Legal Document

484 U.S. 49 108 S.Ct. 376 98 L.Ed.2d 306 GWALTNEY OF SMITHFIELD, LTD., Petitionerv.CHESAPEAKE BAY FOUNDATION, INC. and Natural Resources Defense Council. No. 86-473. Argued Oct. 5, 1987. Decided Dec. 1, Syllabus Section 505(a) of the Clean Water Act authorizes private citizens to commence a civil action for injunctive relief and/or imposition penalties in federal district court against any person "alleged be violation" conditions National Pollutant Discharge Elimination System (NPDES) permit. Between 1981 1984, petitioner repeatedly violated its NPDES permit by exceeding authorized effluent limitations. However, due installation new equipment, petitioner's last reported violation occurred May 1984. Nevertheless, June having given notice their intent sue petitioner, Environmental Protection Agency (EPA), state authorities, as required § 505(b) Act, respondents filed suit alleging that "has . [and] will continue violate permit." The District Court denied motion dismissal want subject-matter jurisdiction under rejecting contention 505(a)'s language requires defendant violating at time suit, holding alternative satisfied jurisdictional requirements because complaint alleged good faith was continuing filed. Appeals affirmed, agreeing with suits on basis wholly past violations, finding it unnecessary rule Court's holding. Held: 1. does not confer over citizen violations. Pp. 56-63. (a) Although "to is without ambiguity, most natural reading requirement citizen-plaintiffs allege either continuous or intermittent violation—that is, reasonable likelihood polluter pollute future. Congress' failure choose statutory looked simply result "careless accident" unpersuasive, since provisions several other environmental statutes authorize only prospective use identical 505(a)'s, while demonstrate Congress knows how avoid implications using explicitly targets Also untenable argument that, EPA compliance order 309(a) parallel phrase, incorporated reference into enforcement 309(b), may bring actions recover citizens, too, maintain such actions. 309 equitable separate distinct provisions, including 309(d), which provides but contain 505(a)'s. In contrast, same sentence suggests connection between two remedies, supports conclusion seek brought enjoin otherwise abate an ongoing violation. 56-59. (b) structure rest 505's make plain harm sought addressed lies present future rather than past, particularly light pervasive undeviating tense throughout 505. Any would render gratuitous 505(b)'s provision, purpose give violator opportunity itself complete thus unnecessary. Moreover, 505(b)(1)(B)'s bar once governmental way meant supplement, supplant, action, supplemental role could undermined if violations were permitted, might intrude upon discretion enforce public interest. 59-61. (c) Act's legislative history indicates 505 intended pollution remedy 61-63. 2. confers courts when plaintiffs good-faith allegation It necessary prove allegations noncompliance before attaches, statute require "be commencement violation." Federal Rule Civil Procedure 11 adequately protect defendants from frivolous allegations. injury are sufficient this standing cases invoke court, Constitution plaintiff offer proof threshold matter. Furthermore, longstanding mootness doctrine continuation after plaintiff's become false has begun comply Act. Since declined decide whether respondents' contained case must remanded consideration question. 64-67. 791 F.2d 304 (CA4 1986), vacated remanded. MARSHALL, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, WHITE, BLACKMUN, JJ., joined, Parts I II STEVENS, O'CONNOR, SCALIA, joined. concurring part judgment, STEVENS post, p. ----. E. Barrett Prettyman, Jr., Washington, D.C., petitioner. Louis F. Claiborne, respondents. Justice MARSHALL Court. 1 case, we also known Pollution Control 33 U.S.C. 1365(a), 2 * (Act), 86 Stat. 816, 1251 et seq. (1982 ed. Supp. III), enacted 1972 restore chemical, physical, biological integrity Nation's waters." 1251(a). achieve these goals, 301(a) makes unlawful discharge pollutant navigable waters except specified sections 1311(a). 3 One 402, establishes (NPDES). 1342. Pursuant 402(a), Administrator (EPA) issue permits authorizing pollutants accordance conditions. 1342(a). 402(b), each State establish administer own program conforms guidelines approved Administrator. 1342(b). calls suspend issuance subject program. 1342(c)(1). 4 holder Administrator's arsenal includes administrative, civil, criminal sanctions. 1319. both comply. §§ 1319, 1342(b)(7). absence enforcement, of" 1365(a)(1). If prevails impose payable United States Treasury. 1365(a). 5 Commonwealth Virginia established federally administered Board (Board). Va.Code 62.1-44.2 (1950). 1974, issued ITT-Gwaltney seven company's meat-packing plant Pagan River Smithfield, Virginia. permit, reissued 1979 modified 1980, limitations, monitoring requirements, discharge. 1981, Gwaltney Smithfield acquired assets assumed obligations 6 limitations five covered. These chronicled Monitoring Reports maintain. See 9 Record, Exh. 10. substantial concerned fecal coliform, chlorine, total Kjeldahl nitrogen (TKN). October 27, August 30, TKN limitation 87 times, chlorine 34 coliform 31 times. Stipulation, 3. Petitioner installed equipment improve chlorination system March 1982, 1982. Id., 7-8. helped control recorded February 10-A. upgraded wastewater treatment 1983, 15, 7 Respondents Chesapeake Bay Foundation Council, nonprofit corporations dedicated protection resources, sent 1984 Gwaltney, EPA, Board, indicating intention based proceeded file Doc. 5. requested provide declaratory relief, penalties, award attorney's fees costs. granted partial summary judgment declaring have 84-0366-R (ED Va. Aug. 1984). then held trial determine appropriate remedy. 8 Before reached decision, moved 1985 argued 505(a), Act,1 suit. urged adopt analysis Fifth Circuit Hamker v. Diamond Shamrock Chemical Co., 756 392 (1985), "a [§ 505] occurring filed." 395. contended weeks complaint, lacked action. 44. rejected Gwaltney's argument, concluding found "[t]he words 'to violation' reasonably read comprehending conduct solely prior filing lawsuit well continues present." 611 F.Supp. 1542, 1547 Va.1985). view, construction supported underlying policy goals 1550. 1549, n. 8. 10 expressly Circuit's approach "can comprehend 304, 1986). concluded consistent structure, history, purpose. observed "[a] very sound can made [respondents'] faith," holding, disposition case. 308, 9. Subsequent Fourth opinion, First had occasion construe took position different Circuit, "the citizen-plaintiff fairly alleges defendant, enjoined, again proceed Act." Pawtuxet Cove Marina, Inc. Ciba-Geigy Corp., 807 1089, 1094 (1986). precludes there pattern even no moment We certiorari resolve three-way conflict Circuits. 479 1029, 107 872, 93 827 (1987). now vacate remand A. 12 settled starting point interpreting itself." Consumer Product Safety Comm'n GTE Sylvania, Inc., 447 102, 108, 100 2051, 2056, 64 766 (1980). ambiguous, whereas asserts plainly adopted below. agree provision limpid prose puts end all dispute. But acknowledge ambiguity conclude interpretations equally plausible. phrased ("to violated"), did readily available option. 13 urge choice phrase violation," phrasing more clearly directed accident," "debatable lapse syntactical precision." Brief orientation escaped attention. used relief. See, e.g., Air 42 7604; Resource Conservation Recovery 1976, 6972 III); Toxic Substances 15 2619 IV). demonstrated yet implication violations.2 14 counter reasoning observing "is orders. 1319(a). That 1319(b). Because little questioned contend, mean some initial plausibility, cannot withstand close scrutiny comparison provisions. ability discussed 309(b); mentioned until language. 1319(d). This recently recognized 309(d) constitutes grant authority: 16 "Section 1319 309] intertwine penalties. Instead kind separably provision. Subsection (b), providing independent subsection (d), penalties." Tull States, 481 412, 425, 1831, 1839, 95 365 17 separately relief; rather, forms referred subsection, sentence. noticeably absent agency enforcement. A refutes our unlike Administrator, B 18 Our bolstered together interest primarily forward-looking. 19 striking indicia "which effect" 1365(f). Citizen-plaintiffs violator, "occurs." 1365(b)(1)(A). Governor fails another causing adverse effect health welfare his State." 1365(h). telling definition "citizen" adversely affected" defendant's 1365(g). what strongly suggests: future, past. 20 incomprehensible 60 days' State. commences within 60-day period, barred, presumably rendered unnecessary.3 1365(b)(1)(B). follows logically likewise assume, urge, target becomes gratuitous. Indeed, respondents, propounding interpretation think reason "it seemed right" inform about sued. 14. 21 Adopting create second disturbing anomaly. supplement supplant reinforces view Senate Report noted Committee intends great volume [to] State," proper "if Federal, State, local agencies fail exercise responsibility." S.Rep. 92-414, (1971), reprinted Legislative History Amendments 1972, 1482 (1973) (hereinafter Leg.Hist.). Permitting undermine supplementary envisioned danger best illustrated example. Suppose identified 309(a). further agreed assess condition take extreme corrective install effective expensive machinery, obliged take. months years later, chose forgo, curtailed considerably. said authorities. Respondents' scope change nature citizens' interstitial potentially intrusive. result. C 22 additional support Members frequently characterized "abatement" measures. Legislation, Hearings Subcommittee Public Works, 92d Cong., 1st Sess., pt. 114 (1971) (staff S. 523) ("Any ."); id., 2, 707 (Sen. Eagleton) ("Citizen abating pollution"); H.R.Rep. 92-911, 407 (1972), Leg.Hist. 876 (additional views Reps. Abzug Rangel) ("[C]itizens institute polluters halting 118 Cong.Rec. 33693 163 Muskie) violations"); 33717, 221 Bayh) ("These sorts suits—in obtain injunction money damages himself—are useful tool enforcing laws"). 23 House connected nature. supra, 79, 1497 (Citizen participation "modeled 1970"); H.R. Rep. 133, 820 ("Section closely concepts utilized section Act"). acknowledgment identity Acts accidental; share common central permitting government command compliance. understanding term art mere stylistic infelicity reinforced adherence precise formulation. S.Conf.Rep. 92-1236, 145 328; 820; 1497. 24 much fact Senator Muskie, one principal authors sponsors bill, deviated formulation point, expressing right who be, been, 33700 179 (emphasis added). When viewed context, however, Muskie's statement full context Senator's remarks follows: 25 "This [notice] intended, cut off [with respect] place days earlier been continuous. As original approprate violation, one, occasional sporadic one." Ibid. 26 surrounding text Muskie clear polluter—one violates month out every three—is just "in violator. His "occasional sporadic" include "wholly past" contend. written oral colleagues. summarizing, stated merely "[c]itizen violations." 33693, 163. Noticeably lacking here, bear weight them.4 III 27 necessarily dispose lawsuit, lower recognized. persuasive "[respondents'] suit[,] appears fully faith." F.Supp., On basis, held, albeit footnote, "even correct entirely still here." acknowledged, F.2d, 9, consideration. 28 argues attaches 37-43. agree. suit; Petitioner's reads word "alleged" quick note contexts, believe drafting sloppy haphazard. Solicitor General "Congress's 'alleged reflects conscious sensitivity practical difficulties detecting proving chronic episodic standards." Amicus Curiae 18. suffice purposes, litigants license flood premised baseless Rules Procedure, pleadings belief, formed inquiry, they "well grounded fact," protects 29 contends whose untrue though lack constitutional standing. reasons suffered remediable Petitioner, recognize uniformly court. Warth Seldin, 422 490, 501, 2197, 2206, 45 343 (1975), example, dismissed "allegations fact"—not supporting affidavits.5 say, challenged. SCRAP, 412U.S. 669, 689, 2405, 2417, 37 254 (1973), plaintiffs' [of standing] untrue, [defendants] should sham raised genuine fact." showing offers evidence allegation, proceeds merits, where prevail. matter jurisdiction. 30 worries citizen-plaintiffs, later litigation begins nonetheless press conclusion. According contravene "case controversy" Article III. Longstanding principles mootness, prevent maintenance " 'there expectation wrong repeated.' W.T. Grant 345 629, 633, 73 894, 897, 97 L.Ed. 1303 (1953) (quoting Aluminum Co. America, 148 416, 448 (CA2 1945)). seeking moot, burden heavy U.S., S.Ct., 897. "absolutely allegedly wrongful behavior expected recur." Phosphate Export Assn., 393 199, 203, 89 361, 364, 344 (1968) Mootness unconnected wrongdoing, evade sanction predictable "protestations repentance reform." Oregon Medical Society, 326, 333, 72 690, 696, 96 978 (1952).6 below erroneously therefore vacated, proceedings opinion. 32 so ordered. whom O'CONNOR join, judgment. join Part misreads peculiar form 35 concludes exists Thereafter, according interpretation, never called allegation. Ante, 65. creates regime extraordinary, my knowledge unique. which, carry those (if contested) not. thinks find produced jurisprudential anomaly conclusion, seems me quite contrary, ignores statute. 36 states "any behalf ." There course nothing unusual proposition lawsuit. Proof required, practicably stage. From unexceptionable statute, inferences made: (1) inference chooses, commencing maintaining it, (2) must, contested, proved. favor first prefer eccentric routine. ingrained law question challenging sufficiency accuracy facts alleged. Land Dollar, 330 731, 735, 4, 67 1009, 1011, 91 1209 (1947); Thomson Gaskill, 315 442, 446, 62 673, 675, 951 (1942); KVOS, Associated Press, 299 269, 278, 57 197, 201, 81 183 (1936); McNutt Motors Acceptance 298 178, 189, 56 780, 785, 80 1135 (1936). Had us eliminate challenge, extraordinary consists instructions fashion specifying commenced. therefore, resolved day date brought. violating" committed act—the opposite lucky Nor dubious problem recurring cause completely eradicated. company standard limitation, remains, purposes long put remedial measures defeat success attempted remedies Subject-matter "depends things brought"; existed brought, "subsequent events" "ous[t]" Mollan Torrance, Wheat. 537, 539, 154 (1824); see, Smith Sperling, 354 91, 93, 77 1112, 1113, 1205 (1957); St. Paul Mercury Indemnity Red Cab 303 283, 289-290, 58 586, 590-591, 82 845 (1938). clarity cure novel theory meets concern 'the violations,' ante, 65, quoting 38 Thus, taken steps achieved curing claim mine differ greatly application. They would, almost certainly produce results Va.1985) (District stating faith, relied post-complaint uncertainty cured). insignificance, puzzling willingness impute creation unprecedented scheme need 39 Even survive grounds jurisdiction, While (or appeal Appeals) denial dismiss standing, raise see Reply 17-18, event obligation inquire doubtful, Bender Williamsport Area School Dist., 475 534, 541, 106 1326, 1331, 501 undisputed filed, suffering reflected itself, defines "an affected." Middlesex County Sewerage Authority Sea Clammers 453 16, 101 2615, 2624, 69 435 (1981). 40 Accordingly, consider actual existence. To sure, practice it. Havens Realty Corp. Coleman, 455 363, 378, 102 1114, 1124, 71 214 (1982); Combs 408 224, 227-228, 92 2284, 2286, 308 (1972) (per curiam ). Of call attention interpreted class terms possibly sue. entirety, codified, provides: "Except provided section, behalf— "(1) (including (i) (ii) instrumentality extent permitted eleventh amendment Constitution) (A) chapter (B) respect "(2) perform act duty discretionary "The shall regard amount controversy citizenship parties, order, duty, apply 1319(d) title." For Solid Waste Disposal amended "past present" generator, transporter, owner, operator treatment, storage, disposal facility "who contributed contributing" handling, transportation, certain hazardous wastes. 6972(a)(1)(B) ed., III). Prior waste standards. 6972(a)(1). recent amendments administrative judicial process violated" Quality 1987, 314, Pub.L. 100-4, 46. specifically barred commenced compliance." 1365(b)(1)(B) precluded compliance, nonrecurring rely 1987 inter alia, gave authority proceedings. statements penalty resulted 11. contend demonstrates 99th conclusions Congress, hardly probative Congress. Rainwater 356 590, 593, 78 946, 949, 996 (1958). arguments well. consciously describe wants do so. supra. bills tense, compare 99-189, 99-50, pp. 26, bill. 2206 ("Art. III's remains: palpable himself .") added); Linda R.S. Richard D., 410 614, 617, 1146, 1148, 536 ("[W]e steadfastly adhered threatened resulting putatively illegal assume jurisdiction") (footnotes omitted; emphasis Baker Carr, 369 186, 204, 691, 703, 663 (1962) ("Have [plaintiffs] personal stake outcome assure concrete adverseness sharpens presentation issues largely depends illumination difficult questions?") Under protected suddenly repentant costs "whenever determines appropriate." 1365(d). "should extend successful abatement reach verdict. instance, proceeding verdict issued, abated expenses borne prosecuting actions." 1499.

Classification Label: 7