Legal Document

480 U.S. 572 107 S.Ct. 1419 94 L.Ed.2d 577 CALIFORNIA COASTAL COMMISSION, et al., Appellants,v.GRANITE ROCK COMPANY No. 85-1200. Argued Dec. 2, 1986. Decided March 24, 1987. Syllabus The Mining Act of 1872 authorizes a private citizen to enter federal lands explore for mineral deposits, perfect mining claim, and secure patent the land by complying with requirements regulations promulgated thereunder. Appellee Granite Rock Co. holds unpatented claims on federally owned in national forest located California. In accordance regulations, obtained approval from Forest Service 1981 its 5-year plan limestone lands, began mine shortly thereafter. 1983, California Coastal Commission (Commission), acting pursuant (CCA), instructed apply coastal development permit any undertaken after date Commission's letter. Under CCA, is State's zone management program purposes Zone Management 1972 (CZMA), which provides financial assistance States programs defines so as exclude "lands use law subject solely discretion or held trust Federal Government, officers agents." filed suit District Court declaratory injunctive relief ground that requirement was pre-empted Regulations, 1872, CZMA. court denied Rock's motion summary judgment dismissed action. Appeals reversed, holding requirement, enforced state environmental standards, regulations. Held: 1. case not moot even though operations expired during course litigation. Because asserts needed work letter, may require reclamation efforts prevent river pollution resulting has already occurred. disputes authority such reclamation. Also, it likely will submit new plans operation future, dispute would continue enforcement conditions permit. This does have appellate jurisdiction under 28 U.S.C. § 1254(2) because invalidated only exercise portion statute itself required 1254(2). However, treating jurisdictional statement petition certiorari, granted. Pp. 579-581. 2. Neither nor statutes, CZMA pre-empts imposition an claim forest. 579-594. (a) Property Clause Constitution—which gives Congress plenary power legislate lands—does automatically conflict all regulation lands. question this governed usual pre-emption analysis whereby if evidenced intent occupy entirely given field or, where displaced regulation, actually conflicts law. (b) governing authorized (which expressed no legislative then rarely contemplated regulation), do justify facial challenge might be imposed requirement. It appropriate expect administrative declare intention pre-empt some specificity. here are devoid expression law, but rather appear assume those submitting comply protection laws. 581-584. (c) There merit contention statutes—the Land Policy National Act—demonstrate limit purely advisory role decisions, therefore impermissible regulation. Even assumed (without deciding issue) combination Acts extension impose planning. indicated understanding planning distinct activities, thus anomalous maintain intended forests per se present posture litigation, identification possible set sufficient rebuff 584-589. (d) CZMA, excluding definition zone, demonstrate congressional applied claim. CZMA's language history expressly disclaim activities Congress' statements indicate independent cause except cases actual between 589-593. 768 F.2d 1077, reversed remanded. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, MARSHALL, BLACKMUN, JJ., joined, Parts I II POWELL STEVENS, joined. POWELL, concurring part dissenting part, post, p. ----. SCALIA, opinion, WHITE, Linus Masouredis, San Francisco, Cal., appellants. Barbara R. Banke, appellee. Jeffrey P. Minear, Washington, D.C., U.S., amicus curiae, special leave Court. Justice O'CONNOR 1 presents whether statutes 16 1451 seq. (1982 ed. Supp. III), 2 * Company privately firm mines chemical pharmaceutical grade white limestone. 17 Stat. 91, amended, 30 22 seq., deposits. If person locates valuable deposit land, perfects properly staking other statutory requirements, claimant "shall exclusive right possession enjoyment surface included within lines their locations," 26, although United retains title land. holder perfected thereunder, see 43 CFR 3861.1 (1986), and, upon issuance patent, legal passes holder. around Mount Pico Blanco Big Sur region Los Padres Forest. 3 From 1959 1980, removed small samples area analysis. 36 228.1 submitted removal substantial amounts discussed location appearance operation, including size shape excavations, access roads, storage overburden. App. 27-34. prepared Environmental Assessment plan. Id., at 38-53. recommended modifications plan, responsible Acting Ranger approved 1981. 54. Shortly modified operations, mine. 4 Cal.Pub.Res.Code Ann. 30000 (West 1986), undertaking development, mining, must Commission. §§ 30106, 30600. According exercises police constitutes described infra, ---- - 1983 letter.1 5 immediately action Northern seeking enjoin officials compelling 2201 ed., III). alleged Both sides agreed there were material facts dispute. 590 F.Supp. 1361 (1984). Ninth Circuit reversed. 1077 (1985). acknowledged "go far establishing standards," specifically noting "recognize enact addition established agencies," "will [the standards] exercising authority." F.2d, 1083. "an system enforce standards undermine Service's own pre-empted." Ibid. 6 appealed We postponed consideration hearing merits, 475 1094, 106 1489, 89 891 (1986). 7 First we address two issues. expired. controversy remains live one, however, reasons. First, letter 22-24. admitted done date. 83. "reclamation [has] occurred, measures into Little River." Tr. Oral Arg. 8. efforts. Second, stated answer interrogatories "investments regarding valid continuing beyond Plan Operations," conduct issue "as long [Granite Rock] can economically viable applicable laws." 83-84. Therefore future. future participation consistency review process, ----, placed called compliance permit, over itself, than could one capable repetition yet evading review. See Wisconsin Dept. Industry v. Gould Inc., 282, 285, n. 3, 1057, 1060, 223 (1986); Dunn Blumstein, 405 330, 333, 92 995, 998, 31 274 (1972). Accordingly, moot. 8 second consider our authority, 1254(2), decision appeals appeal "held invalid repugnant Constitution, treaties laws States. . ." Statutes authorizing strictly construed. Silkwood Kerr-McGee Corp., 464 238, 247, 104 615, 620, 78 443 (1984); Perry Education Assn. Local Educators' Assn., 460 37, 43, 103 948, 953, 74 794 (1983). As noted Silkwood, supra, S.Ct., "we consistently distinguished struck down" treaties, States, without reference statute." latter group fall Court's jurisdiction. 9 case, particular did invalidate CCA. fact, discuss CCA Rock. 30008 1986) (limiting "consistent laws"). Accordingly statute," treat 2103, having so, grant reverse Appeals. III 10 argue Indeed, record disclose what place Rather, argues, law—that pre-empted. 11 "Congress shall Power dispose make needful Rules Regulations respecting Territory belonging States." Const., Art. IV, cl. "repeatedly observed" " '[t]he public entrusted limitations.' Kleppe New Mexico, 426 529, 539, 96 2285, 2291, 49 34 (1976), quoting 310 16, 29, 60 749, 756, 84 L.Ed. 1050 (1940). suggests invests unlimited also exempts Kleppe, 543, 2293, considered "totally unfounded" assertion Secretary Interior had proposed interpretation Clause. made clear "the State free criminal civil laws" explained Kleppe: 12 "Absent consent cession undoubtedly territory, equally surely legislation And when acts, necessarily overrides conflicting Supremacy Clause." (citations omitted) (emphasis supplied). 13 agree enacted obtain To follow been guided numerous occasions: 14 "[S]tate either general ways. evidences field, falling [Pacific Gas & Electric Energy Resources Conservation Development Comm'n, 461 190,] 203-204 [103 1713, 1721-1722, 75 752 (1983) ]; Fidelity Savings Loan De la Cuesta, 458 141, 153 [102 3014, 3022, 73 664] (1982); Rice Santa Fe Elevator 331 218, 230 [67 1146, 1152, 91 L.Ed 1447] (1947). matter question, still extent is, impossible both Florida Lime Avocado Growers, Inc. Paul, 373 132, 142-143 [83 1210, 1217-1218, 248] (1963), stands obstacle accomplishment full objectives Congress, Hines Davidowitz, 312 52, 67 [61 399, 404, 85 L.Ed.] (1941)." 248, 621. A. 15 basically three arguments support finding alleges Government's demonstrates assert indications should lead conclusion Finally, declared excluded conclude these not, independently combination, concedes originally passed, Brief 31-32. 1955, passed Multiple Use Act, 69 367, 601 provided Government retain manage resources subsequently claims. 612(b). delegated Agriculture "rules regulations" "regulate [the] occupancy use" forests. 551. Through delegation Department Agriculture's "use System lands" Rock, who conducted minimize adverse impacts resources." 228.1, 228.3(d) Operations If, claims, unhindered find Hillsborough County Automated Medical Laboratories, 471 707, 718, 105 2371, 2377, 714 (1985), specificity: "[B]ecause agencies normally problems detailed manner speak through variety means, they intentions intend exclusive. Thus, agency pre-emption, pause before saying mere volume complexity fact pre-empt." 18 Upon examination, explicitly operators air quality 228.8(a) water 228.8(b), disposal treatment solid wastes, 228.8(c). provide that, pending final officer approve necessary timely 228.5(b) added). subsection 228.8, "[r]equirements protection," provides: 19 "(h) Certification issued relating accepted similar parallel regulations." (Emphasis supplied.) 20 divine contemplate coincident well contends inconsistent statutes. 21 Given unsurprising team expected "Granite obtaining permits Commission." 46. Decision Notice Finding No Significant Impact modifications, stating: "The claimant, his rights granted Law Departments Interior. further and/or county laws, ordinance." B 23 argument 24 1976 pieces affecting (FLPMA), 90 2744, 1701 Interior's Bureau managing lands; (NFMA), 2949, 1600-1614 Solicitor General, point aspects indicating decisions. For example, NFMA directs "develop, maintain, appropriate, revise resource units System, coordinated processes local governments 1604(a). FLPMA developed consistent maximum Secretary] finds law," calls Secretary, "to he practical," keep apprised plans, "assist resolving, practical, inconsistencies non-Federal plans." 1712(c)(9). 25 discussion issue, onto Commission2 30233 (quality waters); 30253(2) (erosion); 30253(3) (air pollution); 30240(b) (impact environmentally sensitive habitat areas). 26 While regulatory Commission, ability declares "provide involvement allowable 30004 1986). Since detail exactly connection various understood allow circumstances. maintained seek prohibit 1080 ("The argues preempt unless prohibits altogether. .") supplied); F.Supp., 1373 [Coastal Commission] seeks 'veto,' regulate Rock's] activity reason CCA's deprive Act"); Defendants' Memorandum Points Authorities Opposition Plaintiff's Motion Summary Judgment C-83-5137 (ND Cal.), pp. 41-42. ("Despite characterization 'veto' ban activity. [T]he presented merely uses them. Put another way, determine basic land: carried out more resource-protective fashion"). 27 line always bright; hypothesize severe become commercially impracticable. core each phrase different. essence chooses land; core, mandate requires however used, damage environment kept prescribed limits. activities. above, 1712(c)(9) practical." preceding subsection, Secretary's control air, water, noise, implementation 1712(c)(8). illustrated delegating different agencies. purpose 228, subpart A "set forth rules procedures" next sentence "[i]t resources; responsibility Interior." clearly envisioned hypothetically overlap instances, types most differentiation. Considering generally distinguishable them distinct, until demonstrated case. true enforcing entirely. By choosing against discovering lost possibility making stand attached previous section, Whether pre-empted, insists altered means occupied concededly case—then implemented Conversely, reasonable create none previously existed. talismanic. C 29 involves programs. Section 304(a) 1453(1), State, excludes Commerce, administers interpreted 1453(1) zone. 923.33(a) exclusion agents" limited process once Commerce grants, "any applicant license application certification complies state's [state] program." 1456(c)(3)(A). At same time, copy certification. notice hearings, notify concerned concurs objects fails six months receiving notification, presumed concurs. neither concur, reject application, "otherwise interest security." 32 order review, list agencies, describes type applications wishes 930.53 unlisted, days inform 930.54. waives unlisted appears listed 930.53, 17. Therefore, waived 1981-1986 operations. 33 Absent pre-emptive effect decide, first, meant second, several CZMA; statements, conflict, end inquiry. Title 1456(e)(1) "Nothing chapter construed— 35 "(1) diminish jurisdiction, responsibility, planning, resources, submerged navigable waters; displace, supersede, limit, modify interstate compact legally joint common states Government; authorize fund projects. Senate Report above section "a standard clause disclaiming fields affected Act," change agreements." S.Rep. 92-753, Conference stated, "[t]he Conferees adopted certain specified fields, lands." H.R.Conf.Rep. 92-1544, (1972), U.S.Code Cong. Admin.News 1972, 4776, 4794, 4824. categories 1456(e)(1), refusal alter balance clearest "Purpose" Report, quoted full: 37 "[The CZMA] main encouragement preparing implementing preserve, protect, develop whenever restore bill grants-in-aid Additionally, grants help implement approved, aided acquisition estuarine sanctuaries. providing grants-in-aid, incentives undertake setting up attempt preemption. enhance encouraging assisting powers zones." 1, 4776 38 disclaimed pre-existing "coastal zone," IV 39 broad absolute; rejection correspondingly narrow. argued whatever conditions, defeat challenge, identify Rather evidencing while arguably expressing distinguish 40 Following examination "almost impenetrable maze relevant legislation," 606, concludes "[i]n view ., sense, control. issue; sphere Clause, "evidences field," suggestion traditional inapt context justified, all, "duplicative." description duplicative, course, based POWELL's conclusions indistinguishable, virtue being form duplicate disagree assertions, pre-empt, 41 Contrary today "conflict views Service," hold barren conflict. take condemning basis unidentifiable scheme. 42 remanded proceedings opinion. ordered. 44 whom STEVENS joins, part. 45 us, join Part III, considers operate cannot dissent III. 46 47 understand knowledge groups first provisions regulates mining. explains, source ch. 152, general, opens exploration. discovers him extract sell minerals paying royalty right—subject requirements—to fee 22; Locke, 84, 86, 1785, 1788, 64 demand increased past century, emphasized "economically sound stable domestic industr[y]" important economy, Nation's security. Minerals 1970, 21a.1 48 concerns response increasing commercial importance awareness values That promotes effective ways pertinent inventory comprehensive development. 1701(a)(2), 1711, 1712. ensures States' interests ignored: "[T]he coordinate [his plans] located. Act." 50 Significantly, listen obey explained: ultimate determining feasible Secretary's] [state local] rests 94-1724, 58 1976, 6175, 6229. 51 3809.0-5(c) Organic Administration 1897. current version delegates Service, delegate, "use" Persons wishing detailing anticipated determines approves operation. focusing concern preservation forests, characterizes "environmental" something "land Ante, 587-589. 52 complicated suggests. respect Interior, directed Rangeland Renewable Planning 1974 (Forest Act) 3(a), 1601. initially regulators. But amended Act. Of importance, 6(a) "with governments." give "adequate opportunity comment formulation criteria, guidelines programs." 1612(a). best regulators decision. how used. 53 policy. shrugs off obligation, 'the [mineral] Interior.' 588 (quoting (1986)). erroneously equates management. Code details (BLM) context. Generally, BLM manages protected others, payment royalties conservation themselves. cases—like oil, gas, coal—BLM supervises leasing materials. "hardrock" 1872. With minerals, BLM's actions laws; recorded; assessment performed; patenting complied with. pts. 3800-3870 None determinations determination sense balancing hazard resources. makes 54 1897 act policy promoting precludes taking "prohibit entering proper lawful purposes, prospecting, locating, developing thereof." 478.2 materials confirm duty renewable agency's reasonably protect environment." Agriculture, Program Handbook preface Manual 2802 (Dec. (stating "ensure exploration, production energy integrated resources"); 1602. sum, task delegate Service. 55 focuses selected larger examines themselves, apart assumes standards. Careful comparison casts serious doubt conclusion. regulation: quality, 228.8(b); waste disposal, mention preserved 228.8 specific nonpre-emption clauses 7418(a) (Clean Air analogous regulations); 1323(a) (similar provision Clean Water Act); 6961 Solid Waste Disposal Act). regulation—already law—hardly implicit Indeed maxim expressio unius est exclusio alterius contrary.3 56 FLPMA. assumes, ante, 585, "pre-emp[t] nevertheless conducting distinction planning" "environmental regulation." view, unsupportable, logic. 57 cited proposition 202(c)(8) FLPMA, 1712(c)(8), little majority's mandating separation recognizes affect environment, Nor conclusion, 6, standards.4 "applicable" difficult controlling command viewing complex whole, simply recognition 59 stating resources," this, enforces engage misunderstands division 597-598, entail evaluation impacts. acknowledges "responsible 585. direct Similarly, commands promulgate "occupancy These integral ignores broader accessible development.5 matters BLM; wholly troubling feature divorced realities holding. cautions allows "reasonable" veto allowing proceed, forbid force close misses point. authority—here Commission—the abdication unprecedented.6 61 Apart my disagreement accords weight forest, nature 62 One factor relative regulating matter. Cf. 66-69, 403-405, 581 (1941). curiously attaches significance fact. "Power Utah Light 243 389, 387, 791 (1917). empowers area. light constitutional allocation power, us less reluctant contexts. 63 particularly intrusive takes separate, system. recognized, especially intrude effectively project. International Paper Ouellette, 479 481, 495, 805, 93 883 (1987); Iowa Hydro-Electric Cooperative FPC, 328 164, 66 906, 911, 1143 (1946). Although duplicative systems cases, certainly careful dangers evident reflects interests: protecting harm. associated restricting Allowing strike 65 Furthermore, 595-597, afforded communicate charged used.7 ensured reflect serve purpose. potential decisions obvious disadvantages. summary, fair say commencing created almost half-dozen augmented Executive. wonder generated considerable confusion. need single, Having said least intolerable decisionmaking.8 "belonging Yet, twofold matters. result regulators, whose dissent. 68 WHITE dissenting. California's 578.1 merits decided simpler narrower grounds addressed seems me ultimately irrelevant since errs entertaining "its regulation," 589; mischaracterizes [is] 593. speculate was. dealing abstract, purporting mandated numbered known plainly statute, device. Its character now agreeable issuing satisfied. Since, quite correctly invalid. 70 permit," 30600 Chapter (entitled "Development Controls"), "development" zone—a term defined include construction, "change density intensity land," 30106—must government conformity state-approved exists, "is prejudice prepare 3." 30604. "local programs" refer consist parts: (1) (2) zoning ordinances, maps, actions. 30511(b), 30512, 30513. comply, consists largely prescriptions—for developments recreational opportunities preferred, 30213; oceanfront suitable 30221; facilities priority residential, industrial, agriculture coastal-dependent industry, 30222; aquaculture use, 30222.5; serving fishing boating industries feasible, upgraded, 30234; amount prime agricultural production, 30241; converted nonagricultural circumstances, 30242; conversions timberlands timber processing related facilities, 30243; coast, 30252; near shoreline, 30255; industrial encouraged locate expand existing sites, 30260.2 71 hardly clearer compound certainty, designated "[a] constitute permissible 1454(b)(2), "[a]n proposes exert [those] uses." 1454(b)(4). 72 control—and evaluated (or water) afoot. if, willing postulate, employ device exacting assurances, hinges permitting authorize: use. status received requested location, justification requiring go motions ultra vires request chance permission limitations. inconceivable labor union certified bargaining agent sought purpose, "[b]y [State] [certification], union] possibility" prevailing. 14. equivalent here. other, summarily affirmed: State] lessee, persists eventually granted." Ventura Gulf Oil 1080, 1085 (1979), aff'd, 445 947 [100 1593, 782] (1980). assumption, therefore, using ignore requirement—unless question. straightforward believe anything requires: demanding read follows: 76 "Because significant enjoyed concommitant [sic ] diminution discretionary control, among Consequently, seaward boundary legislature January 1977, 77 "This obligation 30106 site letter." 22. contains hint constraints opposed program. litigation stage—both Appeals—the be) controls alternative position. sweeping override Juris. Statement A-4, A-12, A-24. pressed here, rejected lower courts. 1080-1081 (CA9 1985); 1361, 1370-1371 Cal.1984). perfectly clear, litigating position—and late-asserted that. 79 On analysis, validity lawfulness refusal, depend Blanco. lacks account 1600 assumption correct. Those consult assure compatible objectives. 1456(c)(3)(A), 1604(a); 1712(c). superfluous, limitation accommodation meaningless, correct purport quo regard 15-19. exclusion, provisions, demonstrate, 80 lingering charge administering Amicus Curiae, original California, 1978 mirroring government, Cal.Stats., 1331, 1075, codified 81 Any competent lawyer, faced responded precisely lawyers essentially did: Our thank you, State. teeth plain legislation, violation assurance gave designating achieve, management, controls. ear representation demanded. assures objective achieve occasion decide (as today) More likely, arise arisen past, voluntary concerns—an occur neglected participate proceedings. 576-577, 591. 82 affirm below failing raise manner. adopt Programs, ordinance, 30500, 30513 involved directly. 30600(a), (c); ("We're permitting, government. issues criteria itself"). Materials Policy, Research 2(a)(1), 1601(a)(1) (congressional availability essential security, economic well-being, production"); 2(a)(3), 1601(a)(3) extraction "closely linked environment"); 1602 ("[I]t promote adequate supply well-being attention long-term healthy natural conservation, social needs"). recently, solicitude led President "coordinate departments to, encourage facilitate meet critical needs." 1602(7). stated: "[W]e [an agency's] Id. 2377. Hillsborough, designed ensure health plasma donors, aim separate purity donated plasma. contrast, authorities effects reconsider authorities. event, rest alone, Congress. considering separately source. explain, 604-606, slightly preserve standards; mentions noise 4901(a)(3) (Noise Control "primary governments"). slight difference lists insignificant. 599-600. lack surprising, because—with respect—it rational difference. puts it: "Land limits." 587. explanation separates reasons parcel inappropriate, steps taken environment. divides other. Common expert agency, factors furthers policies. express deals primarily NFMA. influencing decisionmaking process. Coast, voiced concerns, determined, hearing, otherwise object years failed complaint forfeited imply supra. believe, indicates passage rejects indistinguishable sees harm supersede officials. 593-594. rely parties "capable review." 578. Assuming submits again why evade Weinstein Bradford, 423 147, 149, 347, 348, 350 (1975). Moreover, repetition," "reasonable expectation complaining party [will] subjected again." directly again, 578; able accomplish wants Act's procedures, think so. 30600.5(b) time devolves ibid. Regardless governmental entity certified, 30604(a), program, 30604(b), conform 30512(c), 30512.1(c), 30512.2. classic tools devices, showing obviously devices 3. terms former establish contrary proposition, holding, majority relies nothing counsel oral itself." 586, Read literally (i.e., inferring adverb "exclusively"), (the contain criteria) unhelpful conditioned contradict position stages lawsuit, 1440-1441.

Classification Label: 7