Legal Document

464 U.S. 312 104 S.Ct. 656 78 L.Ed.2d 496 SECRETARY OF THE INTERIOR, et al., Petitioners,v.CALIFORNIA al. WESTERN OIL AND GAS ASSOCIATION, Petitioners, v. CALIFORNIA CALIFORNIA, INTERIOR Nos. 82-1326, 82-1327 and 82-1511. Argued Nov. 1, 1983. Decided Jan. 11, 1984. Syllabus Section 307(c)(1) of the Coastal Zone Management Act (CZMA) provides that "[e]ach Federal agency conducting or supporting activities directly affecting coastal zone shall conduct support those in a manner which is, to maximum extent practicable, consistent with approved state management programs." CZMA defines "coastal zone" include but not federal land near shorelines several States, as well waters extending "seaward outer limit United States territorial sea." The sea for bordering on Pacific Ocean Atlantic extends three geographical miles seaward from coastline. Submerged lands subject jurisdiction lie beyond constitute Outer Continental Shelf (OCS). By virtue Lands Act, belongs while OCS Government. In this case, Department Interior (Interior), rejecting California's demands consistency review was required under § 307(c)(1), sold oil gas leases certain tracts off coast California. Respondents (California other interested parties) then filed suits District Court enjoin sale some tracts, alleging had violated leasing sets motion chain events culminates development therefore "directly affects" within meaning 307(c)(1). entered summary judgment respondents, holding determination before sale. Appeals affirmed. Held: Interior's is an activity affecting" thus section such sales are made. Pp. 320-343. (a) nowhere explains should be viewed zone, legislative history discloses Congress did intend reach lease sales. language aimed primarily at conducted supported by agencies physically situated excluded formally defined CZMA. This reading finds further sections 321-330 (b) Nor broader compelled thrust provisions. It clear believed CZMA's purposes could adequately effectuated without reaching outside zone. Moreover, examination 307's structure suggests type intended covered 307(c)(3), deals private parties' authorized agency's issuance licenses permits, provision more pertinent sales, definitely does require 331-335. (c) has carefully codified fine distinction between "lease" permit "explore," "produce," "develop" gas. time question here were sold, it involve submission approval "any plan exploration of, production from" tracts. Since 1978, when 1953 (OCSLA) amended, there have been four statutory stages developing offshore well: (1) preparation program, (2) (the stage dispute here), (3) lessees, (4) production. purchase lease, standing alone, entails no right explore, develop, produce resources OCS. first two review, last are. Under OCSLA's plain language, proceed full exploration, development, might trigger 307(c)(3)(B)'s provisions; lessee acquires only priority submitting plans activities. 335-341. (d) Even if involving "conduct[ed]" "support[ed]" cannot characterized grants very limited "preliminary activities" OCS, authorize scale Those may begin until separate obtained. these circumstances, possible effects eventually result termed "direct." 342-343. 683 F.2d 1253 (9th Cir.1982), reversed. Sol. Gen. Rex E. Lee, Washington, D.C., Secretary Interior, Edward Bruce, Western Oil Gas Ass'n, Theodora Berger, Los Angeles, Cal., State Justice O'CONNOR delivered opinion Court. 1 case arises out continental shelf We must determine whether (CZMA). That its entirety: 2 "Each 16 U.S.C. 1456(c)(1). 3 conclude statute. 4 * states, 1453(1). states Oceans See 43 1301; California, 381 139, 85 1401, 14 296 (1965). "outer shelf" 1331(a). passed 1953, government. §§ 1302, 1311. 5 enacted 1972 encourage prudent conservation natural found "increasing competing upon our "resulted loss living marine resources, wildlife, nutrient-rich areas, permanent adverse changes ecological systems, decreasing open space public use, shoreline erosion." 1451(c). Accordingly, declared national policy protect develop programs, promote cooperation engaged programs broad participation programs. 1452. 6 Through system incentives, encourages each plan. Further benefits made available after receives Commerce. To obtain consider "national interest" "the views principally affected program." 1455(c)(8), 1456(b). 7 Once approved, requires "conducting "consistent" "to practicable." Commerce promulgated regulations implementing provision. prepare "consistency determination" document any will affect" identify "direct effects" inform how tailored achieve program. 15 CFR 930.34, .39 (1983). II 8 (Interior). companies submit bids high bidders receive eventual submerged A not, however, acquire immediate absolute explore for, OCS; separate, subsequent authorization. 9 1977, California Plan. same year, began preparing Lease Sale No. 53—a Santa Barbara. asked report potential area. Agency requested bidders, agencies, environmental organizations, public, 2036 area offered lease. October announced tentative selection 243 including 115 Maria Basin located western Various meetings held agencies. Consultations also initiated. issued Draft Environmental Impact Statement April, 1980. 10 On July 8, 1980 Commission informed determined 53 commission demanded determination—a showing would "maximum practicable" responded Nevertheless, decided remove 128 northern basins, proposed sale, leaving Basin. September 1980, final Statement. 27, published notice limiting bidding remaining blocks 45 Fed.Reg. 71140 (1980). 11 December 16, reiterated view affected" expressed concern spills threaten southern otter, whose range 12 31 challenged explained "has objecting specific buffer zones around special sensitive mammal seabird breeding areas. . ." App. 77. concluded removed because "leasing Sea Otter Range consistent" Program. 79.1 Governor Brown later took similar position, urging 34 removed. 81.2 rejected State's demands. Secretary's view, engage Governor's request binding failed strike reasonable balance local interests. April 10, 1981, go forward, 27 46 23674 (1981). 13 substantially district court 29 range.3 Both complaints alleged, inter alia, violation CZMA.4 They argued respondents claim. Ninth Circuit affirmed portion sale.5 granted certiorari, we now reverse. III Whether self-evident.6 As already noted, discuss, authorizes holder preliminary exploration; administrative begin. sides concede itself significant effect agree one (not first, see infra, 337) series decisions culminate urged focus contends means "[h]av[ing] [d]irect, [i]dentifiable [i]mpact [t]he [c]oastal [z]one." Brief Petitioners 20. insist phrase "[i]nitiat[ing] [s]eries [e]vents [m]anagement [c]onsequence." 10.7 But alternative verbal formulations parties, both superficially plausible, find itself. 17 turn history.8 fairly detailed necessary, persuades us fall ambit 18 bills House Senate, 307(c)(1)'s requirements extended "in" standard appeared antecedents. House-Senate Conference Committee replaced "in zone." chambers conference bill discussing even mentioning change. 19 At sight, Conference's adoption appears surprising, unexplained, subsequently unnoticed expansion scope going what either versions sent conference. much plausible explanation change available. 20 lies different definitions Senate exclude "lands use law solely discretion trust Government, officers agents."9 exclusion parks, military installations, Indian reservations, fact ownership. bill, entirely exempt compliance plans. contrast, bill's definition included jurisdiction; fully requirement. bills, areas 21 Against background, Committee's all markings simple compromise. accepted Senate's narrower zone," expanded cover nevertheless appearances, intent least enclaves 22 Though cryptic, Report's reference supports explanation. "The Conferees adopted state's affect provisions 307(c) apply." H.R.Conf.Rep. 92-1544, p. (1972), U.S.Code Cong. & Admin.News 1972, pp. 4776, 4822 (emphasis added). entire report, mention chosen Conference, hint deemed worthy note member floor debates.10 implication seems clear: used strongly leasing, neither nor version coverage 23 Nonetheless, literal read history, sufficiently imprecise leave possibility types 307(c)(1)' ambit. need decide than investigation reveals event expressly control scope. B 24 If alone less crystalline, original impel narrow clause. Every faced issue debates, deliberately systematically insisted part mile limit. 25 There are, repeated statements debates concerned sea, shelf, allocation over changed way.11 substantial action well. debated firmly proposals extend parts 26 313 reported committee House, embodied most proposals. achieved explicitly contend achieves implicitly. provided: program twelve [coast]. 28 apply seas area, subjacent seabed subsoil boundary state, coordinated involved. shall, adjacent designated purpose preserving restoring their conservation, recreational, ecological, esthetic values." H.R. 14146, 92d Cong., 2d Sess. reprinted H.R.Rep. 92-1049, (1972). 30 Congressman Anderson drafter coauthor section's House. light instant litigation, his comments remarkably prescient. pointed out, established seven sanctuaries, Barbara, allegedly threatened dispute. "These State-established coastline miles, account nearly fourth coast. 32 However, Government sea. All too often, allowed drilling detriment 33 point Barbara where sanctuary banning authority. Yet, sanctuary—in federally controlled area—the resulted January 1969 blowout. dramatically illustrated do respect legal jurisdictional lines." 118 Cong.Rec. 26484 (1972).12 35 313, went explain, play crucial role encouraging Ibid.; id., 26495; 35549-35550. 36 provided precisely protection they seek here, Committee, ultimately whole, flatly And reason rejection, Report, forestall conflicts now. [House 313] authorizing contiguous relating thereto prescribe sufficient standards criteria create legislation existence concerning resources." (1972) added), 4825. 37 another almost equally favorable here—had whole. 312(b), (c), invited sanctuaries into region.13 Report explained: agreed delete extension estuarine rather remote cause problems since limits States." 14-15 4824. 38 When returned deleted, dismay. 39 I am deeply disappointed conferees accept position Representatives regarding jurisdiction. 40 [W]e successful, committee, adding authored designed exist[ ] Calif., development. 41 immediately State, preservation purposes. 42 overwhelmingly despite efforts petroleum industry defeat it. accomplish accomplished committee. 35549-35550 44 Anderson, express statement avoid "conflicts resources," supra, 327, fanciful suggest substitute 313's considerably language. Certainly author recognized amended serve purpose. Two attempts Senate. These, well, Conference.14 C recapitulate, was, modest compromise, offset favored Committee. Act. Consistent wrote coordination sponsored further, systematic rejection every attempt impelled sales.15 IV A. 47 First, peradventure originally drafted, debated, passed, Broad arguments about structure, Act's incentives general aspirations state-federal expansive respondents. 48 careful 307 all. 49 contains parts. Paragraph refers "conduct[ed] support[ed]" agency. covers "development projects" "undertake[n]" parties permits. paragraphs principal actor, third reaches parties. Plainly, category. irrelevant Respondents' suggestion requirement 307(c)(3) focused applicants permits licenses, squarely contradicted abundant itself.16 50 addressed imposed licensees "license permit" "affecting water uses ascertaining otherwise interest.17 Each concur license permit; refusal so overridden objectives interest security. Significantly, contained connection 51 1976, addressed—and preserved—that omission. Specific add word whole.18 surely statute twice omit. 52 Instead inserting renumbered existing 307(c)(3)(A), added second paragraph, 307(c)(3)(B). apparently subparagraphs, latter relevant n. 76; Natural Resources Defense Council, Inc., 6. new paragraph 307(c)(3)(B), produce, certify plans.19 Again, excessively fine, great care. 307(c)(3)(B) 1331 seq., (OCSLA), appropriate clarification differences "exploration," "development," "production." 54 OCSLA 1978 provide "expeditious orderly safeguards," 1332(3) (1976 ed., Supp. III). confirms distinct process, separated 55 Before define terms "mineral lease" form authorization removal deposits oil, gas, minerals. 1331(c). pre-1978 specify what, any, rights transferred purchaser lease; simply stated "contain rental offering lease." 1337(b)(4). Thus implied "plan leased tract.20 56 1981. quite tract. OCSLA, entitles production, Actual disapproval occurs separately later. 57 formulation five year Interior; sales; lessees; involves regulatory may, transfer purchasers additional includes consultation Congress, States. Formal reserved stages. 58 Preparation planning creation 5-year schedule 1344 During solicit governors respond writing requests received governors. submitted President together governor state. 1344(d)(2) 59 prospective planning, engaged. operate though readily "initiat[ing] 10. 60 planning—the here—involves solicitation leases. 1337(a) Requirements National Protection Endangered Species met first. given formal opportunity recommendations "size, timing, location" 1345(a) determines well-being citizens 1345(c) Local governments permitted recommendations, "may" these. 1345(a), actual "preliminary" OCS—geophysical surveys penetrations greater 300 feet impacts. 250.34-1 (1982). 61 themselves purchasing lessees anything more. 307(c)(3)(B); plans, submitted, disapproved, permitted. 62 Exploration. extensive lessees. 1340 Exploration approved. lessee's certification comply applicable developed unless goals 1340(c)(2) disapproved "probably serious harm damage marine, coastal, human environment. 1334(a)(2)(A)(i), 1340(c)(1) reason, "cancel entitled compensation. 63 course, here. applies, 64 Development 1351 Interior. forward and, request, comment review. 1351(a)(3) governor's accepted, governments' Reasons accepting communicated governor. addition, can veto "inconsistent," 1351(d) environments." 1351(h)(1)(D)(i) again cancelled 1351(h)(2)(C) 65 again, applicability doubt. applies own terms, invoked OCSLA. 66 taken pains various involved formulating allowing review; instead, input solicited invite governments, retain considerable authority inconsistent put stages.21 division premature litigation flow, all, production.22 67 Having examined return 68 logical examine 307(c)(3). agency, longer aptly limited, obtained, denied grounds. denied, cancelled, payment compensation lessee. 69 argued, nonetheless, step. Large sums money hands, generate momentum makes inevitable. side, best inefficient, worst impossible: Leases if, where, actually occur. 70 choice ours make; Congress. amendments better course postpone rely earlier ones. negate lengthy, detailed, 1344-1346 1351, unsupportable construction words V 71 Collaboration among certainly preferable confrontation courts. leases, advised ensure advance anticipated operations harmoniously programs.23 structures mandate stage. 72 decision reversed insofar petitioners pursuant proceeding 53. 73 ordered. STEVENS, whom BRENNAN, MARSHALL, BLACKMUN join, dissenting. 74 attempting enforce right. Its 1972. statute, (CZMA), promise California: 75 86 Stat. 1285, 1456(c)(1) 76 he ocean One think easily answered fact—does zone? finding did, affirmed, disturbed Based straightforward end case. 77 contrary conclusion, based theories: take place enclave zone—it wholly inapplicable matter seriously zone; mean notwithstanding merely obligations purport cut back obligation previously Court's theory refuted basic findings theory, looks post-1972 developments, overwhelmed unambiguous pronouncements consistently belie interpretation 79 Because material refuting index follow useful. draws occur location relevant. demonstrates make sure occurring functional equivalent indicating long range, planning. description bring congressional Plain Language 80 cases, generally begins analysis noting "[t]he starting itself." E.g., Watt Alaska, 451 259, 265, 101 1673, 1677, Not said, Court, wonder. "activities inside boundaries that, definition, itself.1 (OCS) to, exclusive Government.2 Quite plainly, itself, enclave, indicates enlarge encompass hard hold, does, never Legislative History 81 confirmed history. applied zone."3 time, clearly fundamental preserve, protect, possible, restore enhance, Nation's succeeding generations 1281, 1452(1) conference, Houses prevent zone.4 Yet plainly impossible considering devastating impact it—activities led spill, occurred coast.5 enclaves, expand substitution Thus, kind 307(c)(1).6 82 emerged either. ante, 322-324. construe "surprising, 307(c)(1)," 322. ignore rests demonstrably incorrect assumption 83 critical inland it, 304(a) 26501 order enable "its underlying purpose, waters. degree shorelands waters." instead State. 26503 (1972); (1972).7 specifically premised recognition particularly direct zone.8 regulate zone.9 showed amendment permissive mandatory establish deleted altogether. 26495-26496 evident wish integrity 84 shared House's derived favorably during previous S. 582.10 particular, 1971 exactly framing version.11 construed functionally interact zone: [A]ny control, administering them interrelationship economic, social, geographic standpoint administered except cases overriding President." S.Rep. 92-526, (1971).12 identical describe requirement, nothing differently follows placed 87 wrong say displayed regulating exterior conferees' clarified obligation. surrendered ensured explanations compromise briefly set out. wrote: 88 "[A]s projects practicable consideration process issuing zones. specified fields, lands." supplied), 89 Senator Hollings, manager CZMA, said presented Senate: 15459 slightest indication adopt strange rule announces today—that requirements. contrary, indicate affects "submerged lands" inescapable conclusion strengthened activities, obviated sections. whatsoever deletion application OCS.13 90 sum, thereby addressing evidence Purposes 91 An obvious justified. 92 302 effective management, beneficial protection, 1280, 1451(a) (1982), recite conflicting valuable zones, occasioned "extraction mineral fossil fuels." scenic characteristics "being damaged ill-planned development" "present institutional arrangements inadequate." Id., 1451(g) (h). Finally, "land unified policies, criteria, standards, methods, processes dealing significance." 1451(i). declaration 303 unambiguously exhorted "all cooperate participate regional effectuating title." 1281. concluded: 93 "With implementation establishment interstate agreements, cooperative procedures, joint problems." Ibid. 94 These preference close zone.14 Statutes policies FBI Abramson, 456 615, 625 7, 102 2054, 2061 376 (1982); Pennhurst School Halderman, 18-19, 1531, 1540-1541, 694 (1981); Philbrook Glodgett, 421 707, 713, 95 1893, 1898, 525 (1975). applying step majority's odds Orderly, long-range, dictates decisions. expenditure millions dollars.15 squared everyone's early possible. hand, plan, pre-leasing assurances hence enhance value concomitantly, public. Advance minimize risk inconsistency confront parties.16 scheme earliest point.17 especially incongruous agrees zone—if inconceivable wanted treated differently. 96 ever requirements, defeated rendered nugatory. Such rejected. American Textile Mfrs. Inst. Donovan, 452 490, 513, 2478, 2492, 185 Mercantile Nat. Bank Langdeau, 371 555, 560, 520, 523, 523 (1963); Shirey, 359 255, 259-260, 746, 748-749, 789 (1959); Harriss, 347 612, 622-623, 808, 814-815, 98 L.Ed. 989 (1954); Sunshine Coal Co. Adkins, 310 381, 392, 907, 911, 1263 (1940).18 Direct Effects 97 constituted major importance described decisions: "For example, many consequences 'Notice (Partial Offering)', Register, ten stipulations and/or stipulation Stipulation forth conditions operation boats aircraft pipelines required; lessor, reserves placement 'any pipeline transporting shore'. Lessees agree, preserve biological discovered 99 Secretarial Issue Document ('SID'), prepared aid decision, voluminous information indicative project For instance, SID table overall probability oilspill impacting otter life 52%. EIS [Environmental Statement] contain statistics likelihood oilspills leases; unrevised USGS estimates, 1.65 expected subarea. 100 According SID, higher revised figures utilized. documents refer impacts air quality, ecosystems, commercial fisheries, recreation sportfishing, navigation, cultural socio-economic factors. '[n]ormal unavoidable quality surrounding water.' Pipelaying, drilling, construction, chronic platforms, discharge sewage contribute degradation muds cuttings 'could significantly fish invertebrate populations'; spot prawn fishery vulnerable physical disruption. competition OCS/related onshore facilities temporary disruption caused burial. risks 'the aesthetic environment conducive recreational sites spill.' Another migration labor years operations. Impacts level employment size population region predicted. 103 notes artifacts aboriginal archaelogical FWS NMFS opinions, appended jeopardize gray whale. partial list. enumeration unnecessary. threshold test satisfied single Although substantial, CZMA." 520 F.Supp. 1359, 1380-1382 (C.D.Cal.1981) (footnotes citations omitted). 105 predicated findings. 106 "We court. repeat enough charter Prior timing subject. choices determine, influence, transported ship, exposed danger, flow vessel traffic, siting on-shore construction. 107 circumstances link lead individual leased. considered together, taking cumulative whereas determinations tract-by-tract basis 307(c)(1)." 1253, 1260 Cir.1982) (citations 108 Neither challenge findings, desired results reviewed undeniably significant. immediately, prior now.19 109 my sensible appraisals probable reflected reality "directly" toward entail. consequence leasing; commit dollars acquisition way; acquired "form minerals 632, 1331(c) V). observed, 110 rests, part, selections developments enactment relies lends fair understanding work product, merits treatment. chronological order. 1976 Amendment 111 1976. primary dramatic created financial help deal leasing. amount keyed acreage 1019-1028, 1456a environmentally socially economically. 94-277, 10-19 (1975); 94-878, 13, 15-17 (1976);20 121 23055-23056 (1975) (remarks Sen. Stevens); 23060 Jackson); 23065 Magnuson); 122 6111-6112 (1976) Rep. Sullivan); 6112 Du Pont); 6113 Mosher); 6114 Murphy); 6117 Young); 6119 Lagomarsino); 6120 Hughes); 6121-6122 Drinan).21 completely undermines 112 586, 94th 1st 102(12) (1975), (1975)22; 3981, 2(15) (1976), (1976). opportunity, indicated doing restating stated: 113 "Section come known 'Federal consistency' section. assures once rational protecting, preserving, (approved), departments, instrumentalities violate will, States' energy closely recently, actions assurance mechanism guaranteeing by, carried (license, permit) accord related problem non-Federal activity, act presently exists, 586 amendments, 36-37 supplied).23 Similarly, states: 114 "Specifically 'lease' 'licenses permits' clarifies certified complying felt, intense explicit argue maintain wastewater discharge, applicant being approve disapprove proposal, tract certify. Given difficult imagine 'federal consistency.' " supplied).24 116 Along lines, wants assure frontier indeed undoubtedly hence, conform 37. Statements sponsors floors Houses.25 117 conferees, disagreement concept supplement well.26 evince retreat widespread agreement saw amend everyone process. Amendments, Representative Hughes said: "I disappointed, Mr. Pont requiring to. record today's debate show conflict plans." supplied).27 119 failure illuminating proposal details subsection Secretary. covering (c)(3) (c)(1).28 event, whatever ambiguities point—everyone address "post-enactment" central premise legislated 120 629. majority concluding mere invoke Ante, 337-340. After recites, cancellation contemplated place. most, raises factual case—does necessity contingent nature leasing? Posing sense obviates still confronted. text preserves preexisting "Except chapter amend, modify, repeal 698, 1866(a) activity. discussion Report29 continue aware (16 1451 seq.), 'consistency' Except Titles 1977 Specifically, alter procedures Plan." 95-590, 153 (1977) 1559 52.30 123 ask intent. contrary. legislation, like 124 important 649, V), governs Subsection (f) provides, part: regulation, 1454 1455 title [the CZMA]." "for [leasing] 1972." 151 (1977); 95-284, (1977), 1557.31 clear, previously, stage.32 saving clause 18(f) Amendments. 125 licensing hardly steps "indirect" intervening causes, petitioners.33 Approval obviously bother bid. Subsequent cause; "direct" cause, approval.34 126 reauthorized amended. 2060. precise today. answer same—OCS observed altered responsibility preceded leases." 96-1012, (1980), 4376. needed declined determining 127 "Finally, recommended provision, act. oversight phase, heard testimony consensus witnesses advocated Generally properly construed. uncertainty arisen concerns 'directly affecting' points preamble NOAA's regulations, deliberations whenever social program's policies. legitimate reviewing consequence, intergovernmental 34. Amendments having maintained leasing: 129 remain [under CZMA]. result, commences Coordination 130 see[s] justification depart view. hopes through rulemaking, future reduced, excellent shown 96-783, (1980).35 131 unmistakably embraced today.36 Postscript 1981 132 administration office regulation review.37 Merchant Marine Fisheries promptly exercise regulations38 voted regulations. 97-269, 7-8 withdrawn, apparent concession error. 4231 Apparently body's 133 affirmative lower courts score amply 134 respectfully dissent. Four objectionable combined purposes, commission's directed Pet. Cert. 43a. objection encompassed instituted Sierra Club, Friends Earth, Otter, Coalition Plaintiffs sought declaratory injunctive relief against officials Bureau Land Management, named defendants. Association, trade association, members, intervened Subsequently, governmental entities plaintiffs commenced Circuit's groups sue standing, State's. claimed below statutes. ruled defendants claims, non-CZMA claims appealed. government, who holds achieved. Oceanic Atmospheric Administration (NOAA) charged 1463. normal deference construing walked path tortured vacillation indecision gained quarter. NOAA 43591-43592 (1977). purporting clarify acknowledged "still consideration." 10510, 10512 (1978). objected proposed, inter-departmental Justice's Office Legal Counsel (OLC). OLC portions withdrawn NOAA. 45-46; 37142 (1979). noted letter Program Directors (April 9, 1980). renewed arrive affecting." weeks commenced, 26658, 26660 shortly form, 35253, exercised "legislative veto," 1463a III), withdrew regulation. reports. (1980); 4362. reasons 15, believe views, articulated passage, reliable guides acting discussed infra 331-341, enactment. Our original, 3507, 14188 (with minor amendments) report) "functional interrelationship" "should" 20, (1971). Nine standard. report's purely precatory. "should," "shall" importantly, written exempted mandate. endorsing accompanied indisputably acted post-Conference Mosher way responsibilities regard lands, eliminated 35548 See, e.g., 14180 ("[t]his seas; Shelf") (remark 14184 (facilities "contiguous "would neighboring States") Boggs); ibid. ("this Territorial Sea, Moss); 14185 ("we unimpaired 3-mile sea") Hollings); focuses jurisdiction, beyond, time") 26479 ("the measure diminish responsibility, supersede, law") Anderson); ("The [of CZMA] zone") 35550 Anderson). remarks opposed weakened 312, 26495, Senate-House 35550. "When Secretary, concerned, necessary effectuate established. extension] forms extension." 312(b) Boggs asking "Notwithstanding department construct, license, facility Administrator Agency, complete facility; forwarded adversely pollution Administrator. 14183. proposing terminals "Such sites, international Shelf. so, severely facility. meaningful construct facility." 14184. Senators attacked Boggs' amendment. Hollings goes compromised awhile ago. floor, call 12-mile matters. far." Moss agreed: "[T]his Shelf." response, conceded 316(c)(1) called Academy Sciences undertake hazards attendant 14191 voiced opposition venture Stevens, inappropriate "is bill. 14180. added: "[S]ince relate therefore, study 14181. agreed; 316(c) Report. Downing "as nongermane." 35547 heavily appear reports enacted. [in ]. [The discusses insert 307(c)(3).] practical [amendment] entering companies." 19-20 footnote 323-page [CZMA] modify [CZMA]. 590, 1450, 52. "did precede[ interpretations little emphatically 324-329, committee-proposed 334-335 18. Likewise, favoring committees' desires reaffirm positions understandable enough, behind 335, constrain "No concurred applicant's [consistency] 1456(c)(3). official grant person affected] copy concurs Commerce]." 1456(c)(3)(B) members uniformly "make[ 23075 commented addition "Federal with" 23084. amendment, "[i]n 1768, 1787. 37, 52-53 "[A]ny permitting management] notify objects certification. No security." Committees inserted 6128 introduce Instead, amending [of] (for leases) elaborates process—namely, satisfy needs information, timely basis, industry's 94-1298, 1827-28. submits from, [certify] complies [the] or] 339, 1340, following 1340(b) only, force days 18, 1978. accordance 1351(b) savings provides: chapter, [CZMA]." alone. reinforced addresses invokes look other. confused change, clarify, sold. accompanying "[The stage] evaluation on, considers amendments. allow past yet known." 164 1570. Murphy "even organization power demand voicing objections disputed warned: "Any face strong Plan Commission." 79. follows: "(a) 'Coastal zone' (including therein thereunder) thereunder), influenced proximity transitional intertidal salt marshes, wetlands, beaches. extends, Great Lakes waters, Canada shorelands, Excluded agents." 1453(1) Maine, 420 515, 1155, 363 1332(a). 26502 ("Each programs."); 314(b)(1) 14190 ("All administer President."). direct, significant, 304(g) Plans "what permissible 305(b)(2), Bill 305(b) 92-753, 4776. incident referred occasions 26495 (same); Teague); 323-324. correct reading, None litigants advanced improbable perfectly realized just "shall [adjacent] involved." 313(b) 313(c), "Mr. Chairman, particular me subsection, authored, exists 1955 beaches spills. 1963, created. lines. 'requires purposes.' provision." funds costs acquisition, operation, departments established." "During session Subcommittee Atmosphere, formerly Oceanography, hearings May 1971. Fifteen letters, articles publications record, Serial 92-15. ensuing period, 582 redrafted Subcommittee, incorporating ideas 638 992, felt drew propounded Council Quality, assistance invaluable. August 4, 1971, 30, ordered March 14, recommitted Changes up matters limitations broaden areawide Additional compatible (See 992) Then, Tuesday, 3507 bill." "All 582, 313(b)(1) (1971), identical, shortened emphasis: "As 30. protected Anderson's 328, spoke "provision [that] purposes." His [for not. nature—concern automatically foreclose judicial Clark), duplicated Kyl). was: "[T]he approval, providing 329-330. 14. Amendment, centered gave "This far. comes hearing consideration, benefit of." underway Insular Affairs. sponsor voluntarily it: happy studies continuing. hope shed give fullest studies. President, chairman's permission, unanimous consent withdraw amendment." Boggs). version, nongermane. Downing). misstates Stevens thought eliminate posed drilling. Stevens). sponsor, Pell, study. 14181 14181-14182 Moss). Construing federal-state enhances long-range maximizes cooperation. Indeed, reason: [construction] fosters time. This, turn, ability manage linked commitment likely Second, opportunities influence incentive provisions, reinforcing voluntary calling others carrying Act." 34-35 4362, 4382 83. $220,000,000 bid complain inadequate base determination. dispose objection. While practicable. 930.34(b) phases develops. 930.36(c). arrangement subparagraphs instructive. obligates categories undertaking applications subparagraph us. (3), Unless omitted selecting conformity understand why My unlike Court's, (NOAA). correctly waffled 320-321, evaluated (which issue, 35, ), basis. remains effect) (e.g., Shelf, landward zone) 930.33(c) liberally borderline favor inclusion review." 37146-37147 Commission, responsible Commission's resolved lack facilities, land, accommodate development." Joint 118. resource transportation endangered visual qualities justified "public welfare" (5) 120-132. containing per cent projected 148. 117-120, 154. fact, attachment length 119-126. demonstrating Congressional Research Service, Offshore Zone, Study Prepared Ad Hoc Select Sess., (Comm. Print 1976); Technology Assessment, Development, 95th 155-157 1977). 19-20. 52-53. "There communication decisions, large Full capability solve energy-related far institute Federal-State envisioned framers act." supplied). Tunney); 23082 Kennedy); 23084 Williams); Forsythe). Similar emphasizing breadth Pont) ("Once place, Lent) (The "provides representation local, interests making areas."). Interior." 1828. himself 6128. observation signed Studds. "Nowhere, 1976], expliclt [sic] implicit pre-lease proper company's 3[0]7(c)(3) process—i.e., stage—than company awarded deletion, absolutely warranted here." (1981) (additional Reps. Studds D'Amours). incorporates Service cited 21, detailing 1057-1058 (1978) Murphy) ("I want colleagues procedures.") 43-44; S.Conf.Rep. 95-1091, Regulations governing implement 3310.4 offer term takes Therefore, petitioners' definition. "physical" depend indirect. economic dependent above, colloquy "[Mr. McCloskey.] Do Improvement cooperation, so-called provisions? colleague 6979 working, McCloskey. assume gentleman Washington correct. essentially fact' concluded." H10111-H10112 (daily ed. Sept. Studds' 35-47. qualifies persuasive value. Bell New Jersey, --- ----, 2187, 2194, (1983); Bob Jones Univ. 2017, 2032, 157 Andrus Shell Co., 446 657, 666 1932, 1938 593

Classification Label: 7