Legal Document

452 U.S. 490 101 Supreme Court Reporter 2478 69 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 185 AMERICAN TEXTILE MANUFACTURERS INSTITUTE, INC., et al., Petitioners,v.Raymond Judge DONOVAN, Secretary of Labor, Department al. NATIONAL COTTON COUNCIL OF AMERICA, Petitioner, versus Raymond Nos. 79-1429, 79-1583. Argued Jan. 21, 1981. Decided June 17, Syllabus Section 6(b)(5) the Occupational Safety and Health Act 1970 (Act) requires Labor (Secretary), in promulgating occupational safety health standards dealing with toxic materials or harmful physical agents, to set standard "which most adequately assures, extent feasible, on basis best available evidence" that no employee will suffer material impairment health. 3(8) defines term "occupational standard" as meaning a which conditions, adoption use practices, means, methods, operations, processes, "reasonably necessary appropriate" provide safe healthful employment places employment. 6(f) provides Secretary's determinations "shall be conclusive if supported by substantial evidence record considered whole." The Secretary, acting through Administration (OSHA), promulgated so-called Cotton Dust Standard limiting exposure cotton dust (an airborne particle byproduct preparation manufacture products), induces byssinosis, serious potentially disabling respiratory disease known its more severe manifestations "brown lung" disease. Estimates indicate at least 35,000 employed retired mill workers, 1 12, suffers from form 100,000 workers some sets permissible levels for different operations industry. Implementation depends primarily mix engineering controls, such installation ventilation systems, work practice special floor-sweeping procedures. During 4-year interim period permitted full compliance Standard, employers are required respirators employees transfer unable wear another position, available, having level meets Standard's limit, loss earnings other rights benefits. OSHA estimated total industrywide cost $656.5 million. Petitioners, representing industry, challenged validity Appeals, contending, inter alia, demonstrate reflects reasonable relationship between costs benefits associated OSHA's determination "economic feasibility" was not evidence, wage guarantee requirement beyond authority. Appeals upheld all major respects. It held did require compare benefits; Congress itself balanced mandate under § adopt protective feasible standard; economic feasibility whole. court also had authority employees' following because inability respirator. Held: 1. Cost-benefit analysis is is. Pp. 506-522. (a) plain word "feasible" "capable being done," thus directs issue assures health, limited only this done." In effect then, held, defined basic placing "benefit" worker's above considerations save those making attainment unachievable. Any based balancing strikes balance than struck would inconsistent command forth 6(b)(5). 508-512. (b) 3(8), either alone tandem 6(b)(5), does incorporate cost-benefit agents. Even phrase might construed contemplate benefits, specifically chose impose separate additional requirements issuance agents: it issued prevent feasible. To interpret imposing an overriding eviscerate 6(b)(5)'s "to feasible" requirement. P.p. 512-513. (c) Act's legislative history supports conclusion There indication whatsoever intended conduct own before toxic-material harmful-physical-agent standard. Rather, confirm meant rather "cost-benefit" when used former term, but shows understood create employers, yet working environment. 514-522. 2. Whether first instance find findings cannot said whole "misapprehended grossly misapplied" substantial-evidence test findings. 522-536. 3. has underlying promulgate respect who transferred position they respirator, failed make statement reasons related achievement goals. 536-540. 199 U.S.App.D.C. 54, 617 Federal Reporter, 2nd 636, affirmed part, vacated remanded. Robert Haw. Hawai‘i KFH45 A2 Bork, New Haven, Conn., petitioners. Kenneth S. Geller, Washington, D.C., respondent Marshall. George Cohen, unions. Justice BRENNAN delivered opinion Court. enacted assure so far possible every man woman Nation conditions. . ." 2(b), 84 Statutes-at-Large 1590, 29 Code KF62 651(b). authorizes establish, after notice opportunity comment, mandatory nationwide governing workplace. §§ 655(a), (b). 1978, (OSHA),1 dust, products, "constellation effects" "byssinosis." 43 Fed.Reg. 27352, col. 3 (1978). This one expressly recognized hazards led passage Act. S.Rep.No.91-1282, Page (1970), U.S.Code Cong. & Admin.News 1970, 5177, Legislative History 143 (Comm. Print 1971) (Leg.Hist.). 2 Petitioners these consolidated cases, interests industry,2 "Cotton Standard" District Columbia Circuit pursuant Act, 655(f). They contend Court, below, Standard. Respondents, two labor organizations,3 counter itself, should therefore do so. mandating enact eliminate significant risk impairment, subject constraints technological feasibility. AFL-CIO Marshall, 636 (1979). We granted certiorari, 449 817, 68, 66 19 (1980), resolve important question, presented decided last Term's Industrial Union Dept. American Petroleum Institute, 448 607, 100 2844, 65 1010 (1980),4 decide issues Standard.5 * Byssinosis, disease, caused inhalation dust.6 See 27352-27354 (1978); Exhibit 6-16, App. 15-22.7 Byssinosis "continuum disease," 27354, (1978), been categorized into four grades.8 form, byssinosis produces both subjective symptoms, chest tightness, shortness breath, coughing, wheezing, objective indications pulmonary functions. Id., chronic irreversible obstructive clinically similar bronchitis emphysema, can severely disabling. Ibid. At worst, true diseases including bronchitis, asthma, strain cardiovascular functions contribute death heart failure. 6-73, 72 ("there association mortality exposure"). One described increasing seriousness follows: environment; later, symptoms occur days week; eventually, continuous, even absence exposure." Atlantic Bouhuys, States, 15.9 4 While there uncertainty over manner progresses grades, likely prolonged contributes progression. cols. 6-27, 25; 11, 152. appears worker may suddenly contract grade without experiencing milder grades 41, 192.10 5 12 byssinosis.11 27353, 124, 347. Senate Report accompanying cited estimates active Leg.Hist. 143. study found 25% sample cotton-preparation yarn-manufacturing common prior current 27355, 6-51, 44.12 Other studies general prevalence byssinosis. See, e. g., Ct. App.J.A. 3683; Ex. 6-56, id., 376-385. 6 Not until early 1960's distinct hazard mills. supra, 3, Leg. Hist. 143.13 1966, Conference Governmental Hygienists (ACGIH), private organization, recommended dust14 "threshold limit value" 1,000 micrograms per cubic meter air (1000 ug/m3) averaged 8-hour workday. 27351, Government regulated 1968, Walsh-Healey 41 35(e), contaminant threshold values, applicable public contractors, included ug/m3 dust. 34 7953 (1969).15 Following adopted "established 6(a) 1593, provision designed immediate protection enactment statute promulgation permanent standards.16 7 1974, ACGIH, adopting new measurement unit respirable lowered previous recommendation 200 measured vertical elutriator, device measures particles 15 microns less diameter. 1, (1978).17 That same year, Director National Institute (NIOSH),18 669(a)(3), 671(d)(2), submitted (PEL) "should lowest case environmental concentration high 0.2 mg lint-free dust/cu m," dust.19 11; 56500, (1976). Several months published Advance Notice Proposed Rulemaking, 39 44769 (1974), requesting comments interested parties NIOSH matters. Soon thereafter, Textile Worker's America, joined North Carolina Public Interest Research Group, petitioned urging stringent PEL ug/m3. 8 On December 28, 1976, proposal replace existing federal standard, 655(b)(5). 56498. proposed contained elutriated segments suggested implementation strategy achieving relied short controls long term. 56506, invited submit written within 90-day period.20 9 comment period, conducted three hearings D. C., Greenville, Miss., Lubbock, Tex., lasted 14 days. participation widespread, involving representatives industry force, scientists, economists, industrial hygienists, many others. By time informal rulemaking procedure terminated, received 263 109 notices intent appear hearings. voluminous record, composed transcript oral testimony, exhibits, post-hearing briefs, totaled 105,000 pages. U.S.App.D.C., 65, F.2d, 647. final Standard—the instant case—on 23, 1978. Along reasons, occupied pages Register. 27350-27418 see Regulations 1910.1043 (1980). 10 establishes PEL's yarn manufacturing,21 750 slashing weaving 500 processes industry.22 1910.1043(c) These represent relaxation 11 depended systems,23 Full years, except establish infeasible. 1910.1043(e)(1). certain times, employees. 1910.1043(f). include monitoring exposure, medical surveillance employees, annual examinations, education training programs, posting warning signs. A specific challenge below PEL's, "no result transfer." 1910.1043(f)(2)(v). whole, determined represents "significant employees." 27350, "the significantly reduced" 27359, assessing risks reduction obtained particularly data showing strong linear 27355-27359; 29-55. 6-17, 235-245; 38D, 1492-1839. PEL, Grade 1/2 13% manufacturing sector. 13 interpreted protect against bounded 27361, rejected industry's alternative PEl manufacturing, produce agency technologically economically Although recognizing still cause nevertheless union "technological capabilities industry." 27359-27360. Similarly, part limitations Finally, "engineering massive expenditures industry,"id., 27360, 2, slashing. respects.24 claim consider give sufficient failing it. 70-72, 652-654. 652(8), 72-73, n. 83, 654-655, 83. Rejecting must proportionate costs, instead agreed interpretation limits 80-84, 662-666. "Congress agency" 655(b)(5), powerless circumvent judgment 81, 663. agency's 73-80, 655-662. affirm vacate part.25 II principal question cases whether determine bear Relying 655(b)(5) petitioners urge show addresses U.S., 639, S.Ct., 2863 (plurality opinion), light attaining reduction. Brief Number Pages 38-41.26 Respondents hand reduce feasible." Respondent 38; 26-27.27 debate, we turn language, structure, 16 starting point our language itself. Steadman SEC, 450 91, 97, 999, 1005, 67 (1981); Reiter Sonotone Corp., 442 330, 337, 99 2326, 2330, 60 931 (emphasis added), provides: 17 "The agents subsection, shall functional capacity regular dealt his life."28 18 their interpretations differ, agree contains critical purposes cases. respondents' statute. According Webster's Third International Dictionary English Language 831 (1976), means done, executed, effected." Accord, Oxford 116 (1933) ("Capable accomplished carried out"); Funk Wagnalls "Standard" 903 (1957) ("That performed effected"). Thus, "most health," is.29 718-719, 2902-2903 (MARSHALL, J., dissenting). 20 When engage analysis, clearly indicated face example Flood Control 1936, 33 701a: 21 "[T]he improve participate improvement navigable waters tributaries, watersheds thereof, flood-control whomsoever accrue excess lives social security people otherwise adversely affected." (Emphasis added.) 22 recent Outer Continental Shelf Lands Amendments 1347(b) (1976 ed., Supp.III), providing offshore drilling 23 safest technologies determines wherever failure equipment have safety, environment, where incremental insufficient justify using technologies." 24 statutes30 uses intending analysis. 710, 27, 2898, 27 Certainly ordinary meaning, articulate congressional intent. reject argument B 25 though construction, definition incorporates 652(8) 26 'occupational standard' reasonably appropriate employment." Taken alone, that, construed, engrafts standards, authorize need standing For does, subcategory could concluded criteria problems regulating them. 649, n.54, 2867, n.54 opinion). 28 Agreement petitioners' imposes Standards inevitably specified example, while forced choose point.31 believe terms countermand Adoption effectively write out decline render Congress' decision nugatory, thereby offending well-settled rule parts statute, possible, given effect. E. 339, 2331; Weinberger Hynson, Westcott Dunning, Inc., 412 609, 633-634, 93 2469, 2485, 207 (1973); Jarecki G. Searle Co., 367 303, 307-308, 81 1579, 1582, 859 (1961). any further " 'impute purpose paralyze what sought promote other.' 631, quoting Clark Uebersee Finanz-Korporation, 332 480, 489, 68 174, 178, 92 L.Ed. 88 (1947).32 Contract concededly crystal clear, support debates certainly nothing else concerned thought absolute impossible insisted goals capable accomplishment. Perhaps telling agent demonstrates conclusively fully aware real believed were doing business. relevant portions history. 30 Neither original bill, 2193, 91st Cong., 1st Sess. (1969), introduced Senator Williams, nor House H.R. 16785, Representative Daniels, provisions controlling 6-7 (Williams bill); 721, 728-732 (Daniels bill), although definitional section 3(8).33 Committee Education Daniels bill referred, reported amended section: 31 Welfare, reporting Williams virtually identical version, feasibly health." 242 (the numbered 6(b)(5)) added). addition offered Javits, explained amendment: 32 "As amendment setting standards. [as Committee], regardless feasibility, all." S.Rep. 91-1282, 58 5222, 197 added).34 Thus Senator's concern "absolute safety" consideration condition achievable. noted requirements," 7, 147, commented "[s]uch directed assuring, impaired .," ibid. amendments provision, resulting floor bill. Dominick, played prominent role process, Cong.Rec. 37631 526 (comments Sen. Javits); Cong.Rec., 37631, 527 Williams), continued read safety. He entire sentence struck, explaining: 35 "This inherently confusing unrealistic. ban occupations remains injury, life expectancy. occupations, present could, literally applied, close business nation. addition, 'adequately' 'feasibly' elimination danger prohibition occupation itself." Dominick 1054) original). 36 ensuing debate issue, reiterated "[i]t unrealistic attempt, [the Committee's 6(b)(5)] apparently utopia free hazards. Absolute impossibility. 37614 480.35 concluded: "Any administrator responsible enforcing faced choice. Either he forbid technical state art remove hazard, ignore Congress. 37614, 481-482. 37 efforts deleted. However, Senators version "agreeable all" became now 37622, 502. applicability "toxic agents," changed "health impairment" "material deleted reference "diminished expectancy." Significantly, left intact Instead assures," merely substituted feasible," emphasize operated 38 modifications made clearer absolutely environment achieved "prohibition itself," 367, address frivolous harms exist requirement, along satisfy concerns. "What trying bill—unfortunately, proper wording drafting—was say ought take steps practical atmosphere person's affected. Unfortunately, anyone assured hazard. 37622 40 added "will direction greatest assures" impairment. 503. thereafter passed 2193. week substitute contain substantive place 38716-38717, 1094-1096. joint House-Senate Conference, however, conferees acceded Senate's 6(b)(5).36 environment.37 viewed Yarborough, cosponsor stated: "We know put consumer goods price pay 80 million America." 37345, 444. asked: talk about 42 talking people's lives, indifference accountants." 37625, 510. 44 Eagleton "[t]he incurred meeting established are, my view, business." 41764, 1150-1151 added).38 45 Members voiced views.39 Nowhere contemplated Indeed financial workplace large larger eliminating problems. declaration encompassed announced "personal injuries illnesses arising situations burden upon, hindrance to, interstate commerce lost production, loss, expenses, disability compensation payments." 651(a). 46 summarized: "Whether we, individuals, motivated simple humanity economics, longer permit profits dependent upon unsafe unhealthy worksite." 41764 1150-1151. III 47 "economically particular, (1) underestimated meet requirements; (2) incorrectly threaten viability 48 statutes "such mind accept adequate conclusion." Universal Camera Corporation NLRB, 340 474, 477, 71 456, 459, 95 456 (1951). reviewing account contradictory 487-488, 464, possibility drawing conclusions administrative finding evidence," Consolo FMC, 383 620, 86 1018, 1026, 131 (1966). Since responsibility determining questions courts appeals, 655(f), apply familiar "[t]his intervene rare [substantial evidence] misapprehended below. 491, 466; Mobil Oil FPC, 417 283, 292, 310, 94 2328, 2346, (1974); FTC 355 396, 400-401, 78 369, 371, 359 (1958). Therefore, inquiry instance, evidence. test. 49 derived estimate analyses, prepared Triangle (RTI), OSHA-contracted group, (Hocutt-Thomas).40 carefully explored assumptions methodologies each studies. From exercise able build reliable explain process choosing estimate. brief summary treatment follows. 50 RTI's $1.1 billion textile reasons.41 First, discounted 30%, 27372, assumption applied mills, processing pure synthetic fibers, generated equipment. RTI observed "[e]xclusion man-made fibers much percent." 6-76, 585.42 synthetics-only equipment, application machines. 27371, Second, "may over-estimated since already standard." 27370, Evidence mills attained less, others level.43 disagreed reduced standard's PEL. Third, suffered lack accurate data. 27373, 1; 858; 16, 1357, 1359. 51 deficiencies study, Hocutt-Thomas $543 million,44 emphasizing data, realistic (1978).45 Nevertheless HocuttThomas overstated reasons. ug/m3, widespread fact Ibid.; 43, supra.46 declined allowance trend toward replacement production machines newer productive equipment.47 "[n]atural tren[d]," fewer retrofitting development during period. Ibid.48 Fourth, improperly control machines, ibid., inclusion 30% overestimate.49 52 criticize estimate, somewhat ultimately Standard.50 exaggerated, assert "only remarkable coincidence amount overestimate equal attain actually adopted." 27; Petitioner 79-1583, 14-15. problem petitioners, precision refusal available.51 "in [industry] survey [of mills], develop costs." "on obtain detailed confidential essential precision, conclude acted estimate.52 surely preferable,53 hold matter law circumstances unsupported evidence.54 53 "OSHA evaluated it, criticisms each, selected suitable 79, 661 (footnote omitted). 54 After estimating analyzed cost.55 was, "although marginal shut down comply, threatened capital regulation." 27378, 27379, ("compliance well capability covered industries"). reaching impact, employment, energy consumption, financing availability, profitability. 27377-27378. findings, comprehensive investigation impact.56 55 impact States' economy across-the-board 626.57 $2.7 PEL,58 736-737. As 44, Standard,59 "much severe" billion. Nevertheless, instructive review found: 56 conclusion, impact60 sectors 57 (opening spinning), dollar shipment 7.8 cents, corresponding 1.9 cents. 729. Average increases maintain prestandard rates return investment range 0.22 cents 6.25 sales.61 assuming increases, six yarn-producing experience negative rate investment, five 1.4% 3.9%. 652.62 average sector 4.1%. Through output demand elasticity necessitated 1.68% contraction consumption.63 685; 680-687. discussed effects interfiber domestic/foreign competition. "non-price factors probably dominated" competition manmade fibers. 623, 948-953.64 Noting international trade agreements restricting foreign imports products "have tended smother small change relative prices domestic products," 622, smallchanges "very little impact" industries markets, 961; 954-961. order measure ability sized companies finance constructed ratio profit taxes. difficulties, difficulties decreased company size increased. 730.65 impacts inflation, market structure evaluated. 728-731.66 59 evaluation absorb "nothing indicates seriously threatened." 1380.67 follows fortiori $656.6 feasible."68 understated, fortified observing times costly "explained projected industry," "substantial 80, 662. IV 61 heavy reliance install implement controls.69 respirator employer respirator70 1910.1043(f)(2)(v) occurs, benefits.71 object transfer. 93, 675. authority, 62 several statutory bases exercised here. cite 2(b) 651(b), declares conditions"; 2(b)(5), suggests "by developing innovative techniques, approaches problems"; "set ."; "conditions, 68. Whatever methods apply, clear justified relation 63 "determinations Secretary" 6(e), 655(e), "a action, Register." "Summary Explanation Standard," "Each includes policy decisions pertaining 27380, But never approach increased protection. stated "goal minimize adverse virtue respirator." 27387, recognition fact, respondents briefs argue: 64 "Experience shown reluctant disclose tend work-related fear discharged lower paying job. expected, therefore, incapable continue breathe unhealthful request transfer, destroying utility program." 67. 51.72 arguments merit, very may,73 post hoc rationalizations litigation serve predicate action. Citizens Preserve Overton Park Volpe, 401 402, 419, 91 814, 825, 136 (1971); Burlington Truck Lines 371 156, 168-169, 83 239, 245, (1962); SEC Chenery 318 87, 454, 87 626 (1943). gave actions. Because way repair unfairness unrelated goals, regulation.74 V pre-eminent value assuring actions judicial function extend revision regulatory policy. lies elsewhere—in Congressional Executive oversight amendatory legislation." 663, 2875 (BURGER, C. concurring); TVA Hill, 437 153, 185, 187-188, 194-195, 98 2279, 2297, 2298, 2301, 117 (1978).75 Accordingly, respects approval extent, remanded directions remand proceedings consistent opinion. ordered. POWELL took 70 STEWART, dissenting. life." 73 Everybody agrees everybody agree, N Dec. Immigration Nationality Decisions suppose, something fairly idea how going cost. reverse us demands examination. 74 truth assessment report purporting predict finally agency. attempted ante, 524-525, flatly prediction gross overestimate. had, researchers, assumed phases roving. Ante, 527, 50. examined too addressing. am willing defer overestimate, conceding subtle matters lie discretion skill nonsequitur, treated promulgated, rationally explaining came happy conclusion. speculation. 75 Of course, notes, re-examine appeals' misapplied." 466, 456. think instances categorically misconceived nature regulation, correct error. broad generalizations deciding particular confines single identified factual proved, comprehending evidence." 76 Unlike obvious law, lacks rely actual promulgated. respectfully dissent. 77 REHNQUIST, whom THE CHIEF JUSTICE joins, year ago belief enacting unconstitutionally delegated Branch "hard choices" properly task legislature. 671, 2878, (1980) (concurring judgment). exceeds power delegate nonelected officials, W. Hampton United- 276 394, 348, 624 (1928), Panama Refining Ryan, 293 388, 241, 79 446 (1935), repeat Term. pertinent part: correctly observes, language. reducing risks, costs. 38-41. postargument motion, prohibits engaging type balancing. Their view 26-27. Court's opinion, takes position. concludes course permits undertake chooses. 510-512. 82 Throughout refers "feasibility requirement." 508-522. Term 681-685, 2883-2885, all. Quite contrary, argued insertion words rendered unrealistic, vague precatory unconstitutional delegation Branch. Prior "feasibility" simply professional History, 943 (hereinafter Leg.Hist.). Had enacted, undoubtedly reaches created excessive problem. quite authorized regard kind reveals number Congress, Saxbe, difficulty engaged lengthy risk-free choices. levels, prohibited Rather choice difficult passed. Updated: January reflected "one wish spoken greater clarity." 668, 2877 (POWELL, concurring convinced reason speak "clarity" not. mask fundamental disagreement doubt mandate, permit, prohibit President sign. seems argue Its called analysis." 509. mean "legislative mirage, appearing Congress] others, desired beholder." 681, 2883. settle meaning. 508-509. But, admonition duty. (remarks Dominick). then feasibility." history, suggest why limited. wonders "requirement" political recognizes, wanted concept meaningful guidance administer law. 85 believing amounts Branch, ambiguities "fill blanks." neophyte student government realizes legislation compromise, important, controversial seldom introduced. unusual various factions supporting opposing departure prefer agreeable sort compromise cry case, abdicated choice—whether statistical future deaths disregarded preventing deaths." 672, 2879. "quintessential legislative" elected people, officials Term: "In drafting difficult, resources authorizing elevate human concerns dislocation affected clear. chose, intentionally unintentionally, pass evident spectral quality selected." 685, 2885. sum, asserting critical, charged administering guided, precisely opposite effect: mandated, permitted, undertaking crucial choices hands Labor.* length Term, interchangeably referring agency, Assistant Health. Secretary. 1910.4 79-1429 individual manufacturers, Manufacturers Incorporated (ATMI), approximately 175 companies. i, petitioner Council non-profit corporation chartered consumption products. 3-4. organizations Federation Organizations, Department, AFL-CIO, Amalgamated Clothing Workers Union, AFL-CIO. sufficiently stringent. POWELL, judgment, member expressly. "requires expected benefits." 667, 2877. MARSHALL, dissenting, BRENNAN, WHITE, BLACKMUN, 717-718, n.30, 719-720, n.32, 2902, 2903, n.32. addressed feasible; wages positions respirators. "dust handling cotton, mixture substances ground up plant matter, fiber, bacteria, fungi, soil, pesticides, non-cotton contaminants accumulated growing, harvesting subsequent storage periods. knitting fabrics, waste fiber by-products dust." 1910.1043(b) (Cotton Standard). References throughout Joint Appendix filed (App.), lodged (Ct. App.J.A.). Known generally Schilling classification include: "[Grade] 1/2: slight acute ventilatory capacity; 1: definite 2: moderate capacity. 3: capacity." 56500-56501 few years [to dust], Monday, Descriptions Administrative Law Judge, vivid: "When started speeding looms got finer leaving breathing My mother leave fifties. Before she left, her just couldn't work. stepfather breaching [sic ] coughing spells til breath ], like child's whooping cough. Both sisters husband job fifty-four old problems." 3791. "I suppose 1973. kept getting sick began losing mill. Every go get deathly sick, choking vomiting breath. blow lint clothes right here wore washed you come washing. fifty-seven can't church breathing. walking around house dressing [or] sometimes watching T.V. cough time." 3793. ". quit lay rest oxygen night doctor told me there. couln't breathe, door back mill] circumstances." 3804. newly discovered 1820's England, 404-405, Belgium 2,000 1845, 15. expert noted: often disorder and, thus, reflect progress individual's disability. instances, progression Sometimes de novo, jump Among disability, occurs." 192. criterion 35,000-worker Forced Expiratory Volume (FEV1) 1.2 liters less. An FEV1 "is fraction performance normal lung." 1231. 126,000 200,000 yarn-preparation observed: "Studies emphasis regarding magnitude despite repeated warnings countries lung past decade among mills." 5179, "Total dust" nonrespirable values list ACGIH. shall, soon practicable beginning effective date chapter ending date, unless improved designated opening, picking, carding, roughly equivalent 464; 22, infra. Health, Education, Welfare. authorized, "develop standards." 671(c)(1). HEW, initiative, "conduct research experimental programs results recommendations concerning 671(d). document entitled "Criteria Recommended Standard: Exposure Dust." 11-169. surveillance, decrease level. specifies accompany 655(b)(2), (3), (4). 15-micron cutoff, method accuracy precision." divided stages. operation drawing, roving, raw cleaned spinning yarn. 12. spinning, twisting, winding, spooling, warping, readied processing. 13. (3) weaving, manufactured woven fabric. 14. "yarn manufacturing" "all opening including, weaving." 27365, nontextile include, "warehousing, compressing lint, classing marketing, (i. knitting), reclaiming marketing waste, delinting cottonseed, converting linters, gin motes batting, felt products." Ventilation systems central air-conditioning, local exhaust capture emissions generation possible. 27363-27364. portion cottonseed oil concluding 95, 669, 677 motions file supplemental memoranda granted. suggestion "vacate appeals returned development." Supplemental Memorandum 4. "hold abeyance instruction proceedings." Response argument, letter contended "Cancer Policy" disagree. Cancer Policy "carry significance carcinogen determinations." 4889, (1981). Previously, lacking dose-response presumed existed carcinogenic substances. 624-625, 635-636, nn. 40, 2853, 2855, 2861, decision, "automatic level" significance. 4890, contrast Policy, "exposure presents employees," "cotton produced low exposure," 27358, "grade decrements themselves prevented possible." risk, curve Merchant Study) 12.7% Examining Study 27357, "prevalence 3; ("200 workers"). imagine comply Institute. ATMI express ways. exists 36. achieve impairment]" "an it." 38, 40. Allowing rigidly formal calculation 39, describe "First, Pursuant factually record. 'significant' (based benefits) instance." disputes description exercise, claiming involve "placing [dollar] freedom suffering," 59, accomplish balancing, 59-60. contemplates "systematic enumeration tangible intangible, readily quantifiable measure, members society project Stokey R. Zeckhauser, Primer Analysis 134 Commission Natural Resources, Council, Decision Making Regulating Chemicals Environment (1975). Mishan, Cost-Benefit (1976); Prest Turvey, Analysis, 300 Economic Journal 683 (1965). respondent's characterization correct, refer "cost-benefit respondents, regulate agent" satisfies parts: 'place unsafe—in sense eliminated lessened practices.' [Industrial Dept., 642, 2864 opinion).] correctives 'the protective.' 'feasible.' 40-41. "Development subsection research, demonstrations, experiments, information appropriate. highest degree employee, latest scientific field, gained laws. Whenever practicable, expressed criteria, desired." "serious misallocatio[n] finite Reply 10; 38-39; Chamber Commerce Amicus Curiae 12; 19. explore varieties hazards, 6(g) 655(g); 643-644, 2865; Case Comment, B.U.L.Rev. 115, 122, types questions. Energy Conservation 1975, 6295(c), (d) Supp.III); Water Pollution 1972, 1312(b)(1), (2), 1314(b)(1)(B); Clean 1977, 1314(b)(4)(B) Air 7545(c)(2)(B) Supp.III). Administrator technology effluent application." 1314(b)(1) ("BPT" limitations). With 1987 limitations, cost, comparison 1314(b)(2)(B) ("BAT" EPA Crushed Stone Assn., 64, 71, 10, 76-77, 295, 300, 268 statutes, "unreasonable risk," accompanied explanation signify generalized Consumer Product 2056(a) ("unreasonable injury"); H.R.Rep. 92-1153, (1972) (where "It Commission's product unreasonable death, frequent illness. Protection State interpreting term's application. probability harm gravity product's utility, availability consumer"); 92-749, 14-15 (1972). Aqua Slide 'N' Dive Comm'n, 569 831, 839 (CA5 1978); Forester 182 168, 559 774, 789 (1977). error reach conclusions. Texas Independent Ginners Assn. 630 398, 410 1980); OSHA, 581 493, 502-503 1978) aff'd grounds, supra. Chiles 1973 "directs recognize publish impact. justifiable afford reasoned proposal." 119 42151 (1973). makes plain, infra, 517-518, Hodgson, 162 331, 342, 499 467, 478 (1974) ("Congress putting business"). plurality content, "there guide national consensus agents." 640, n.45, 2863, n.45. Furthermore, mere 3(8)'s restraints OSHA. risks" 2864. five, "technologically limitation play restriction one-respirator applications have, together versions discussion appropriate." capacity, diminished expectancy 91-1291, (1970) (to 16785), 834. Petitioners' primary Javits "took 'feasible' 'reasonable' 'practical' achievable." 32. belies contention. himself administration's 2788, 31, 39-42. legislation, Board standards-producing organization prepare reasonableness practicality 39. Welfare basis, reaffirm majority vote, Nixon's message inserted Record, "report 115 22517 (1969). slim reed fashion argument. subscribed statements Nixon doubt, 22512, hardly baggage. all, "feasible," distinguished administration's, latter's criteria. examples. instance: "[L]et fellow streetcar conductor bus time. How world, pollution streets automobile accidents day driving trolley car, whatever be, sure life? totally bill; committee bill." 37337 423. 36522, 481, 345. acceding, agreement amendment, 6(b)(6)(A) allowed petition temporary variance "[e]conomic hardship qualification extension order." H.R.Conf. Rep. 91-1765, 5231, 1188. cases: "unavailability personnel construction alteration facilities completed Such maximum renewed twice." Ibid., 5231. weigh heavily businesses, provided Small Business businesses eligible assistance 1618, 1257. explained: "There recognizes businesses. loans injury. Under entitled, Administration, them hump, conditions shop, operation. minimizing injury resulted businesses." 525. "One ask expensive whom? Is loses services skilled employees? leg eyesight? widow raise children meager workmen's security? And man—a good hardworking man—tied wheel chair hospital bed competitive advantage declining invest safety: "Although demonstrated exemplary workplace, undercut concerned. Moreover, smaller ones—simply survive competitively, compelled so." 5180, 144. 38386 1030-1031 Dent): disturbed adding threats abroad, men producing—the service women country daily keep moving live prosper staggering. Over $1.5 wasted wages, Gross $8 Vast siphoned off expenses." 5178; 142. RTI, Dust: Technological Feasibility Assessment Final Inflationary Impact Statement 457, 573-748; Testimony Presented Hearing (1977), 1320, 1351-1357. Hovan Hocutt Arthur Thomas, manufacturers. Hocutt, Senior Vice President, Engineering, Pneumafil 60, 2228-2247; Bahnson 62, 2248-2257. referred collectively $984.4 473, $127.7 (winding weaving/slashing) 600. $885.6 589. discrepancy apparent attributable years. "conservative estimate" "controls cotton-synthetic blends, synthetic." 585. David LeSourd 3637-3638. Therefore industry-wide 579-580. conflicting Some substantially better 47, 2037 (66% Industries areas 28% ug/m3); 78, 2387. expert, commenting proportions [200 ug/m3]." 3637. 3939 (criticizing compliance). event, "actual determined" study. estimate), $7 monitoring, $31.5 processing, $75 seed Completed questionnaires 353 processed 80% bales returned. 2231. efforts, subtracting purchased February 1977. 2232, 2247. proxy admitted figures 3941. John Figh, vice president Chase Manhattan Bank specializing modernizing mills: "[B]y continuing upgrade plants modern efficient due add bricks mortar. out-of-date replaced buildings; modernization plants. 63, 2260 converts opposed machines: "1) operating older, slower proscribed [sic] levels; 2) likelihood recovery control." 79A, 2532; 79C, 2550-2551; 2261; 2376-2377. Figh "[t]here vast horizon," "[a]s machinery, evolutionary changes years." 2260-2261. "static technology," 2380, documents advances 2380-2386. experts optimistic technology. g. 3643-3644 (RTI study). "ratio synthetics blends" information. 2230. calls roving weaving. similarly questioning answered: "Well, I'm hadn't anything this, did, helpful. Practically reveal sources. You figures. substantiate manner." 3929. note, subsequently withheld identification 32; 388-390. responds "[b]ecause correlated supplied, adjustment." 70. contention access Hocutt's calculate attempt calculations unreasonableness rough equation overstatement expense operations. 9-10; 14-18. manipulation wide margin OSHA's, industry's, unions'. Viewed light, candor confessing precise precipitate nonetheless congressionally "expert" says provide. originally asked 500, 200, Clearly promulgate. report, unreliable estimates. 524-525. impractical 2239-2241, slashing, 2241-2243. obviously note abandoned 8, 16. imprecision," 662, frequently agency," 661. suspect obtaining inherent crudeness estimation tools. necessity falsity wreak havoc numerical official obligated careful scrutiny, affect correctness proffered presented, 'economically feasible' satisfied Pet. Certiorari treat question. 24-31. summarize prediction, competition, prices. cogent manner—on intelligible criteria—why demonstrates, "responsible prediction" "production, prices." "compliance [it] industries." mean, suggests, "[a]t bottom, [and did] long-term profitability competitiveness." 49. Steelworkers America 208 136, 647 1189, 1265 (1981) ("the threatens stability industry"); 478. "feasible." 30, present, decide, competitiveness flaws industry: Additional requirements. "2) consumption. "3) Increases consequent industries. "4) Capital "5) Competition structure. "6) consumers economy. "7) Employment demand." 626. $1,387.9 winding weaving/slashing $292.2 ginning, $32 737. ginning regulation 1910.1046 "Implementation ug/m3] adjustments firms. time, however rise markets adjust revenues cover firm advance, 1380; 3620. cost-of-compliance figure components: annualized charge, direct 643. charge consisted depreciation, interest, overhead, property tax, insurance. Depreciation interest computed factor rent, rate." criticism derives consumers. 28-29. misstates calculating return, "decided extreme zero computing post-control increases" compute elasticities yarns. 657. tested "how bias" introduce 657-659. "unless unity, invalidated." 659. 1% increase met demand, valid. suggesting effect, proceeded assumption. investigated short-term unity. 681. higher framing pounds produced. 654, 729-730. criticizes coefficients, underestimates responses increases. 16-17. Dr. Lee, independent procedures contraction, elasticities. 3626-3627. His "main [was] input table procedures," relying coefficients. nonprice "research expenditures, promotion advertising, fabric development, properties, care characteristics fabric." 623. president, "polyester grown penetrated penetrate. [T]he growth polyester completed." 474-475. towels 100%-cotton men's shirts, enjoy preferences. crisis detailing 948, petroleum prices, key ingredient balance, Two ratios remaining 6. 665. Bank's 2264-2265. depth, twisting waste-processing 462. found, sales ranged 0.5 "severe" difficulties. 733-734. recount detail irrelevant exercise. calculated $1.259 billion, 600, figure. zero. weaving/slashing, unnecessary. eight 29. 8-year "problems supplying equipment." 415; 415-416. If proves presumably variances infeasibility. 1910.1043(e)(1) (1980); 655(b). neither frame Instead, minimum 15-16; 1910.1043(f)(1) "Where section, provide, paragraph (f). Respirators circumstances: "(i) periods controls; "(ii) maintenance activities "(iii) limit; "(iv) (g)(1); "(v) requests facial irritation, discomfort, "Whenever physician purifying later becomes persuaded determination. testified program identifying relocating suffering 440-441. reluctance guarantees opportunities integral relocate somebody coal mining miners allowed, Coal Mine transferred, proportion rights." 441. scrutinize uncover formulate rationale rationale. Automotive Parts Accessories Boyd, 132 208, 407 338 (1968). transfer/guarantee occupying two-thirds page Register, manifestly unfair detriment respirators." "protection regulation] affords greatly success provisions." unauthorized "boilerplate" Synthetic Organic Chemical Brennan, 503 1155, 1157, 1160 (CA3 1974), cert. denied, 420 973, 1396, 653 (1975); 339-340, 475-476; Associated York State, U. 487 354 (CA2 1973); Dry Color Manufacturers' 486 98, 105-106 1973). Berger Riskin, Toxic Substances Ecology L.Q. 285, 298-299 REHNQUIST characterized post, 544—and constructions feasible"—this grounds invalidating doctrine. argued. Pennhurst School Halderman, 451 1531, 694 Watt Alaska, 259, 1673, Contrary 541, 75, existence plausible invoking doctrine: invoke doctrine interpretations.

Classification Label: 6