Legal Document

462 U.S. 87 103 S.Ct. 2246 76 L.Ed.2d 437 BALTIMORE GAS AND ELECTRIC CO., et al., Petitionersv.NATURAL RESOURCES DEFENSE COUNCIL, INC. UNITED STATES NUCLEAR REGULATORY COMMISSION, Petitioners v. NATURAL INC., al. COMMONWEALTH EDISON COMPANY, Nos. 82-524, 82-545 and 82-551. Argued April 19, 1983. Decided June 6, Syllabus Section 102(2)(C) of the National Environmental Policy Act (NEPA) requires federal agencies to consider environmental impact any major action. The dispute in these cases concerns adoption by Nuclear Regulatory Commission (NRC) a series generic rules evaluate effects nuclear powerplant's fuel cycle. In rules, NRC decided that licensing boards should assume, for purposes NEPA, permanent storage certain wastes would have no significant (the so-called "zero-release" assumption) thus not affect decision whether license particular powerplant. At heart each rule is Table S-3, numerical compilation estimated resources used effluents released cycle activities supporting year's operation typical light water reactor. Challenges ultimately resulted Court Appeals, on petition review final version were arbitrary capricious inconsistent with NEPA because had factored consideration uncertainties surrounding zero-release assumption into process such manner could potentially outcome plant. Held: complied its or within meaning § 10(e) Administrative Procedure (APA). Pp. 97-108. (a) assumption, which was designed limited purpose individual decisions but single figure bounds reasoned decisionmaking required APA. NRC, statement announcing S-3 rule, summarized long-term wastes, noted probability intrusion small, found evidence "tenable favorable" an appropriate site be found. refers interested persons staff studies discuss greater detail. circumstances, NEPA's requirements disclosure impacts decisions. It task this determine what it reached if been NRC. Court's only considered relevant factors articulated rational connection between facts choice made. Under standard, context as whole, capricious. 97-106. (b) inappropriate cast doubt proceedings simply minor ambiguity language earlier health effects, socioeconomic cumulative impacts, where there prevented party from making full presentation desired ever affected 106-108. --- U.S.App.D.C. ---, 685 F.2d 459, reversed. David A. Strauss, Washington, D.C., petitioners. Timothy B. Atkeson, respondents. Justice O'CONNOR delivered opinion Court. 1 Act, 42 U.S.C. 4332(2)(C) (NEPA), action.1 As part rulemaking power plants, (Commission)2 We conclude (APA), 5 706.3 2 * operating light-water plant4 includes offsite necessary provide plant ("front end" activities), dispose highly toxic long-lived generated ("back activities). Commission's plant's reactor.5 three versions contained similar values, although documentation has amplified during course proceedings. 3 first adopted 1974, after extensive informal 39 Fed.Reg. 14188 seq. (1974). This "original" later came described, declared reports statements costs "shall set forth" "[n]o further discussion shall required." Id., at 14191.6 original entry storing solidified transuranic high-level wastes,7 believed technology developed isolate environment. parties termed complete repository integrity assumption: reasonableness core present controversy. 4 Natural Resources Defense Council (NRDC), respondent cases, challenged issued under Vermont Yankee Power Plant. Appeals District Columbia Circuit affirmed S-3's treatment "front cycle, vacated remanded portion relating back end perceived inadequacies procedures. Council, Inc. 547 633 (1976). Judge Tamm disagreed procedures inadequate, concurred ground record waste inadequate support assumption. 658. Corp. NRDC, 435 519, 98 1197, 55 460 (1978), unanimously reversed Appeals' procedures, finding done all APA determining courts generally lack authority impose "hybrid" than those contemplated governing statutes. adequately supported administrative record, specifically stating court free agree disagree Tamm's conclusion pertaining APA, 706. 536, n. 14, S.Ct., 1207, 14. 6 While pending Court, proposed new "interim" proceeding adopt revised S-3. proposal explicitly acknowledged risks failure uncertain, suggested research resolve most near future. 41 45849, 45850-45851 After proceedings, promulgated interim March 1977. now stated remain buried therefore effect App. Pet. Cert. 257a. Like predecessor, 255a. NRDC petitioned challenging faulting failing health, cumulative, activities. stayed while awaiting Yankee. 1978, amended clarify covered litigated 43 15613 (1978). 7 1979, following hearings, "final" rule. 44 45362 (1979). expressly supplemented about socioeconomic, aspects also continued adhere escape harm environment once sealed. uncertain remote possibility might enter repository, dissolve radioactive materials, transport them biosphere. Nevertheless, predicted bedded-salt maintain integrity, "tentative 45368. determined undue optimism selection perfect performance offset cautious reflected other parts Table, gases spent initial 20 year period remained open, ibid, did significantly reduce overall conservatism Table. 45369. 8 rejected option expressing permitting boards, performing analysis uncertainties. saw advantage reassessing significance proceedings: 9 "In view regarding disposal, question then arises can concluded so modified. On reactor level, deal issues peripherally, sees having repeatedly weigh themselves use cost-benefit balancing. properly dealt choosing values go concludes, exist, reasonable base believes probabilities favor, i.e., sites will effective isolation biosphere." 45362, 45369 10 State New York consolidated petitions challenges rules.8 By divided panel,9 agency If taken poses risk, may intent, represents self-evident error judgment reveals itself acknowledged, surrounded uncertainty. 11 Alternatively, characterized device whereby Commission, rather sole responsibility considering risk disposed success. recognized common Indeed, balance benefits produce "net value." These evaluations together case-specific key requirement however, disclose actual ensure process, including both brings bear take actions accordance uncertainties—which insignificant outweighed benefits—from affecting decision. requiring ignore are clear 12 granted certiorari. ----, 443, 74 599 (1982). reverse. II 13 acutely aware extent Nation rely source energy important sensitive issue. Much debate focuses development generation facilities proceed face their Resolution fundamental policy questions lies, Congress delegated authority, well state legislatures and, ultimately, populace whole. assigned limited, albeit important, reviewing action conformed controlling we emphasized our encounter very "[a]dministrative aside context, every other, substantial procedural substantive reasons mandated statute . ., unhappy result reached." Yankee, U.S., 558, 1219. 14 issue here Act. twin aims. First, "places upon obligation aspect action." supra, 553, 1216. Second, ensures inform public indeed process. Weinberger Catholic Action Hawaii, 454 139, 143, 102 197, 201, 70 298 (1981). enacting require elevate over considerations. See Stryckers' Bay Neighborhood Karlen, 444 223, 227, 100 497, 499, 62 433 (1980) (per curiam). Rather, "hard look" consequences before taking Kleppe Sierra Club, 427 390, 410, 21, 96 2718, 2730, 49 576 role disclosed Citizens Preserve Overton Park Volpe, 401 402, 415-417, 91 814, 823-824, 28 136 (1971). 15 Rule here, favor likely develop methods store leakage challenge decide determination, F.2d, 478, 96, seriously here. recognized, geological, chemical, physical data relied prediction based, part, assumptions involve Again, one suggests trivial potential time proves wrong. confronting issue, though, concerning sufficient decision.10 16 made careful NEPA. sheer volume impressive.11 Of far importance, Statement Consideration shows digested mass material risks. 45367-45369 summarizes uncertainty repositories, infiltrate diverse geologic faulting, meteor strike, accidental deliberate man. plasticity salt tend heal some types intrusions. detail.12 Given statement, cannot said ignored failed 17 enact course, contemplate abstract exercise. intended incorporated agency's deciding pursue faulted action, allow "tip balance" general proposition, determination must undertake think, erred concluding standard. 18 clear, does internal structure. Here, chosen generically through evaluation. method clearly conducting hard look 535, 13, 13. much specific, plant, regardless attributes, create additional stored repository. efficiency consistency furthered without needless repetition litigation subject event. Ecology AEC, 492 998, 1002, (CA2 1974) (Friendly, J.) (quoting Conference Proposed Recommendation 73-6). 19 discretion "plugged into" nevertheless violated factor precluding decisionmakers it. affix zero value violate acted arbitrarily capriciously insufficient assessing capricious, crucial place context. Three particularly important. First repeated emphasis zero-risk assumption—and, indeed, rule—was purpose. intention supplement explanatory narrative.13 select disposal criteria. A separate comprehensive programs undertaken serve broader purposes.14 us, attempt possible disposing waste. chose analyze intensively probable method—burial several hundred meters below ground—and "estimate conservatively, based best available information analysis." 45363 (1979).15 evaluated isolation. assessed relation 21 entire risk-averse estimate assumed canisters rod cladding corroded closed volatile materials environment.16 improbability sealing, represented conservative (i.e., inflated) impacts. unreasonable counteract post-sealing releases balancing overestimate pre-sealing releases.17 magnify line item beyond larger 22 Third, remember predictions, area special expertise, frontiers science. When examining kind scientific opposed simple findings fact, deferential. See, e.g., Industrial Union Department American Petroleum Institute, 448 607, 656, 2844, 2871, 65 1010 (plurality opinion); id., 705-706, 2895-2896 (MARSHALL, J., dissenting). 23 With guides mind, find already detailed areas discussed why they insubstantial reports, documents contain more expanded involved effects. recognize rigorous verification repositories possible, suggest extrapolation past experience identify events failure, events, calculate resulting consequences. NUREG-0116, 4-86.18 modelled tracing flow contaminated water, insignificant. 4-89 4-94. Ultimately, 24 "[t]he radiotoxic hazard index analyses modeling indicate improbable small. 25 Risks (probabilities times consequences) inherent long term geological small." 2-11. 26 views Commissioners Bradford Gilinsky. expressed dissatisfaction yet Commissioner responsible working appear conservatism. 45372 Gilinsky critical confront directly reactors problems hide affirmative behind table numbers. He "waste confidence proceeding," see note vehicle thorough evaluation Government's commitment solution. For "virtually inconceivable" license, "naive" notion tip others. 45374 27 sum, think assumption—a decisions—is decisionmaking. we, Commissioners, reached. Our Bowman Transportation, Arkansas-Best Freight System, Inc., 419 281, 285-286, 95 438, 441-442, 447 (1974); supra. III noted, 5, describes technical terms. convert description tangible human variables. "the contribution forth [and] 14188, 14191 13803, 13806 (1977). Since mention declaration preclude discussion. addition projected 45371 (1979).19 29 held EIS Metropolitan Edison Co. People Against Energy, 1556, 75 534 (1983); (1976); 40 CFR §§ 1508.7, 1508.8 basis, precluded board 30 true, pointed out explaining modified "at least initially apparently interpreted cutting off" effluent releases. 45364 But even notice accompanying "to basis evaluating reactor," 14190 (1974), suggesting assess And when, Atomic Safety Licensing Appeal Board desirability discussing comparing coal re Tennessee Valley Authority (Hartsville Units), N.R.C. 92, 103, 52 (1977), allowed introduce Cf. Public Service Company Indiana, (Marble Hill Generating Station), 179, 187 31 Respondents case excluded admonition applies equal force here: 32 "[W]hile true places still incumbent intervenors who wish participate structure participation meaningful, alerts intervenors' position contentions." 33 short, totally made, when desired, IV 34 foregoing reasons, 35 Reversed. 36 POWELL took cases. APPENDIX TO THE OPINION OF COURT 37 --Table Uranium Fuel Cycle Data1 38 [Normalized model LWR annual [WASH-1248] reference [NUREG-0116]] Maximum per considerations Total 1,000MWe USE Land (acres): Temporarily comitted2100 Undisturbed 79 Disburbed Equivalent 110 MWe coal-fired Permanently committed Overburden moved (millions MT) 2.8 Water gallons): Discharged air 160 = percent 1,0000 45 cooling tower. bodies 11,090 ___127 46 11,377 <4% 1,000 LWr 47 once-through cooling. Fossil fuel: Electrical 48 (thousands MW-hour) 323 <5% output. 118 consumption 50 gas 51 scf) 135 <0.4% EFFLUENTS - CHEMICAL (MT) Gasses (including entrainment):3 SOx 4,000 NOx41,190 emission 53 year. Hydrocarbons CO 29.6 Particulates 1,154 Other gases: 54 F .67 Principally UF6 production, enrichment, re-processing. Concentration range 56 standards level 57 health. HCl .014 Liquids: 58 SO-4 9.9 From fabrication, 59 reprocessing steps. 60 NO-3 25.8 Components constitute 61 adverse 63 Fluoride 12.9 dilute concentrations receive 64 Ca++ 5.4 dilu- Cl- 8.5 tion receiving 66 levels 67 Na+ 12.1 permissible standards. THe constituents re- 68 NH3 10.0 quire dilution are: 69 Fe .4 600 cfs. NO3 20cfs. cfs.[109-Continued.] 71 Tailings solutions 72 240 mills 73 environments. Solids 91,000 EFFLUENTS-radiological (curies) Gases entrainment): Rn-222 Presently reconsideration 77 Commission. 78 EFFLUENTS-RADIOLOGICAL-(Continued) 80 (CURIES) Ra-226 .02 Th-230 .034 Tritium (thousands) 18.1 C-14 Kr-85 400 81 Ru-106 .14 plants. I-129 1.3 I-131 .83 82 Te-99 Fission products 83 transuranics .203 84 daughters 2.1 milling included 85 tailings liquor returned 86 effluents, therefore, .0034 production. .0015 88 Th-234 .01 fabrication plants concentration 89 total processing 90 LWR. activation 5.9 x 10-6 (burned site): high 92 (shallow) 11,300 9,110 Ci comes low 93 1,500 decontamination 94 decommissioning land burial facilities. ground. Approximately 97 conversion storage. No 99 TRU HLW (deep) 1.1 107 Buried Federal Repository. Effluents Thermal (billions British thermal units) 4,063 Transportation (person-rem): Exposure workers 101 2.5 Occupational exposure (person-rem) 22.6 management. appears background matter addressed that, effect, read specific However, address include described estimates Radon-222 uranium Technetium-99 management Data given "Environmental Survey Cycle," WASH-1248, 1974; Reprocessing Waste Management Portion NUREG-0116 (Supp. WASH-1248); "Public Comments Task Force Responses Regarding NUREG-0216 Impacts Spent Radioactive Management, Docket RM-50-3. contributions reprocessing, transportation maximized either two cycles (uranium recycle). excludes irradiated S-4 51.20(g). steps columns A-E S-3A WASH-1248. temporarily prorated years, temporary accrues services years. Estimated combustion equivalent generation. 1.2 natural 51.20(e)(1982) provides: "The authorizes directs fullest Government recommendation report proposals legislation quality environment, official on— (i) (ii) avoided implemented, (v) irreversible irretrievable commitments implemented." Energy (AEC). abolished Reorganization 5801 seq., transferred regulatory functions (NRC). "Commission" refer predecessor AEC. 706 states part: shall— (2) hold unlawful findings, conclusions be— (A) arbitrary, abuse discretion, otherwise law." uses ordinary (H2O), heavy (D2O), remove heat core. D. Considine G. Considine, Van Nostrand's Scientific Encyclopedia 1998, 2008 (6th ed. 1983). bulk United States reactors. 1980 Annual Report 6. example, tabulated acres activities, amount discharged fossil consumption, chemical radiological (measured curies), normalized 1000 megawatt reprinted Appendix, infra. 1954, Stat. 919, amended, 2011 utility seeking construct operate obtain permit construction stage project. examined application three-member conducts adjudicatory hearing reaches appealed itself. appeals. procedure occurs except need contested 526-527, 1203, High-level radioactive, produced liquid form reprocessed. Transuranic toxic, nuclides heavier fuel. 466, 11. indicated appeals additions consolidate rules. 537, 1208, Consistent direction, stipulated reviewed whole record. 471, 39. Bazelon wrote Wilkey joined section York's argument waste-disposal calculation release economically infeasible. That us. filed dissenting Edwards Sixth Circuit, sitting designation, sections Bazelon's opinion, concurring economic infeasibility 481, 118, became increasingly candid acknowledging underlying disposal. Because same versions, 8, propriety Rule. leave another day concern whose supplements 1100 pages prepared direct testimony, rounds participants responses, 1200 oral participants' rebuttal statements, 137-page board, written participants, cycle: WASH-1248 (April 1974); WASH-1248) (October 1976) (hereinafter cited NUREG-0116); Portions (March 1977). do us Impact (EIS) incorporates discloses gives brief descriptions encapsulates. There relies too heavily addressing directly. Although binding independent worth noting guidelines Quality "care remains essentially self-contained instrument, capable being understood reader cross reference." 20550, 20554 (1973). regulations incorporation "imped[e] content briefly described." 1502.21 "requires scatter damage among various documents," 484, declined invalidate describe treat like decline strike down deny cross-reference. referred documents, narrative accompany EIS, alleviate incorporation. 1981, submitted comment amendment 15154 narrative. response Minnesota 602 412 (CADC 1979), initiated confidence" recent likelihood safely solution, accomplished. 61372 46353 recently enacted 1982, Pub.L. No. 97-425 (Jan. 7, 1983), up schedule identifying locations funding mechanism repositories. Protection Agency future 58196 assumes plutonium recycled. presidential directive, terminated recyling mixed oxide 45369, Mixed Oxide Fuel, 861 (1977); 711 increased overestimating consumed reactor, underestimating electricity filters protective devices. Conclusions Recommendations Hearing Effects Cycle, Rm 50-3, 282a-293a. Additionally, analyzes uranium-recycle no-recycle system, conservatively lists, effluent, highest expected 45850 against value" 482. reason net cost. using approach size hit square kilometer earth's surface trillion Delaware Basin southeast Mexico (assuming repository) occur billion 4-87. burst megaton weapon, currently deployed, breach Ibid. problem alleviated decreasing density recognition suggestion increase reflect acreage assumptions. just

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