Legal Document

422 U.S. 289 95 Supreme Court Reporter 2336. 45 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 191 ABERDEEN AND ROCKFISH RAILROAD COMPANY et al., Appellants,v.STUDENTS CHALLENGING REGULATORY AGENCY PROCEDURES (S.C.R.A.P.) al. UNITED STATES Appellants, versus STUDENTS Nos. 73—1966, 73—1971. Argued March 26, 1975. Decided June 24, Syllabus In December 1971, the Nation's railroads, citing sharply increasing costs and decreasing or negative profits, collectively proposed to file tariffs their freight rates by a temporary surcharge across board. The Interstate Commerce Commission (ICC), in ensuing general revenue proceeding, finding that railroads had critical immediate need for revenue, declined exercise its power suspend rate increases, became effective February 1972. shortly filed larger, selective but April 1972 ICC suspended effectiveness of these increases pending investigation lawfulness, previous month having served brief draft environmental impact statement on all parties investigation, discussing consequences with respect recyclables terms concluding there was no basis yet believe environment would be substantially affected thereby. Thereafter, appellee SCRAP other groups suit alleging decided not investigation—which decision have substantial effect without preparing an considering issues as required National Environmental Policy Act (NEPA); pre-existing structure discriminated against favor virgin materials; exacerbated this situation unfortunate consequence use recyclable materials inhibited encouraged. A three-judge District convened under 28 Code KF62 § 2325 (now repealed), which injunction restraining enforcement, operation, execution order granted unless application therefor heard determined court, relief granted. On direct appeal, reversed SCRAP, 412 669, 93 2405, 37 254 (SCRAP I), holding 15(7) lodges exclusive final determination lawfulness. Meanwhile, October 1972, after oral hearing, issued report declining declare unlawful, terminating previously entered suspension order, canceling been subsumed ordering ceiling some recyclables. stated given extensive consideration factors, separate, formal NEPA, pointed out begun separate into entire focusing whether it interfered Government's program. However, November reopened lawfulness reconsider effects new recyclables, such being additional period railroads' consent. 1973 expanded statement, May correct, finally declaring any unlawful except provided order. 1973, before increased were become effective, appellees Defense Fund (EDF) motion preliminary restrain implementation court motion. appealed, Chief Justice stayed motion, full vacate stay, 413 917, result went into, remain in, effect. vacated remanded cases reconsideration, 414 1035, 94 532, 38 326. motions summary judgment court. Finding failed comply that, inter alia, hold hearing adopting held (presumptively 'existing agency review process') issuing should started over again issue set aside proceeding ordered reopen prepare hearings, reconsider, light lawful. claming jurisdiction case, had, event, fully complied claiming only so NEPA. Held: 1. This has appeals 1253, gives determine from 'an granting denying . civil action determined' district since Court's declared NEPA also directed perform certain acts, 'injunction' within meaning since, moreover, restrained 'the operation execution' 2325, hence could Pp. 306-309. 2. ICC's notwithstanding made proceeding. 310-319. (a) There is merit argument just much interim particular unreviewable I, supra. Since did enjoin collection come rule barring courts entering disruptive injunctions ICC, & N Dec. Immigration Nationality Decisions applicable even if what say true. Pacific KF135 P2 317. (b) Nor nailroads' (1) treating record supported reviewed violation principles finality exhaustion remedies, (2) conclusion proceedings does apply contrary change jurisdictional rules. Here adequately considered factors already sought obtained subsequent 13 Act. While nature may relevant extent required, prevent question, prepared adequate. When connection major 'federal action' complete, notions do bar judicial adequacy consideration, though aspects increase are ripe review. 317-319. 3. erred deciding prior process' during available. provides 'shall accompany proposal through existing processes,' affect time when 'statement' must prepared, simply done once prepared. Under provision at makes recommendation federal action. Here, until report, proposal, earliest statute report—some hearing. 319-321. 4. 'started again' propose assuming failing inadequate. To based court's belief incorrect, appears consultation environmentally expert agencies occurred outset, pervaded hearings held, statements circulated thus indicating procedurally thoroughly report. And good faith support record, (as fact proceeded do) position correct statutory error integrating decision, never written. 321-322. 5. further deficient. 322-328. As most proceedings, 'action' taken response claim financial crisis, inquiry primarily crisis—usually entitling existed, leaving more appropriate future task answering challenges individual commodities categories thereof, latter question—usually involved limited raising serious issues, former question few none claimed here inadequately addressed statement. 322-324. appellees' flowing facially neutral increase, which, superimposed underlying structure, allegedly discriminates explored can analyzing structure; tardy complying analyze view toward consequences, plenty cause therefore permitted terminate so. Such Louisiana, 290 70, 54 28, 78 L.Ed. 181, giving wide discretion decide address postpone comprehensive discrimination claims, loses force commencing consider decision. Thus, read require comprehensively least approving purpose explore doing 324-325. (c) deem include implicit approval inaccurate led entirely unwarranted intrusion apparently sensible take undertake larger better suited task. (d) scope incorrect will structure. 326-328. 371 F.Supp. 1291, reversed. Charles Atlantic Horsky, Washington, D.C., appellants Aberdeen Rockfish Railroad company others. Raymond Randolph, Jr., John Federal KF105 F3 Hellegers, Edward L. Merrigan, Association Recycling Industries, Incorporated E. Bruce Butler, Institute Scrap Iron Steel, Mr. WHITE delivered opinion Court. 1 States, (ICC) appeal ICC. 102(2)(C) (NEPA), 83 Statutes-at-Large 853, 42 4332(2)(C), recyclables1 unlawful. 2 102(2) 4332(2), margin.2 150-printed-page insufficiently mandate subsection (2)(C) 102 NEPA; failure violated command 'accompany processes.' Because we several respects, reverse. 3 * lawsuit lengthy history, necessary understanding presented appeal. 2.5% 'surcharge' followed filing somewhat increases. 24 384, amended, 49 15(7), 5, 17, selective-increase average board 4.1% antedating surcharge—these 1, Meanwhile serve interested parties. January 3, those included SCRAP. Numerous comments received maximum allowable seven-month 30, styled Ex parte 281, 6, own including Council Quality (CEQ), Protection Agency (EPA), Department Transportation. discussed concluded 4 while collected, group law students—(SCRAP)—and instant environment—without Appellees materials, across-the-board complaint compel collecting it. 5 repealed. Relief reversed, doctrine Arrow Transportation Southern R. Co., 372 658, 984, 10 52 (1963), (1973) I). 6 4, dated September 27, declining, main, entered. canceled, written responses submitted various Government nongovernment covers 92 printed pages, 17 deal revenue; 15 might flow increases; 36 specific materials. 7 noted 'principal issue' demonstrated overwhelmingly they were. It then two possible adverse affects First, rail divert traffic trucks, heavier polluters than trains. Second, discourage resulting solid waste—disposal creates problems—and accelerated depletion country's natural resources. danger diversion truck insubstantial reasons, among due similar permissive used diverted trucks. Moreover, plainly outweighed needed money eventually go business increases.3 8 With emphasized essence entitlement overall usually follows showing need. necessarily abbreviated analysis postponed specialized in-depth incident complaints 13(1) asserting rates, unjust unreasonable, too high relation otherwise illegal law. Indeed, itself 270, pattern limits provisions permit special allow subsidize transportation. Applying standard ratemaking criteria, rejected, information it, particularly ferrous scrap, responsive accompanied competing 3% some, all,4 reason determining context scheduled unreasonable illegally discriminatory. U.S., 683, 2413—2414 n. 11, 9 indicated nonrecyclables days' notice 35 notice. opportunity comment parties, 281 7, fuller issues. consent seven months 10, 1973. 11 13, Comments thereafter EPA, CEQ, Transportation, herein, covering 150 21-page bibliography. main difference between discussion each recycling industries. conclusion, then-available controlling principles, discriminate. examined affecting price commodity demand commodities. negligibly. re-emphasized fall short transpire kinds Commission's attention called.5 correct; terminated order.6 12 days EDF motion—apparently earlier surcharge—for temporarily enjoining declaring, explanation whatever, 'not harm railroads.'7 appeals. 8, upon 25, stay EDF, 3024, 1039. placed continue today. 19, reconsideration Atchison, T. S.F.R. Wichita Bd. Trade, 800, 2367, 350 (1973). 326.8 seeking declaration orders themselves because inadequate, directing statement; permanent railroads. Over dissent, find interim. 14 first rejected applicability line lower-court cases, beginning Algoma Coal Coke 487 (ED Va.1935), decisions unreviewable. divided evenly 400 73, 91 259, 27 212 (1970) affirming, City Electric 306 338 (SDNY 1969), Alabama Power 316 337 (DC 1970), reviewability questionale vitality—especially where reasonableness needs justify costs. rested ground case. said unlike shippers, who properly exhaust remedies §§ refunds, remedies. single countless resolution promptly avoid irreparable damage environment. degradation occurring irreparable, injury shippers cured reparations. found respects. circulation second preparation conceded hold; Florida East Coast 410 224, 810, 223 ruled presumptively one reconsidered instead starting beginning. start again, give 'good faith' factors. viewed tone 'combative, defensive advocatory'; criticized refusing congressional expression invalidate reasonable negatively environment; commented unfavorably deficient sufficiently 281. extensively quantitative businesses conducting 'rigorous sensitivity study' industry develop technology utilize secondary encouraged lower transportation 16 elasticity probability encouraging scrap. circulating anew have, probably so, T supra.9 We probable both cases. 419 822, 38, 46 (1974). II 18 At outset face challenge our appellate jurisdiction. now repealed,10 grant '(a)n interlocutory execution, whole part, Commission.' Title 1253 us three judges.' All agree below refused 19 language appealed word 1253. declaratory appealable e.g., Mitchell Donovan, 398 427, 90 1763, 26 378 (1970); Gunn University Committee, 399 383, 2013, 684 (1970). But acts. cast injunctive terms. 'directs' conduct 'must' dealing enumerated 'to plaintiffs relief' (emphasis added). Were left undisturbed, hardly free decline proceedings. coercive members, staff, enough bring 'injunction,' 1253.11 20 apparent reaffirmed minor exceptions interfere collection. That Court, although emasculated Contrary legalityn rates. insufficient said, terms; tenable assert operative 1973.12 III 21 argue long decisions; see, Va.1935); Koppers 132 159 (WD Pa.1955); Citrus commission 144 517 (ND Fla.1956), aff'd per curiam, 352 1021, 77 589, 595 (1957); equally Electronic Industries Assn. 310 1286 aff'd, 401 967, 1188, 318 (1971); correctness case turns part is. 22 Act, initiative setting remains See 672, 2408. power, either party, finds unjust, preferential, discriminatory, 15. supra, up 15(7).13 Where initiated railroad relates commodity, conducts thorough justness rate. reason, cost dictates virtually large number initiative, nearly New England Divisions Case, 261 184, 196—198, 43 275—276, (1923), recognizing practical problems faced situation, lawful taking proof relating general. 76 78, 31—32, 181 (1933), approved procedure whereby investigation—by maxima necessary—without prescribing rates.14 pointing impossibility inquiring rate, stated: 23 '(I)n performing duty broadly carrier Commission, instance, enable prescribed applied members generally exceeding maximum.' Id., 76—77, S.Ct., 32. (Emphasis added.) say: 'The detail marked certainty. size dealt with, traffic, urgency demanded, condition proper procedure, ultimate reasonable, evidence suitable reservation rights secure modification challenged, complies statute. requirement prescribe observed conformity administrative necessities proviso contemplates.' 77, 25 Proceedings, described called known tended focus really revenues leave refund problem runs bear burden, extent. careful claims open here: 'Thus, attempt nor constitute prescription Arizona Grocery S.F. Ry. 284 370, 183, 348. If believed shipper persons (sic) remedy available sections 15.' Number Increased Freight Rates Charges, (Environmental Matters), 346 I.C.C. 88, 103 Of course, disapprove increase. also, chose unlawful; affirmatively approve reasonable. Louisiana confine almost relate legality whole; fortiori nature. alleged them qualifies aside, true form, devoted needs, inquire broad categroeis charges. 29 coal insofar coal. unreasonable. only—it increases.15 specifically railroad's rendered reasonable; plaintiff's them—a unjustness unreasonableness ICC—in it.16 Board Comm'rs Great Northern 412, 50 391, 74 936 (1930). 30 undo, commodities, uniformly unsuccessful. unreasonable—without addressing sort justified—the posed Fla.1956); 1970). attacked justified, courts, going beyond exhausted his B 31 violates above decision—since rate—as investigation. Therefore, squarely banned suspend, overturn substantive order—addressed recyclables—the contend settled remedies.17 More generally, attack 'NEPA cases' disagree arguments. 32 fails No here. Thus purposes 33 because, arguably increase,18 adequate thing certainly proceeding; type Court—i.e., matters proceeding—could agency. Whatever matter complaint—is sufficient whatever felt 34 Although proceeding—the adjudicated reasonable—for purposes, status purposes. 'major action,' independent later adjudication requiring clearly correct. whem terminates. Our way inconsistent repeal implication supplies nonexistent rates; permits specific, permissible. create discrete procedural obligation actions right adversely enforce obligation. departmental stand IV (i.e., 1973) 'such shall processes' sentence not, opinion, says prepared—it 'proposal.' referred 'in every proposals significantly quality human environment' kind mentioned statute, initiates publishing porposal, appear however, recommendation, railroads.19 1972—some hearing.20 requires consult 'prior making detailed statement'; CEQ guidelines provide: 39 'To fullest possible, (on action) Agencies make (impact) public fifteen (15) hearings.' 40 Regulations 1500.7(d). outset; held—both written; existence hearings. Procedurally, 41 Assuming again.' reasons above. record. perceive affirming respect. V Emphasizing nonfinal They throughout gave 'hard look' Natural Resources Counsel, Morton, 148 U.S.App.D.C. 16, 458 Reporter, 2nd 827, 838 (1972), disagreed emphasize continuing another position. describe accurately taken. decision—entirely unlawful21 percentage crisis; inquiry, thought entitle increase—existed, thereof.22 point extent—which raise question—the increase—raises 44 insist involves recyclables.23 discriminate issue, agreed acted accordingly proceedings.24 Accordingly, consequences;25 281; should, therefore, argument, stumbles discrimination. 270 devoting below. NEPA—in initiate challenging confined inappropriate event obtains unlawful.26 task.27 Having defined becomes easy. 281,28 incorrect. 47 discloses time, paper, effort agencies, appellees, far statements, informal, expressly recognized important involved—increased waste disposal implicitly common-sense proposition deter use. reports length degree changes looking, past technological different Finally, inquired, preliminarily, fairness found. rudimentary examination therewith Appellees' best acquired knowledge changed mind accordingly. This, points absence 48 Reversed. POWELL took DOUGLAS, dissenting part. 51 Parts II, complaint. merits, would, affirm. litigation presents history foot dragging attempted prod compliance (NEPA). 'final statement' holds me lange statistics purport show significant 'analysis' discredited Quality, whose principal concerns environmental, General Services Administration. responded papering defects identify, rather substance deficiencies. 53 stake my before. 699—714, 2422—2429, oppose retard recycled products thereby contribute initially charges scrap cited multiyear rising, prices fluctuated widely consumption increased. 341 288, 397—402 (1972). fallacy exposed commenting metal scrap: '(S)crap operating simultaneously, aggregate steel, iron ore, supply well surprising indeed, if, constantly work market, close simple relationship existed movements changes. 55 'Nor data shows growing despite prove inconsequential. Growth materially higher different. What instance multivariate isolate quantity consumed.'1 56 Yet persisted assertions, studies recommended. 145—149 57 argued expressed doubt unjustified arguing disparity attributable differing Study presentation ratios substitutes, causing 'share' service. Comparing revenue-cost bore lesser share variable costs, greater costs—fixed variable—than ore. 124. disparity. 58 concedes shortcomings analysis, relying, did, prospect receive study investigate commands takes relegate taken, assurance prompt forthcoming. progress years. illumination remote. steps expedite completion phase embrace controverted Instead, content put offering vague course promised protracted Today, years later, apprised conclusions reached 270; know date sight. damage—irreversible damage—which considerable supporting continuing, magnitude unknown. 59 technical procedure. commitment preservation statute's conveys responsibly accept representations complete treatment capability required. One acquire expertise matters, parochial demanded capability.2 today excuses performance. following spirit told better. affirm judgment. term refer commercial use—for example, steel junked automobile. '(A)ll shall— '(A) systematic, interdisciplinary approach insure integrated social sciences design arts planning decisionmaking man's '(B) identify methods procedures, ., presently unquantified amenities values along economic considerations; '(C) legislation environment, responsible official on— '(i) action, '(ii) cannot avoided implemented, '(iii) alternatives '(iv) local short-term uses maintenance enhancement long-term productivity, '(v) irreversible irretrievable commitments resources implemented. 'Prior obtain involved. Copies views Federal, State, authorized standards, President, section 552 processes ..' None fault problem. has, dropped down. Following form implied questions forth 4332(2)(C)(i)—(v). effects. alternative, Congress choose ways place burden subsidies Commissioner Brown ample decided, Deason dissented. collected suspension. subject 13. Wichita, railroad. inadequate explain departure long-standing invalidated charges, enjoined Seven Justices voted reverse relief, four equitable considerations related primary barred see discussion, 298, absent unlawfulness precluded After 1975, payment suits Public Law 93—584, 88 1917. enforceable contempt. cite nothing reject refuse enforcing contempt, ignored. repeatedly exercised orders, 'set aside' Chicago, M., St. P.R. 366 745, 746, 81 1630, 1631, 772 (1961); Ayrshire Collieries Corporation 331 132, 141, 67 1168, 1173, 1391 (1947); (1971). requested briefs 'injunctions' 'setting determinations soundness legislative 2325. Before 1948, governed Urgent Deficiencies Appropriations 1913. 220. part: 'No suspending of, judge circuit acting judge, same judges, whom majority judges concur brought expedition apply.' seen, prerequisite restrained. revision codification enactment positive law, replaced 2321—2325. reviser's notes, authoritative construction 1948 revision, Lines, 81—82, 69 955, 956, 957, 1226 (1949); Stainback Mo Hock Ke Lok Po, 336 368, 376 12, 606, 611, 741 (1949), state derives 'title U.S.C., 1940 ed., (Oct. 22, 1913, ch. 32, 220),' principle Ryder, 110 729, 740, 196, 201, 308 (1884), 'will inferred legislature, revising consolidating laws, intended policy, intention expressed.' intent here, includes orders. words, inevitably restrains 'enforcement, execution,' contended Griffin, 303 226, 233, 601, 604, 82 764 (1938), Commission' refusal status. 234, 605. Insofar negative-order Procter Gamble 225 282, 761, 1091 (1912), Griffin longer Jones, 641, 647, 787, 791, 938 Rochester Tel. 307 125, 145, 754, 764, 1147 (1939). notion Railway Mail Pay money, 426, 442, 1410, 1419, 1451 Failure always pay Unless ancillary minima, 348 (1932), he establishes 13(1). cut off injured shippers. one, Tel holding, regard, jurisdictional. deprived plaintiff 'independent legal right.' F.Supp., 496. merits namely seek 18, infra. tentatively otherwise. disposition seems justified seem contention resolve issue. Part policies, regulations, laws interpreted administered accordance policies chapter,' 4332(1); chapter 'approach attainable depletable resources.' ultimately 'gave weight value' reaching justified. involve circulate made. Calvert Cliffs' Co-ordinating Committee AEC, 146 33, 449 1109 Greene County Planning FPC, 445 (CA2), cert. denied, 409 849, 56, (1972); Harlem Valley Stafford, 500 328 (CA2 1974), differently, conflict than, build prison. E.g., Hanley Mitchell, 460 640 denied sub nom. Hanly Kleindienst, 990, 313, 256 act period, i.e., concluded, agree, standards Dayton-Goose Creek 263 456, 480, 169, 172, 68 388 (1924); 265 267, Rates, 1970 339 125 209 criteria limit transport deficit how benefited caused present statutes, reduce zero. Appellants assume very absolute amount low applies ores competes. 295, paper nonferrous comparison compete, them. small. 310, recent hurt industries particular. Guidelines, 1500.6(d)(1). opposition heavily rely, wisdom exploring commenced purpose, acquiesced overlooked, wholly this. Apparently consequent pointlessness forcing duplicate efforts NARI, suggestions mootness. moot. decision; write NARI right. thrust mootness interests anyone. portion Compare, Lathan Brinegar, 506 677 (CA9 York 344 929 (EDNY 1972). matters. Attachment letter Russell Train, Chairman Oct. App. 572. Section 102(2)(A) 'utilize environment.' 4332(2)(A).

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