Legal Document

426 U.S. 548 96 Supreme Court Reporter 2295 49 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 FEDERAL ENERGY ADMINISTRATION et al., Petitioners,v.ALGONQUIN SNG, INC., al. Number 75-382. Argued April 20, 1976. Decided June 17, Syllabus Section 232(b) of the Trade Expansion Act 1962, as amended by 1974, provides that if Secretary Treasury finds an "article is being imported into in such quantities or under circumstances to threaten impair national security," President authorized "take action, and for time, he deems necessary adjust imports (the) article its derivatives so . (of article) will not security." When it appeared a prior program established § adjusting oil was fulfilling objectives, initiated investigation. On basis this investigation found crude related products were security, accordingly recommended appropriate action be taken reduce imports. Following recommendation, promptly issued Proclamation, Inter alia, raising license fees on oil. Thereafter, respondents eight their Governors, 10 utility companies, Congressman brought suits against petitioners challenging ground, they beyond President's authority 232(b). The District denied relief, holding valid delegation power impose imports, procedures followed imposing fully complied with statute. Appeals reversed, does authorize fee scheme method but encompasses only use "direct" controls quotas. Held : authorizes President. Pp. 558-571. (a) constitute improper power, since establishes clear preconditions Presidential including finding security. Moreover, even these are met, can act extent 232(c) sets forth specific factors him consider exercising his authority. 558-560. (b) In authorizing (an) derivatives," 232(b)'s language clearly grants measure discretion determining used there no support statute's authorization "adjust" should read encompass quantitative methods, I. e., quotas, opposed monetary fees, effecting adjustments; limit word would comport range trigger language. 561-562. (c) Furthermore, legislative history amply indicates extends imposition exactions, duties, belies any suggestion Congress, despite broad statute itself, intended confine quotas bar from system one question. 562-571. 171 U.S.App.D.C. 113, 518 Federal Reporter, 2nd 1051, reversed remanded. Sol. Gen. Robert Haw. Hawai‘i KFH45 A2 Bork, Washington, D. C., petitioners. Francis X. Bellotti, Atty. Gen., Harold baron Dondis, Boston, Mass., respondents. Mr. Justice MARSHALL delivered opinion Court. 1 76 Statutes-at-Large 877, 127(d) 88 1993, 19 Code KF62 1862(b) (1970 ed., Supp. IV), 2 security."1 3 All parties case agree petroleum What we must decide whether also control them exactions form fees. 4 * predecessor originally enacted Congress 7 Agreements Extension 1955, chapter 169, 7, 69 166 (see n. 21, Infra ), 8 1958, Public Law 85-686, 72 678. advisory function currently performed Director Office Defense Mobilization (ODM) 1955 1958 statutes. But, like 232(b), those statutes allowed President, threatening "to deem(ed) ." 1959, Eisenhower, having been advised ODM " 'crude principal security,' invoked version provision Mandatory Oil Import Program (MOIP). Proclamation 3279, Regulations 11 (1959-1963 Comp.); U.S.Code Cong. & Admin.News Page 948. MOIP, designed gap between domestic supply demand encouraging development production refinery capacity, imposed importation products. wholly successful, however, face consumption which continued grow faster than production, Presidents Kennedy, Johnson, Nixon each felt compelled amend permissible quota levels. App. 211-212. 5 light Cabinet task force conclusion then constituted, objectives,2 Nixon, acting pursuant radically 1973. 4210, 31 (1974); 1973, 3407. suspended existing tariffs provided "for gradual transition long-term adjustment through .. institution applicable oil, unfinished oils, finished Id., At 32, This gradually increasing schedule importers. With respect scheduled increase initial 1/2 cents per barrel May 1, 21 1975. most products, rise 15 63 November 1975.3 36. While initially some exempted requirements, exemption levels decrease annually 1980 all 6 Nixon's 1973 apparently did fulfill objectives directed. Accordingly, Treasury, see Supra, January 4, 1975, determine effects security products." Memorandum Simon Assistant MacDonald (Simon Memorandum), 154. directs "if (to do so, to) hold public hearings otherwise afford ierested opportunity present information advice" part investigation, interfere "national interests" "inappropriate" case. Memorandum, therefore proceeded without hearing call submissions interested nongovernmental parties. submitted report Ford 14, Intimating measures had indeed solved problems directed, indicated States' dependence foreign 1966 sources accounted well over third consumption. concluded "crude derived natural gas coal tar (and) foregoing 133. 9 findings, "appropriate Ibid. agreed findings Secretary's "necessary consistent further discourage petroleum, .." 4341, 3A (1975), 2470. Invoking 23, which, effective immediately, raised so-called "first-tier" at 553, maximum previously reached months later.4 Supra. covered first-tier not, supplemental $1 entering after February $2 March $3 1975.5 Finally, reinstated Soon issuance Energy Administration (FEA) import regulations order implement new program. 40 Fed.Reg. 4771-4776 (1975). 12 Four days issued, Governors,6 companies,7 KF105 F3 Drinan Massachusetts challenged two filed Administrator FEA, Treasurer Columbia. Seeking declaratory injunctive alleged constitutional statutory authority, procedural steps taken, (hereinafter Government) violated National Environmental Policy 1969 (NEPA), 83 852, 42 4321 Et seq., By failing prepare environmental impact statement 13 respondents' motions preliminary injunctions fact conclusions law request respondents, later declared final. See 124, 126, 1062, 1064 (1975) (appendix dissenting Appeals). court 128-129, F.2d, 1066-1067. It ruled conformed requirments 130, 1068. held "in view emergency nature problem need prompt action," 131, 1069, Government required file hence violation NEPA. 14 Respondents' appeals judgments consolidated petitions Columbia Circuit review FEA implementing allegations challenges substantially same actions, adding contention failed follow certain provisions Act, 97, 761 seq. IV). Appeals, judge dissenting, 1051 According court, reading "would anomalous departure" "the consistently explicit, well-defined manner has delegated trade tariffs." 117, 1055. court's view, Congress' "adjust article" encompassed 121, 1059. Finding address other issues raised, judgment Court, instructed enter relief set aside regulations. We granted Government's petition certiorari, 423 923, 265, 46 249 (1975),8 now reverse. Both lead us conclude case.9 II Atlantic 16 Preliminarily, reject construe narrowly avoid "a serious question unconstitutional power." Respondents Brief 42. Even system, standards implementation sufficient meet doctrine attack. 17 Hampton, Jr., company versus States, 276 394, 48 348, L.Ed. 624 (1928), upheld constitutionality empowering duties equalize differences costs similar articles. There, stated: 18 "If shall lay down intelligible principle (President) directed conform, forbidden 409, S.Ct., 352. easily fulfills test. A leeway gives deciding what take event fulfilled far unbounded. "he And 232(c), Articulates series considered 232(b).10 our recognition "(n)ecessity fixes point unreasonable impracticable compel prescribe detailed rules .," American Power Light SEC, 329 90, 105, 67 133, 142, 91 103 (1946), looming delegation11 affect B 20 seems grant find methods adjustments. Indeed, suggested limitation inconsistent given Under (Emphasis added.) emphasized reflects "not quantity coming in: use, availability, character" could endanger potential action. 104 Cong.Rec. 10542-10543 (1958) (remarks Rep. Mills). unlikely have dangers posed strict level justify confined Unless assumes, always feasible dealing directly threats "circumstances" country, limiting effectively artificially prohibit very 22 Turning 232's history, again much suggest duties. original enactment periodic reconsideration subsequent years substantial grounds type here. 23 During congressional testimony increased damage various industries whose viability perceived critical security.12 effort deal problem, Senate Committee Finance several proposals supplement provision, known Symington Amendment,13 barred reductions "on reduction needed projected defense requirements." July 1954, 464, 2, 68 360.14 Among amendments proposed Senator Neely relevant part: 24 "(T)he Such restrict commodities whenever retard expansion maintenance resource determines essential Hearings H.R. before Finance, 84th Cong., 1st Sess., 1033 (1955) (emphasis added).15 25 explaining Amendment, Martin, cosponsors, explained necessary, Or protect industry concerned." 2097 added). Thus, Amendment restricting 26 reported out committee, strikingly Byrd-Millikin substitute eventually law. recommendations made ODM, S.Rep. 232, (1955), 2106.16 Given similarity operative proposals, fair infer if, Martin stated, too Amendment. 27 debate floor lends Millikin himself stated contradiction whatever (including of) tariffs, taxes restriction." 101 5299 (1955). As legislation's sponsors, explanation deserves accorded weight interpreting Woodwork Mfrs. Assn. NLRB, 386 612, 640, 87 1250, 1266, 357 (1967); Schwegmann Bros. Calvert Distillers Corp., 341 384, 394-395, 71 745, 750-751, 95 1035 (1951).17 28 Millikin's stand alone, Byrd, another Amendment's colloquy Saltonstall put "On agricultural commodities. simply leaves discretion, imports." Rec. 5297 reference phrase Agricultural Adjustment subject earlier exchange Byrd Thye. 5296 allows "Impose limitations" commodity. 773, amended, 624(b) Byrd's comparison thus appears reflect understanding extended fees.18 29 note statements lend direct Bennett entire scope restrictions, stockpiling, variation programs particular industry." 5588 (1955).19 Barkley, member expressed allow "impose may believe desirable maintain at298 30 House following passage 5655, acceptance minor modification conferees, H.R.Conf.Rep. 6-7 2136, indications exactions. Cooper, chairman Ways Means Conference Committee, concern "Any duty (because retaliation abroad) inevitably result curtailment exports States." 8161 Cooper presented letter received Gerald Morgan, Special Counsel administration's "could situation." 8162.20 when finally 166,21 Agreement Members both Houses Executive Branch, too, Amendment.22 Three later, context consideration re-examined provision. course deliberations, Subcommittee Foreign 1957 expressing views Branch tariff (was) adopted."23 Fully aware then, understood recommend change wording more bounds authorization. contrary, approval own "those best able needs (with) way taking Whatever threat H.R.Rep. 1761, 85th 32 changes criteria guide determination might added limitations take.24 8, re-enactment, conditions action" "as 33 next came up re-examination, re-enacted material 1962. analysis placed great emphasis deliberations passed deleted, 2518, 87th (1962), 3133, amendment provided: 34 "Notwithstanding law, may, interest, proclaim 35 "(1) rate necessary; 36 "(2) (if duty) 37 "(3) restrictions necessary." 108 19573 (1962). 38 inferred rejection limited "explicitly (given) claims derives implicitly (232(b),)" U.S.App.D.C., 1059, refusal enact tantamount interpretation 39 disagree, Appeals' assessment amendment. reality articulation contained Unlike rejected proposal executive department prerequisite interest" proposal, together lack language, stands stark contrast narrower criterion security" 232(c)'s invocation powers decline proposed, rejected, Only few initiate here, once change. 93-618, 1993. Making mention conference recited itself reaffirm "may prevent impairment 93-1644, 93-1298, Pages 96-97 (1974), 7186. acquiescence manifested re-enactment yet corroboration means 41 Taken whole To provision's enactment, 1974 repeated expressions actions contrary cannot stand. Contract final order. Our today one. themselves acknowledge, albeit price quantity. 26. consequence, supported compels Any take, long remote authorized. 43 remanded proceedings opinion. 44 So ordered. full: "Upon head agency, upon application party, motion, referred 'Secretary') immediately make seek advice from, consult with, Defense, Commerce, officers request, application, motion. shall, reasonable notice, subsection effect and, based recommendation inaction section within year receiving party beginning subsection. If advise unless 1862(c) IV) guidance provides: "For purposes section, requirements excluding factors, give capacity anticipated availabilities human resources, raw materials, supplies services defense, growth investment, exploration, assure growth, goods terms quantities, availabilities, character, requirements. administration recognize close relation economic welfare Nation competition individual industries; unemployment, revenues government, loss skills resulting displacement excessive considered, weakening internal economy Task Force Control, Question 128 (1970). plan, motor gasoline reach 97. alter exemptions eliminated until 1980. increases go twice deferred. 4355, 2485; 4370, 45 2498. went 4377, 53 2503, never $3. 3, 1976, fee. Pres.Proc. 4412, (1977), 262. Infra. joining suit Governors Connecticut, Maine, Massachusetts, New Jersey, York, Pennsylvania, Rhode Island, Vermont. State Minnesota intervened plaintiff complaint respondent companies Algonquin Inc., England Co., Bedford Gas Edison Cambridge Electric Canal Montaup Connecticut Hartford Western Holyoke Water Subsequent granting signed Conservation 89 871, 6201 V). That aimed decontrolling domestically produced indicating (oil license) fee" served announced elimination (1977). He eliminate (1974). Since enjoin here remains live controversy. Anti-Injunction 7421(a), "no purpose restraining collection tax maintained person applies restrain assessable Internal Revenue Codes 1954 1939. §§ 7851(a)(6)(A), 7851(a)(6)(C)(iv). assessed neither rather conferred 1974. "taxes" Act. rely decision Cable Television 415 336, 94 1146, 370 argument. But distinguishable today. Television, community antenna television systems measured "value recipient" though general allowing setting federal agencies, 483a, permits "public policy interest served, pertinent facts." Court's words last-quoted CATV situation motivated desire conclusion. U.S., 342, 1149. open-ended facts" 232(b)' making act. amount Imposed varies among five geographical districts Nation. (1975); seize argue contravenes Article I, cl. Constitution requires uniform throughout States. issue properly Sustaining Uniformity Clause argument call, invalidation scheme, it. represent affirmance below, invalidated regulations, judgments. cross-petition precluded seeking modification. Mills Auto-Lite 396 375, 381 90 616, 620, 593 See, E. g., Means, 1006 (analytical balance industry), 1264 (petroleum industry) (1955); 602 (lead zinc mining 721 (coal codified somewhat modified 1862(a). adequate 50, 2071. separate portion 15, single named protection Differing represented benefited expansive "blur(s) probative value," 120, 1058 explanation. Many pieces legislation sponsored constituents special passage, let diminish sponsor's statements. above-quoted imports," suggests extend Note, Harv.L.Rev. 432, 435 characterized Bennett's remarks going bill laws." 119, 1057. examination persuades us, probably copy Morgan sent Chairman Finance. 8162 "In reason agrees belief, cause immediate facts. If, connection therewith, unmindful that, out, giving 5572 Sen. Humphrey); 5582, 5584 Douglas); 5593 Monroney). nowhere debates Limited fact, feel fortified attaching positive discussed above limited. Policy, Compendium Papers Collected Staff 643 (1958). while "quantities" threatened "under circumstances" 561.

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