispute us. Indeed, focusing entirely account aspect cases: even himself taken type face never large numbers just opposite. Just months execution bilateral spawned litigation, wrote follows: 42 "It assumed everyone involved including nations, continues takes effect definitely share assumption since see logical ignores IWC. 43 "What am asking, Mac, you me assurance Department Packwood-Magnuson." 197 (letter 28, 1984). expressed agreement: 44 "You your letter widespread subject agree, attributable government IWC." 198 Packwood, July 24, 45 disputed described correspondence. borne apparent belief, later, threaten extract regarding Presumably believing factual predicate existed. 46 negligible understood trigger obligation, prefer penalty prescribed Significantly, argues here negotiated will—in future—protect effectively now. 43. regulation irrelevant affects punishing ones. manipulation punishment attempt evade genuine 47 rewrite removed penalties precisely action, previously led enact withheld norms. "compliance" less satisfactory exacted instances: instead settled And formal moratorium; "cease 1988," ante, 2865, "dismantle industry." important here, choice wise effective, authorized. deny consequences governed exclusively enumerated optional Thus, intentioned no, really is—a substitute how best respond quotas—there flouted authority. On alone, affirm Appeals. 48 separate raised majority's treatment address. peremptorily rejects nondiscretionary Asserting "we whaling," 12, ignored many citations forth authority, offered contradict them. 49 devoted voluminous excerpts establishing expected substantial always Illustrative following exchanges Members Richard A. Frank, Administrator National Oceanic Atmospheric Administration, discussing meaning preparation legislation: "Mr. McCLOSKEY. Now, seems left Treasury, determined, testimony indicate, importing non-IWC products, politely rules, change. [T]he act. 51 FRANK. correct. 52 53 BREAUX. understand, Mr. actually talking two-stage process. First, treaty, doing thing. violation, elimination imported and, has. 54 Hearings Policy Oversight Subcommittee Wildlife Environment 96th Cong., 1st Sess., 301, 322-323 (emphasis added). 55 Representative Breaux summarized administration's representations Congress: 56 "Apparently Dick Frank something being provision. Then get categories, supplying data meat [which Secretary]." 359 Breaux). 57 relied demonstrate violated lay sanction. speculates "it limits," 232. appeared understanding considered accord consistent interpretations Secretaries statute. became dissatisfied ever questioned. 58 sole offers unobjectionable proposition, Report, " '[a]n section.' Ante, ---- (quoting (1978)). indeed respectable argument some inherent de minimis nature. Such argument, relevance uncontested flagrant, consistent, substantial. gross norms benefit entire world represents core punish deter weapon rights waters. closer achieving passed. 59 ground identifying evading constraints Even focusing, does, distinct prevents utterly unsupported. troubled empowering officer Branch, sworn uphold defend laws States, pondered: "whether Leviathan endure wide chase, remorseless havoc; exterminated waters, whale, man, smoke pipe, evaporate final puff." H. Melville, Moby 436 (Signet 1961). details explained accompanying whalers up 400 triggering irrevocable place December effective 1, 104A-105A. fulfilled portion 11, 1984. 110A, 112A-114A. Second, interim 200 1986 1987 seasons. restrict species—under acceptable Japan—through 1986-1987 pelagic announce commitment terminate withdrawing 105A-106A. plaintiffs are: Cetacean Society, Animal Protection Institute America, Welfare Institute, Center Environmental Education, Fund Animals, Greenpeace Humane Society Welfare, Whale Center, Connecticut Defenders Wildlife, Friends Earth, Thomas Garrett, former requested (1) declaratory (2) permanent injunction prohibiting violate requirements 1401 Association Fishing (Japanese petitioners), representing private interests, intervene. suggestion available Respondents brought head agency, suit, essence, "compel unlawfully withheld," 706(1), alternatively, "hold unlawful aside arbitrary, capricious, abuse accordance law." 706(2)(A). "right action" expressly created Administrative Procedure (APA), states "final adequate remedy review," 704, behest "[a] person adversely affected aggrieved action." 702 ed., reviewable APA necessary; instead, absent convincing preclude review. See, e.g., Block Community Nutrition 340, 345, 2450, 2454, 270 (1984); Citizens Preserve Overton Park Volpe, 401 402, 410, 91 814, 820, 136 Abbott Laboratories Gardner, 387 136, 141, 1507, 1511, 681 (1967). avail themselves APA. constitute agency. 551(1); 820. action," formally appears "for court," lawful arise litigation. Next, sufficiently "aggrieved" agency's action: Sierra Club Morton, 405 727, 1361, 636 (1972), SCRAP, 412 669, 93 2405, 254 (1973), undoubtedly alleged "injury fact" watching studying harvesting, injury "zone interests" Data Processing Service Organizations, Camp, 397 150, 827, 184 (1970). Finally, point foreclose find, entitled pursue claims 92-582 'to accomplish President.' 319, (1985) explicit purpose, operative chosen purpose. section-by-section contained recites section existence operations. 5. These ministerial judgment. contend negligent unintentional tracks provisions (1971). testified "in flagrant itself." S. 1242 Oceans Atmosphere 92d Similarly, Donald McKernan, Special Assistant Coordinator Ocean Affairs, State, stated: "We anticipate invoke proposed needs met regime. "However, situations agree among having "Under legislation, consideration measures 97. detailed "dramatically demonstrate[d] negotiations." "In November, 1977, reported nonmembers IWC—Peru Korea—were March, subcommittee pending thorough documentation substantiation Ibid. approved though urge. CITES inclusion Appendices. CITES, Arts. II-IV, 1092-1097. two-thirds' vote Appendix include XV, 1110-1112. adopt regulations. contain analogous procedures Compare 1110-1112, 1719. Recent Development, Conservation—United Enforcement World Programs, Va.J.Int'l L. 511, 531-532 (1986). extent indicative intent, 96 311-312, 317 note '[a]ny [after 1986] deemed [act].' Quoted Comment, U.S.-Japanese Accord: Result Discretionary Loophole Geo.Wash.J.Int'l Econ. 577, 609, n. 220 opportunity mandate chose 1962 Tuna 1950, 64 777, 951 Eastern Licensing 972 implement Agreement. attention Acts discovered relevant, lend affirmative employed vest Citations "App." refer joint appendix Appeals; Solicitor General leave 475 1007, 1178, 89 296

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