Legal Document

493 U.S. 20 110 S.Ct. 304 107 L.Ed.2d 237 Olaf A. HALLSTROM, et ux., Petitionersv.TILLAMOOK COUNTY. No. 88-42. Argued Oct. 4, 1989. Decided Nov. 7, Rehearing Denied Jan. 8, 1990. See 1037, 761. Syllabus Subsection (a)(1) of the citizen suit provision Resource Conservation and Recovery Act 1976 (RCRA), 42 U.S.C. § 6972, permits any person to commence a civil action against an alleged violator waste disposal regulations promulgated under Act, "[except] as provided in subsection (b)." (b), entitled "[a]ctions prohibited," provides that no such may be commenced prior 60 days after plaintiff has given notice violation Environmental Protection Agency (EPA), federal body charged with enforcing RCRA, State which occurred, violator. Believing respondent's sanitary landfill violated RCRA standards, petitioners, owners farm next landfill, sent respondent written their intent sue and, one year later, this action. Respondent moved for summary judgment on ground District Court lacked jurisdiction because petitioners had failed notify Oregon EPA required by 6972(b). Petitioners then notified state agencies suit. The denied motion satisfied RCRA's requirement notifying these trial, held RCRA. Appeals remanded instructions dismiss, concluding petitioners' failure comply 60-day deprived subject matter jurisdiction. Held: Where party suing fails meet delay requirements 6972(b), must dismissed barred terms statute. Pp. 25-33. (a) plain language statute establishes compliance is mandatory, not optional, condition precedent disregarded at court's discretion. Actions are "prohibited" expressly incorporated reference into 6972(a), it acts specific limitation citizen's right bring P. 25-26. (b) None arguments giving flexible or pragmatic construction require disregard statute's language. argument should deemed if without proper stayed until been rejected. Whether stay fact functional equivalent precommencement delay, staying judicial once filed does honor 6972(b)'s prohibition filing complaint before fulfilled. Although Congress excepted parties from complying elsewhere did do so situation, create exception where declined so. contention equitable modification cure also unavailing. equities weigh favor modifying statutory when procedural default caused take minimal steps necessary preserve claims. Nor can excused would unfair hold them, laypersons, strict statute, since suit, like suits generally, was trained lawyer. Zipes v. Trans World Airlines, Inc., 455 385, 102 1127, 71 234, distinguished. Petitioners' reliance legislative history provisions misplaced, nothing militates honoring requirement. In fact, requiring citizens furthers Congress' goal striking balance between encouraging avoiding burdening courts excessive numbers suits, allows government violators achieve need assertion effect literal meaning allow violations go unchecked during waiting period persuasive, problem results knowingly struck developing provisions, likely will trigger appropriate enforcement actions prevent serious damage. Moreover, irrational wait have specifically act response citizen, agency change its mind threat becomes imminent. 26-31. (c) light Court's interpretation requirement, question whether 6972(b) jurisdictional sense term merely determined. Requiring dismissal noncompliance supported further efficiency relieving make case-by-case determinations fatal. 31-32. (d) there some merit wastes resources, factors led apply decisions nonretroactively present here: decision establish new rule law overrule clear past litigants relied, itself put bringing Retroactive operation purpose nonadversarial regulations. deprive "right day court," they remain free give statutorily file 32-33. 844 F.2d 598 (CA9 1987), affirmed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., WHITE, BLACKMUN, STEVENS, SCALIA, KENNEDY, JJ., joined. MARSHALL, dissenting opinion, BRENNAN, joined, post, p. 33. Kim T. Buckley, Portland, Or., petitioners. I. Franklin Hunsaker, respondent. Brian J. Martin, U.S., amicus curiae special leave Court. Justice O'CONNOR 1 90 Stat. 2825, amended, 6972 (1982 ed. Supp. V), individuals district court enforce Act. At least commencing plaintiffs violator, State, (EPA) sue. 6972(b)(1). This modeled upon Clean Air Amendments 1970, 84 1706, 7604 ed.). Since number other statutes patterned 304.1 case, we decide mandatory precondition 2 * own commercial dairy located landfill. April 1981, believing standards established intention A On March 1, 1983, Oregon's Department Quality (DEQ) sue, claimed 2, 3 motion. It reasoned cured defect formally 1983. noted administrative opportunity environmental neither nor expressed interest taking Therefore, concluded dismissing stage resources. Civ. 82-481 (Ore., Apr. 22, 1983). 4 After proceeded ordered remedy but refused grant injunctive relief. 82-481JU (Sept. 30, 1985). later order, request attorney's fees. appealed both rulings; cross-appealed denial 5 Ninth Circuit Relying 6972(b)(1), determined permitting proceed constitute " 'judicial amendment' command. 598, 600 (1987), quoting Garcia Cecos Int'l, 761 76, 78 (CA1 1985) (citation omitted). best agencies, rather than courts, primary responsibility F.2d, 601. dismiss. We granted certiorari resolve conflict among Courts regarding correct provision.2 489 1077, 109 1526, 103 832 (1989). II 6 As repeatedly noted, "the starting point interpreting itself." Consumer Product Safety Comm'n GTE Sylvania, 447 102, 108, 100 2051, 2056, 64 766 (1980). Section 6972(a)(1) (b)(1) states: 7 "(b) prohibited. 8 "No paragraph section— 9 "(1) sixty (A) Administrator [of EPA]; (B) occurs; (C) permit, standard, regulation, condition, order. . ." 6972(b)(1) 10 could clearer. EPA, "prohibited." Because Under reading 11 contend ambiguous; rather, assert construction. Thus, argue given, deem satisfied. Pymatuning Water Shed Citizens Hygienic Environment Eaton, 644 995, 996-997 (CA3 1981). According serve same function delaying commencement suit: Government compliance. 12 flatly contradicts Rule Federal Rules Civil Procedure, "[a] court." Reading Rule, fulfilling Staying prohibition. requirement; indeed, carved out 1984 amendments See, e.g., 6972(b)(1)(A) ed., V) (abrogating danger hazardous discharged). however, contains applicable situation; liberty 13 our 393, 1132, 234 (1982), cure. Zipes, timely charge discrimination Equal Employment Opportunity Commission, Title VII Rights 1964, 253, 2000e-5(e) ed.) ("[a] section shall within hundred eighty unlawful employment practice occurred ."), prerequisite waiver, estoppel, tolling. S.Ct., 1132. help First, indicate operated limitations. 393-394, 1132-1133. running traditionally Honda Clark, 386 484, 501, 87 1188, 1197, 18 244 (1967) (holding consistent overall congressional purpose, "traditional tolling principle" applied limitations period). Unlike limitations, triggered rise Rather, full control over timing only refrain days. "failure necessary" Johnson Railway Express Agency, 421 454, 466, 95 1716, 1723, 44 295 (1975). 14 excuse "a technical 6972] 'particularly inappropriate scheme laymen, unassisted lawyers, initiate process.'" supra, 397, 1134, Love Pullman Co., 404 522, 527, 92 616, 619, 30 679 (1972). While initial proceeding normally aggrieved individual, see 2000e-5(b), lawsuit, generally lawyers who presumed aware requirements. (Indeed, counsel case admitted oral he knew inadvertently neglected agencies. Tr. Oral Arg. 3-4.) circumstances, conditions 15 defeat enacting RCRA; support argument, cite passages first indicating encouraged. S.Rep. 91-1196, pp. 36-37 (1970), Senate Committee Public Works, 93d Cong., 2d Sess., Legislative History 436-437 (Comm.Print 1974). misplaced. "[a]bsent clearly contrary," words conclusive. 2056. Nothing 'rare cases [in which] application produce result demonstrably odds intentions drafters.' United States Ron Pair Enterprises, 235, 242, 1026, 1031, 290 (1989), Griffin Oceanic Contractors, 458 564, 571, 3245, 3250, 73 973 (1982). indicates strike suits. 116 Cong.Rec. 32927 (1970) (comments Sen. Muskie); Note, Notice Citizen Plaintiffs Litigation, 79 Mich.L.Rev. 299, 301-307 (1980) (reviewing 1970). serves two ways. regulations, thus obviating Gwaltney Smithfield, Inc. Chesapeake Bay Foundation, 484 49, 60, 108 376, 383, 98 306 (1987) ("The bar governmental way suggests meant supplement supplant action"). many cases, able compel through action, eliminating access courts. 33104 Hart). Second, gives "an complete likewise render unnecessary suit." Gwaltney, 382. policy frustrated immediately involving Giving preserves compromise Congress. 16 "absurd futile results." American Trucking Assns., 310 534, 543, S.Ct.1059, 1064, L.Ed. 1345 (1940). essence, arguments. amici, strictly cause damage actually accomplish objective attempting stop. Save Our Sound Fisheries Assn. Callaway, 429 F.Supp. 1136, 1142-1145 (R.I.1977) (Army Corps Engineers three order award dredging contract enjoin commence). Similarly, precluded essential temporary relief elapsed. underestimate potential environment ensue period, arises provisions. addressed dangers certain circumstances made exceptions periods accordingly. added, 86 888, 33 §§ 1365(b) 1317(a) (citizen brought toxic pollutant effluent limitations); 7604(b) stationary-source emissions specified orders). 17 anomalies. For example, violation, explicitly act, pointless frustrating plaintiff, irrational: First "[p]ermitting immediate ignores possibility more imminent." Cecos, 82. sum, conclude none requires us "[I]n long run, experience teaches adherence legislature guarantee evenhanded administration law." Mohasco Corp. Silver, 807, 826, 2486, 2497, 65 532 provision; framed presented procedural. determine term. Fair Assessment Real Estate Assn., McNary, 454 100, 137, 177, 196, 70 271 (1981) (BRENNAN, concurring judgment) ("In 1937 exhaustion remedies certainly 'jurisdictional prerequisite' "). 19 general rule, dismissed. Thus Baldwin County Welcome Center Brown, 466 147, 104 80 196 (1984), approved determination claimant 90-day time mandated VII, 2000e-5(f)(1) ed.), forfeited her pursue claim. Accordingly, rejected Eleventh Circuit's conclusion 'generous' remedial nature claimant's right-to-sue letter tolled period. 149, 1724. But cf. Oscar Mayer & Co. Evans, 441 750, 764-765, n. 13, 99 2066, 2075-2076, 609 (1979) (where refiling "would creation additional technicality," 14(b) Age Discrimination 1967, 81 607, 29 633(b) holding abeyance pendency period) important goals, 29. Indeed, interprets non-compliance. 35-39. Such efficiency; fulfill fatal party's urge years litigation merits. They unnecessarily sympathetic argument. complex legal issues involved consumed energy nearly four years. Nevertheless, case. Chevron Oil Huson, 97, 106-107, 349, 355-356, 296 (1971). here law; relied. inequitable depriving Id., 356. pertinent standards. 21 dismiss 22 23 ordered. 24 whom BRENNAN joins, dissenting. 25 Purporting rely language" ante, 31, holds plaintiff's 1976, 6901 seq. necessarily his Yet even preferred "literal reading" 26, sanction anything clear. every ill economy purposes adopting I dissent. 26 relevant portion reads: section—(1) ]; There doubt complaint. open debate thereby "commenced action," 23, Procedure 3. states inescapable facts analysis, concludes violating dismissal.* recognize, connection particular noncompliance. 27 That mandate apparent (1979). Mayer, were asked interpret set forth part "no 626 title expiration proceedings found "[t]he intended limited problems unnecessary, resort victims discrimination," 755, 2071, "mandatory, optional," 758, 2073. Compare "is suit"). 28 nevertheless that, proceedings, grievant continue 2075-2076. explained: "Suspension preferable refile. 'To second "filing" termination technicality. technicalities particularly process.' [404 526-527, (1972) ] (charge suspended animation deferral reason, suspension pending courts." 765, 2076, (citations To sure, reason finding regime laypersons issue, circumstance arguably cases. (suggesting, evidence, tend represented parties). purposes, simply Where, here, specifies sanction, extrinsic enter what appropriate. Robinson, 361 220, 223-224, 282, 285, 259 (1960) (in determining appeal enlarge appeal, detailed examination language, interpretations, [the rules]"). 31 analysis makes served equally well dismissal, broader better former. identifies serve: "First, 'an suit.' Ante, (quoting 382, (1987)). All concerns delay; comes immaterial. deny goals. (expressing view "[w]hether delay"). 32 Furthermore, provision, part, encourage (legislative identical 7604). intends facilitate salutary "consumed years," 32, resulted 24, inconsistent Perhaps recognizing repeated invocations "plain advance offers, proposition "[a]s dismissed," citation (1984). absence quotation cited accident—the stand proposition. "issue [was] constituted action" 150, 1725, 4. Finding persuasive justification" constitutes "complaint" different litigation, reinstated "complaint." 1725. Nowhere much hint establishing goals animating otherwise served. 34 reasoning reduces unexplained followed illusory authority. compelled Congress's twin fostering private conserving resources 505(b) Pollution Control (Clean Act), ed.); 310(d)(1) Comprehensive Response, Compensation, Liability 1980, 9659(d)(1) V); 105(g)(2) Marine Protection, Research, Sanctuaries 1972, 1415(g)(2) 12(b) Noise 4911(b) 16(b) Deepwater Port 1974, 1515(b) 1449(b) Safe Drinking 300j-8(b) 520(b) Surface Mining Reclamation 1977, 1270(b) 20(b) Toxic Substances 2619(b); 11(g)(2) Endangered Species 1973, 1540(g)(2); 23(a)(2) Outer Continental Shelf Lands 1978, 43 1349(a)(2) 11(b)(1) Prevent Ships, 1910(b)(1) 117(b) Deep Seabed Hard Mineral Resources 1427(b) 326(d) Emergency Planning Community Right-To-Know 1986, 11046(d) 335(b) Energy Policy 6305(b) 19(b) Natural Gas Pipeline 49 U.S.C.App. 1686(b) 114(b) Ocean Thermal Conversion 9124(b) Seventh Circuits, construed 76 (construing RCRA); Highland Park Train, 519 681, 690-691 (CA7 1975), cert. denied, 424 927, 96 1141, 47 337 (1976) Third reached conclusion, filed, see, Proffitt Bristol Commissioners, 754 504, 506 (1985) RCRA), days, Act). might read suggest deprives subject-matter jurisdiction, obligating defendant raises issue—indeed, regardless (when dispute raised claim complied waive "resolution" dictum. event, understand express waivable. ("[W]e term").

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