Legal Document

401 U.S. 402 91 Supreme Court Reporter 814 28 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 136 CITIZENS TO PRESERVE OVERTON PARK, INC., et al.,v.John Atlantic VOLPE, Secretary, Department of Transportation, al. Number 1066. Argued Jan. 11, 1971. Decided March 2, Syllabus Under § 4(f) the Transportation Act 1966 and 138 Federal-Aid Highway 1968, Secretary may not authorize use federal funds to finance construction highways through public parks if a 'feasible prudent' alternative route exists. If no such is available, he approve only there has been 'all possible planning minimize harm' park. Petitioners contend that violated these statutes by authorizing six-lane interstate highway Memphis In April 1968 announced agreed with local officials go park; in September 1969 State acquired right-of-way inside November final approval, including design, road. Neither announcement was accompanied factual findings. Respondents introduced affidavits District Court, indicating had made decision it supportable. filed counter sought take deposition former administrator. The Appeals found formal findings were required refused order Both courts held afforded basis for determining exceeded his authority. Held: 1. Secretary's action subject judicial review pursuant 701 Administrative Procedure Act. Pp. 409 413. (a) There indication here Congress limit or prohibit review. Pacific KF135 P2 410. (b) exemption 'committed agency discretion' does apply as have 'law apply,' rather than wide-ranging discretion. 410—413. 2. Although under 706 de novo approval need meet substantial-evidence test, reviewing court must conduct substantial inquiry, determine whether acted within scope authority, small range available choices, could reasonably believed feasible alternatives. find actual choice 'arbitrary, capricious, an abuse discretion, otherwise accordance law,' followed necessary procedural requirements. 413—416. 3. Formal this case. 417—419. relevant do require findings, ambiguity action. 417. regulation requiring issued after approved route, remand him administrative record facilitating full prompt 4. case remanded plenary decision. 419—420. lower courts' based on litigation affidavits, which are whole inadequate 419. view lack who participated give testimony explaining their make 420. 432 Federal Reporter, 2nd 1307, reversed remanded. John W. Vardaman, Jr., Washington, D.C., petitioners. Sol. Gen. Erwin N. Griswold, respondent, Transportation. Judge Alan Hanover, Memphis, Tenn., Charles Speight, Commissioner Tennessee Dept. Highways. Opinion Mr. Justice MARSHALL, STEWART. 1 growing concern about quality our natural environment prompted recent years enact legislation1 designed curb accelerating destruction country's beauty. We concerned 1966, amended,2 18(a) 82 Statutes-at-Large 823, 23 Code KF62 (1964 ed., Supp. V) (hereafter 138).3 These from prudent'4 allow harm'5 2 Petitioners, private citizens well national conservation organizations, expenditure funds6 park Tennessee. Their claim rejected Court,7 granted motion summary judgment, Sixth Circuit affirmed.8 After oral argument, stay halted and, treating application petition certiorari, review.9 400 939 246, 27 262. now reverse judgment below further proceedings Court. 3 Overton Park 342-acre city located near center Memphis. contains zoo, nine-hole municipal golf course, outdoor theater, nature trails, bridle path, art academy, picnic areas, 170 acres forest. proposed highway, be sixlane, high-speed, expressway,10 will sever zoo rest roadway depressed ground level except where crosses creek, 26 destroyed. segment Interstate I—40, part National System Defense Highways.11 I—40 provide major east-west expressway easier access downtown residential areas eastern edge city.12 4 Bureau Public Roads 195613 Administrator enactment prevented distribution section designated until determined requirements met. funding project was, however, available; state both sides park.14 concurred should built And city.15 Final project—the design—was 1969, reiterated restricted. approving design statement He did indicate why prudent routes changes reduce harm 5 invalid without findings16 independent determination but merely relied City Council.17 They also would around either north south. they argue prudent,' present plan include possible' methods reducing using two tunneling methods,18 that, at minimum, advanced drainage techniques19 along entire creek. 6 unnecessary did, fact, exercise own supported facts. respondents prepared specifically litigationWhich indicated contradicted petitioners, Administrator20 Park. 7 because those probing mental processes decisionmaker prohibited. And, believing authority wide narrow routes, contained 8 agree required. But we believe solely adequate. 9 A threshold question—whether petitioners entitled any review—is easily answered. Section Act, V), provides 'each Government States,' includes Transportation,21 statutory prohibition 'agency committed discretion law.' case, most certainly 'showing 'clear convincing evidence' * legislative intent' restrict Abbott Laboratories versus Gardner, 387 136, 141, 87 1507, 1511, 18 681 (1967). Brownell Shung, 352 180, 185, 77 252, 255—256, 225 (1956).22 10 Similarly, fall exception discretion.' This very exception.23 Berger, Arbitrariness Judicial Review, 65 Col.L.Rev. 55 (1965). history indicates applicable rare instances 'statutes drawn broad terms given law apply.' S.Rep. 752, 79th Cong., 1st Sess., (1945). 11 clear specific directives. 'shall program project' requires parkland 'unless (1) land, (2) all *.' V); 49 1653(f) V). language plain explicit bar parks—only unusual situations exempted. 12 Despite clarity language, recognize requirement 'feasible' admits little For matter sound engineering build other route.24 argue, 'prudent' engage balancing competing interests. weigh detriment resulting against cost safety considerations, factors, importance attaches factors whether, balance, 'prudent.' 13 endeavor intended. It obvious cases considerations cost, directness community disruption used whenever possible. transfer one jurisdiction another,25 always smaller outlay purse26 when since already owns land pay right-of-way. people live work parks, leave home up business. Such common substantially construction. Thus, intended equal footing preservation statutes. 14 clearly intend ignored27 Secretary.28 existence statutes29 protection paramount importance. few green havens lost unless truly particular reached extraordinary magnitudes. meaning, cannot finds unique problems. 15 Plainly, apply' thus inapplicable. start: standard determined. look 'reviewing shall hold unlawful set aside action, conclusions found' six separate standards.30 law' failed statutory, procedural, constitutional §§ 706(2) (A), (B), (C), (D) certain narrow, limited situations, 'substantial evidence.' equally circumstances 'unwarranted facts.' 706(2)(E), (F) 16 latter standards applicability. First, 706(2)(E) applied. alternative, 706(2)(F) applies is, applicable. 17 Review test authorized taken rulemaking provision itself, 553 adjudicatory hearing. See 556, 557 plainly function. K. Davis, Law Treatise 5.01 (1958). hearing regulating conducted purpose informing eliciting views route. 128 nonadjudicatory, quasi-legislative nature. produce action—the basic H.R.Rep.No.1980, Sess. Petitioners' argument fails. De facts' circumstances. factfinding procedures inadequate. issues before raised proceeding enforce nonadjudicatory situation exists here. 19 Even though ultimately generally inquiry. Certainly, presumption regularity. See, e.g., Box & Basket company White, 296 176, 56 159, 163, 80 L.Ed. (1935); Chemical Foundation, 272 1, 14—15, 47 6, 71 131 (1926). shield thorough, probing, in-depth 20 first decide Schilling Rogers, 363 666, 676—677, 1288, 1295—1296, 1478 (1960). naturally begins delineation L. Jaffe, Control Action 359 As shown, specified choices can make. Also involved initial inquiry facts said range. consider properly construed involve uniquely difficult able alternatives 21 Scrutiny end, 706(2)(A) finding To consideration error judgment. supra, 182. McBee Bomar, 235, 237 (CA6 1961); re Josephson, 218 174, 182 (CA1 1954); Western Addition Community Organization Weaver, 294 F.Supp. 433 (ND Rptr. California (West’s) 1968). Wong Wing Hang Immigration Naturalization Serv., 360 715, 719 (CA2 1966). into searching careful, ultimate one. empowered substitute its agency. 22 Here alleged failure reason allowing Undoubtedly, hampered absence necessarily Secretary. nor Moreover, 553(a)(2), 554(a) although some directives ambiguous, rare. Yonkers States, 320 685, 64 327, 88 (1944); American Trucking Ass'ns 344 u.S. 298, 73 307, 319—320, 97 337 (1953). here; N Dec. Nationality Decisions 40 project. 24 even impose made, regulations them. DOT Order 5610.1,31 approves approved.32 effect time retrospective represents Court's Thorpe Housing Authority, 393 268, 281—282, 89 518, 525—526, 474 (1969), applied 25 resulted attempt evict tenant federally funded housing suggested eviction tenant's objections management repeated requests, Authority explanation claimed interfered her First Amendment rights reasons afford denied due process. denial relief courts, certiorari 'to (the tenant) process Authority's refusal she contest sufficiency reasons.' U.S., 272, S.Ct., 520. While pending Urban Development inform tenants opportunity reply. then HUD them general rule 'that appellate renders decision.' 281, 526. question 5610.1 constitutes decision, compels us findings.33 Here, unlike Thorpe, change circumstances—additional cleared 26-acre purchased State. allows full, additional delay result having That not, us. presented. 'post hoc' rationalizations, Burlington Truck Lines 371 156, 168—169, 83 239, 245—246, 207 (1962), traditionally supra; SEC Chenery Corp., 318 80, 87, 63 454, 459, 626 (1943). constitute 'whole record' compiled agency: n. 30, supra. 29 Thus decision.34 bare disclose considered evidence justifiable standard. 30 Of decisionmakers usually avoided. Morgan, 313 409, 422, 61 999, 1004—1005, 85 1429 (1941). same strong showing bad faith improper behavior made. way effective examining themselves. Shaughnessy Accardi, 349 280, 75 746, 99 1074 (1955). 31 prepare information adequate will, extent, hoc rationalization' viewed critically. decides necessary, method prove expeditious so soon 32 Reversed 33 DOUGLAS took 34 Separate opinion BLACK, whom BRENNAN joins. 35 wrong reversed. think sent back apparent today completely comply duty imposed upon permit financed run congressional command lightly solemn highest law-making body Nation beauty health-giving facilities away roads hearings, factfindings, policy determinations supervision Cabinet officer—the connection aid legislation,1 seems me, calls hearings—hearings review, hearings demonstrate more mere arbitrary defiance Whether out labeled 'formal' 'informal' appears me semantics. Whatever might be, regret am compelled conclude myself too-late formulations, apparently coming Solicitor General's office, word finger Congress. duty, believe, deserves good-faith obedience obviously passed protect forays road builders imperative circumstances.2 dissent send whose yet performed. 36 BLACKMUN. 37 fully join wish obvious: comes end product decade solve problem decisions attack single Secretary; predecessor him, Commerce's Roads. (3) cut across new conditions largely developed. 38 undoubtedly sketchy less expect instituted passage Environmental Policy 852, 42 4321 seq. Education 84 1312, 1531 (1970 ed.); Air Quality 1967, 81 485, 1857 Improvement 1970, 114, 4371—4374 ed.). 'It hereby declared special effort preserve countryside recreation lands, wildlife waterfowl refuges, historic sites. cooperate consult Secretaries Interior, Development, Agriculture, developing transportation plans programs measures maintain enhance lands traversed. August 23, publicly owned park, area, refuge national, State, significance Federal, thereof, site recreational refuge, use.' 824, date Ibid. 103. originated Columbia. On transferred Tennessee, entered 1307 1970). ordered heard expedited schedule. 250 450 feet follow presently existing, nonaccess bus carries occasional traffic 40- 50-foot 103(d) express bypass At Commerce. 1651 became acquisitions 1967 shortly 4(f). paid $2,000,000 $206,000 Commission replace destroyed highway. $1,000,000 160-acre anticipated remaining money. issue petitioners' pleadings complaint read revealing light Conley Gibson, 355 41, 78 99, (1957), challenged merits Bridwell's account 3, meeting Council Senate Subcommittee Committee Works supports charge. Hearings Planning, Location, Design Works, 90th pt. Pages 478—480 (1968). bored tunnel cut-and-cover tunnel, covered construction, built. greatly increase project, create hazards, increases air pollution provided mechanical pumps form inverted siphon. devices often wanted Bridwell. 17, addition, makes 1655(h) Rusk Cort, 369 367, 379—380, 787, 794, 809 (1962). extensive commentary. Arbitrariness: Synthesis, Yale L.J. 965 (1969); Saferstein, Nonreviewability: Functional Analysis 'Committed Agency Discretion,' Harv.L.Rev. 367 (1968); Not Always Reviewable, 51 Minn.L.Rev. 643 (1967); Sequel, 601 114 Cong.Rec. 19915 (statement Rep. Holifield). 15, 24037 Sen. Yarborough). S.Rep.No. 1340, 18—19; H.R.Rep.No.1584, 12, U.S.Cong. Admin. News, Page 3482 supplied beyond reach 24036—24037. ambiguous. committee reports tend support respondents' disruption, factors. 19; 12. Statements proponents report indicate, 24033—24037; S.Rep.No.1659, 89th 22. H.R.Conf.Rep. 2236, 25. Because primarily themselves intent. 'To extent presented, questions law, interpret provisions, meaning applicability ageny shall— '(1) compel unlawfully withheld unreasonably delayed; '(2) be— '(A) arbitrary, law; '(B) contrary right, power, privilege, immunity; '(C) excess jurisdiction, limitations, short right; '(D) observance procedure '(E) unsupported sections 556 title reviewed statute; '(F) unwarranted trial court. 'In making foregoing determinations, parts cited party, prejudicial error.' promulgated Executive 11514, dated 5, Fed.Reg. 4247, instructed agencies initiate needed direct policies toward environmental goals. October 7, 1970. mandatory, proper coruse directing R. Robertson KF105 F3 Kirkham, Jurisdiction 446, 929 (R. Wolfson Kurland ed. 1951). prohibited remanding infra, General urges avoid course record. thereunder, 727—730 (1969). San Antonio Conservation Society Texas Department, 968, 972, 368, 370, 388, 390 (1970) (dissents certiorari).

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