Legal Document

426 U.S. 1 96 Supreme Court Reporter 1938 48 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 434 Russell TRAIN, Administrator of the Environmental Protection Agency, et al., Petitioners,v.COLORADO PUBLIC INTEREST RESEARCH GROUP, INC., al. Number 74-1270. Argued Dec. 9, 1975. Decided June 1, 1976. Syllabus The Federal Water Pollution Control Act (FWPCA) makes it unlawful to discharge "pollutants" into navigable waters without a permit from Agency (EPA), and defines term "pollutant" include, Inter alia, "radioactive materials." Atomic Energy (AEA) regulates production, possession, use three types radioactive materials source, byproduct, special nuclear pursuant its authority under AEA Commission (AEC) (now succeeded in this capacity by Nuclear Regulatory Commission) has issued regulations governing such environment licensees. After EPA had disclaimed any FWPCA regulate these covered AEA, respondents, who claimed potential harm effluents two plants Colorado operated conformity with AEC standards, brought suit against petitioners, Administrator, seeking declaration that definition encompasses all materials, including those regulated an injunction directing petitioners materials. District held exclusive discharges but Appeals reversed, holding, exclusively reference FWPCA's language legislative history, requires AEA. Held : 1. To extent excluded history discerning meaning statute, court was error, for "(w)hen aid construction words, as used is available, there certainly can be no 'rule law' which forbids use, however, clear words may appear on 'superficial examination.' " versus American Trucking Assns., 310 534, 543-544, 60 1059, 1063-1064, 84 L.Ed. 1345, 1350-1352. Pp. 9-11. 2. reflects congressional intention not alter AEC's control over Therefore, subject regulation do include acted accordance his statutory mandate declining 11-25. 10 Cir., 507 Reporter, 2nd 743, reversed. Atlantic Raymond Randolph, Jr., Washington, D. C., petitioners. David C. Mastbaum, Boulder, Colo., respondents. Mr. Justice MARSHALL delivered opinion Court. issue case whether (EPA) (FWPCA), amended 1972, 86 Statutes-at-Large 816, 33 Code KF62 § 1251 Et seq. (1970 ed., Supp. IV), 2 [Amicus Curiae Information page 3 intentionally omitted] Nation's waterways waste gulation successors 1954 (AEA). 68 919, amended, 42 2011 In terms, question are within FWPCA. * Respondents Colorado-based organizations residents claim Fort St. Vrain Generating Station Rocky Flats weapons components plant. These facilities effluent standards imposed Act. dispute arises because set own govern Respondents, taking EPA's disclaimer authority, 505 FWPCA, 1365 authorizes "citizen suits" failure perform nondiscretionary duties They sought terms 1954, 4 On cross-motions summary judgment, 373 F.Supp. 991 (1974). Tenth Circuit holding coved 743 Because importance involved case, we granted certiorari. 421 998, 95 2393, 44 664 (1975). We now reverse. II 5 Since 1946, when first passed, 755, Government exercised production atomic energy through replaced since commencement litigation (NRC) Research Development Administration (ERDA).1 Under private parties permitted engage industrial or commercial purposes, only licenses furtherance purposes 2133. 6 comprehensive regulatory scheme created embraces source material,2 material,3 byproduct material.4 carrying out authorized establish "such . (it) deem necessary desirable product health minimize danger life property." 2201(b). See also §§ 2073(b), (e), 2093(b), 2111, 2133(a), (d), 2134(d). Pursuant established maximum permissible releases Regulations 20.106 App. B, Table (1976). further provide licensees should, addition complying limits, "make every reasonable effort maintain low reasonably achievable." 20.1(c) Similarly, require designed keep levels material "as 50.34a 50.36a, 50.57(a)(3), (6) (1976)5 7 program abate water pollution, stating ultimate objective elimination 1985. objective, calls achievement limitations applications "best practicable technology currently available" July 1977, available economically achievable" 1983. 1311(b) IV). enforced program. or, if State developed complies State.)6 1311(a), 1342 8 defined materials."7 But adopted program, 40 CFR, pt. 125 (1975), he specifically upon understanding relevant FWPCA: 9 "The 'radioactive materials' included 'pollutant' section 502 covers encompassed latter Examples and, therefore, radium accelerator produced isotopes." 125.1(y) (1975) (citations omitted).8 It Administrator's exclusion consequent refusal them, precipitated instant lawsuit. presented with, then, e III 11 resolved statute. observed "pollution" "the man-made man-induced alteration chemical, physical, biological, radiological integrity water." 1362(19) And noted materials" express qualification exception, despite fact overall does contain explicit exceptions.9 concluded analysis Congress meant All explained: 12 "In our view, statute plain unambiguous should given obvious meaning. Such being need here concern ourselves 1972 Amendments. regard would note parenthetically view Amendments conflicting inconclusive. Be may, before us address ofttimes difficult task ascertaining intent history. Here, clearly manifested itself, resort history." F.2d, at 748 omitted). 13 dcerning meaning, error. As have before: When however 1064, 1351 (1940) (footnotes Cass States, 417 72, 77-79, 94 2167, 2170-2171, 668, 673-674 generally Murphy, Old Maxims Never Die: "Plain-Meaning Rule" Statutory Interpretation "Modern" Courts, 75 Col.L.Rev. 1299 shall see, sheds considerable light 14 Before turning various pause consider additional argument asserted respondents basis Section 1311(f), they note, provides follows: 15 "Notwithstanding other provisions chapter radiological, biological warfare agent high-level waters." 1311(f) 16 suggest inconsistent one prohibit "radiological agents" "high-level waste," both regulation, while same time exempting AEA-regulated see inconsistency. That chosen ban completely certain not, indicate wanted argue further, Congress' phrase "(n)otwithstanding chapter" suggests otherwise This entirely logical appeal, determinative. Like more general based materials," must assessed background legislave IV 17 speaks force Act's House Committee Report quite subject: 18 bill includes materials.' 'Radioactive beyond jurisdiction Commission. Act, 'pollutant,' H.R.Rep. 92-911, Page 131 (1972), Leg.Hist. 818 (emphasis added).10 19 version bill, H.R. 11896, 92d Cong., Sess., 502(6) 1068, contained broad did Senate S. 2770, 1st 502(f) (1971), 1697, ultimately enacted FWPCA; definitions identical. Moreover, provision codified banning agents Act." Supra, 301(e), 965. Thus, Committee, describing import precise concerned, cautioned 20 find indication regulation. 306 corresponds 1316 required "standards performance" respect pollutants specified categories sources, revised Administrator. fuels processing were included, then technical capability controls plants." S.Rep. 92-414, 59 U.S.Code Cong. & Admin.News Pages 3668, 3725; 1477. "expects will develop capability," continued: 21 Bureau Radiological Health, transferred determine achieved fue plants. If particular added list new sources soon possible." Ibid. 3725. 22 Petitioners assert statement bearing statement, suggest, than recognition, shared referred intended wholly reach recognition their means polluting short, contend 23 agree addressed inclusion category control, "pollutant." true development Health11 inference contemplating Still, prepared attribute greater significance Report, that, amply supported discussion floors Senate. 24 A colloquy floor between Senator Pastore, Chairman Joint Energy, Muskie, primary author, strong intend referring define what "subject requirements" 1265. following exchange took place: 25 "MR. PASTORE. 26 "My this: Does measure been reported committee way affect existing law, is, insofar powers concerned material? 27 MUSKIE. not; act legislation. 28 change feature regard? 29 correct. 30 N Immigration Nationality Decisions thank Senator. 31 May say addition, legislation dealing setting involve powerplants pending courts. aware litigation. 32 "For example, recent decision U. Eighth Circuit, Norern Power Light Minnesota, raises issue. like point considered speaking decision, chose remain silent so prejudice appeal it. Yes. matter fact, pre-empt field law. opinion, hope way, am with. 34 correct evaluation point." Id., 1265-1266. 35 "merely reiterates AEC" Brief 40-41. exchange, assert, says nothing about consistent, claim, position defer NRC conform permits disagree. 36 thrust Muskie's assurances "in affect" was, think, retain full unaltered exercise agency conclusion reinforced Northern company 447 1143 (CA8 1971). subsequently affirmed summarily Court, 405 1035, 92 1307, 576 pervasive scheme, vesting power AEC, pre-empting regulating discharges. absence room state role limits plants12 stands sharp contrast envisions programs, 1342(b), (c) allows adopt stringent 1370 1311(b)(1)(C), 1314(b), 1316(c), 1341(a)(1) IV).)13 specific assurance Pastore law interpreted viewed, unaltered.14 37 course House's consideration unsuccessful attempt made AEA's case. Representative Wolff proposed amend gives pollutants, adding paragraph giving wastes debate amendment defeat 3-to-1 vote solid support grant encompass 38 amendment, according "give voice deciding kinds amounts discharged 544. explaining come "to seriously promulgated AEC." 545. Frenzel, co-sponsor pictured result explained, could expected protect safety public effectively dual mission promotion well safety." 548.15 39 opponents voiced opposition transfer Or EPA. Stanton, Member Public Works, stated: presents very complex proposition. proposes take pollution places hands For normal operations involving properly belongs peculiar field. date, operation itself. Eventually, delegated knowledgeable people level become time, yet arrived. Until stage speak points 92-911 (quoted 11), accompanies bill. reason, oppose offered my distinguished colleague." 554-555. 41 Price, Vice argued establishes 510 restrictive desire. aimed so-called thermal seeks collaterally relative them statutes might affected. target obvious. reverse decisions courts preempted Government, acting Commission, most Clearly, House, undertaken after thorough examination impact done directly amending piece original legislation, appropriate hearings pertinent factors decision. go explanation factors, nor place instance. vehicle major thoroughly Congress, direction 556. 43 McCormack, Works Science Astronautics Committee's Task Force Development, urged amendment's similar terms. noting inadvisability "throwing away" "meticulous work" area favor 550, concluded: "(I)t report body 1954. applies such, all." 551.16 45 urge States' reflect foreclose leaves Several reliance Report's coverage FWPCA.17 Neither Frenzel interpretation amendment,18 indeed arguable premised assumption scope superfluous, Unamended IV) discharge. regardless underlying assumptions sponsors unacceptable. it, expressed question, preclude rejection offers stated 46 rather exclude unchallenged Conference simply retained bills. S.Conf.Rep.No. 92-1236, 144 327. Harsha, ranking member explained action 47 conference Senators Muskie body. 11896 March 28, overturned Minnesota gentleman California (Mr. Holifield) spoke pointed necessity changing careful division enunciated defeated House. 49 "I Illinois managers detracted 11896. states act. isotopes. adequately report." 226-227. 50 229 (remarks Rep. Jones). With expressing different action, proceeded Report. 276.19 V 51 outset, think abundantly review "plain meaning" contributes little marked significant embodied Far containing clr expect recognizing policy, cf. Continental Tuna Corp., 425 164, 168-169, 1319, 1322-1323, 653, 658-659 (1976), reflects, balance, preserve pre-existing plan.20 52 conclude, judgment 53 Reversed. 54 STEVENS part Reorganization 1974, 88 1233, 5801 licensing related functions NRC; ERDA assumed responsibility research facilities. 5841(f), 5842, 5814(c) refer cover formation, except where context designation ERDA. 'source material' (1) uranium, thorium, determined 2091 title material; (2) ores foregoing concentration time." 2014(z). 'special plutonium, uranium enriched isotope 233 235, 2071 title, determines material, artificially foregoing, material." 2014(aa). 'byproduct (except material) yielded exposure radiation incident process producing utilizing 2014(e). owned licensee, accordingly bound regulations. plant federal facility contractor fabricate plutonium weapon parts. responsible approximately Executive Order 11752, 4(a)(6), 384 Colorado, originated, approved April 8, Fed. Reg. 16713. dredged spoil, waste, incinerator residue, sewage, garbage, sewage sludge, munitions, chemical wastes, heat, wrecked discarded equipment, rock, sand, cellar dirt industrial, municipal, agricultural water. mean (A) 'sewage vessels' 1322 title; (B) water, gas, injected facilitate oil derived association gas disposed well, either disposal located, injection degradation ground surface resources." 1362(6) contrary. initial notice application published interpreting contemplated imposition "liquid wastes." depend reaching conclusion, unnecessary alleged inconsistencies warrant treating less deference See, E. g., Train Natural Resources Defense Council, 60, 87, 1470, 1485, 731, 750 (1975); Udall Tallman, 380 16-18, 85 792, 801-802, 616, 625-627 (1965). n. 7, Supra. Citations "Leg.Hist." two-volume print Legislative History 93d Sess. (1973). Health Department Education, Welfare 2(a)(3)(ii)(C) Plan 1970, 2087, U.S.C.App., 610. 1959, 73 688, 2021, assume, agreements limited quantities sufficient form critical mass. programs compatible 2021(d)(2), precluded playing several areas 2021(c)(1); 1143, 1149 n.6 101(b) 1251(b) generally: "It policy recognize, preserve, responsibilities rights prevent, reduce, eliminate plan (including restoration, preservation, enhancement) land resources, consult chapter. relating prevention, reduction, services financial interstate agencies municipalities connection pollution." Buckley indicative 511(c)(2)(B) 1371(c)(2)(B) precludes "impos(ing), condition precedent issuance license permit, limitation chapter." Referring Hudson River, asked bar "of type" tougher prescribed response abide "with raised." 198. raised interpret suggesting reached 552 Hungate), 555 McClory). 546-547 Holifield); 553 Hosmer); Clausen); 557 Harsha). comments Representatives Stanton quoted above, 587-588 Reps. Holifield, Jones, Hosmer). statements above recognized question. vest inadequacy mention prospect escape supporter McClory, adoption order make eminently controlling bill." 555. suggested merely clarified already provided, far persuasive indicator contrary successful amendment. Frenzel's day applied 745-746 entitled great weight. ERDA, rejected emission 119 Cong.Rec. 42615-42616 follow, play protecting excessive attributable 2086, 609. Among were: (that) consist establishing applicable environmental protection material. herein, exposures levels, concentrations outside boundaries locations persons possessing using 2(a)(6), 2088, message accompanying reorganization plan, President Nixon emphasized "retain implementation enforcement authority." 612. Petitioners' brief, views EPA, NRC, explains resultant "EPA limiting total amount prescribe licensed contribute total." 52-53 AEC-EPA Memoranda Understanding, Fed.Reg. 24936, 32965 Proposed Standards Radiation Operations, 23419

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