Legal Document

427 U.S. 390 96 Supreme Court Reporter 2718 49 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 576 Thomas S. KLEPPE, Secretary of the Interior, et al., Petitioners,v.SIERRA CLUB al. AMERICAN ELECTRIC POWER SYSTEM Petitioners, versus SIERRA Nos. 75-552 and 75-561. Argued April 28, 1976. Decided June Syllabus Section 102(2)(C) National Environmental Policy Act 1969 (NEPA) requires that all federal agencies include an environmental impact statement (EIS) "in every recommendation or report on proposals for legislation other major Federal actions significantly affecting quality human environment." Respondent organizations, alleging a widespread interest in rich coal reserves "Northern Great Plains region" (embracing parts Wyoming, Montana, North Dakota, South Dakota) threat from coal-related operations to their members' enjoyment region's environment, brought suit against petitioner officials Department Interior responsible issuing leases, approving mining plans, taking enable private companies public utilities develop federally owned controlled land. Respondents claimed petitioners could not allow further development region without preparing comprehensive EIS under § entire region, sought declaratory injunctive relief. The District Court, basis extensive findings fact conclusions law, held complaint stated no claim relief, granted petitioners' motion summary judgment. While accepting Court's fact, Appeals held, soon-forthcoming interim Northern Resources Program (NGPRP) (a study potential resource Nebraska) as well such studies areas either inclusive included within "contemplated" regional plan program, reversed remanded with instructions inform role 30 days after NGPRP issued, if they decided control development, would be required. also enjoined Interior's approval plans one section which already had been prepared.Held : 1. NEPA does require prepare region. Petitioners have proposed there is evidence record any proposal action respect but rather it appears local national scope. Unless practical EIS, since, absent plan, impossible predict level activity will occur thus analyze consequences commitments involved, alternatives to, activity. Pp. 398-402. 2. erred both its factual assumptions several undertaken by represented attempts scale, interpretation NEPA. There nothing indicate was aimed toward even justified finding Appeals' legal conclusion cannot squared NEPA, clearly states required until agency makes Proposal action. authority depart statutory language and, balancing court-devised factors, determine point at Should prepared. 403-406. 3. Assuming theory about "contemplation" permit court preproposal preparation court's injunction part nevertheless error, since own terms harm ground injunction. 407-408. 4. Respondents' contention relationships projects covering before proceeding approve specific pending applications. Absent showing acted arbitrarily refusing must assumed exercised appropriately discretion resolve technical issues involved determining any, necessary. 408-414. 169 U.S.App.D.C. 20, 514 Reporter, 2nd 856, remanded. Atlantic Raymond Randolph, Jr., Washington, D. C., Kleppe, others. V. Frank Mendicino, Cheyenne, Wyo., State amicus curiae, special leave Court. Bruce Judge Terris, respondents Sierra Club Francis M. Shea, cases. [Argument Counsel pages 392-393 intentionally omitted] Mr. Justice POWELL delivered opinion 1 19691 detailed known 42 Code KF62 4332(2)(C). Columbia Circuit (Department) certain take additional steps this section, beyond those taken, allowing area country. For reasons set forth, we reverse. 2 * Respondents, organizations concerned July 1973 Columbia.2 defendants suit, here, were granting rights-of-way, necessary land Government. Citing identified region," alleged "comprehensive statement" They 3 relief motions judgment.3 appealed. Shortly oral argument merits, January 1975 issued over dissent Department's four Powder River Coal Basin, small coal-rich concerns respondents. 166 200, 509 533. An prepared these Appeals. In ruled merits discussed below, proceedings. 856. continued force. 4 petitioned writ certiorari October 9, 1975. On November 7, refused dissolve injunction,4 week later moved stay. 12, 1976, stayed petitions certiorari. 423 1047, 772, 46 635. We informed shortly thereafter (Secretary) approved Basin II 5 opinions courts below contain facts geographic suit. consider essential, however, can briefly. 6 respondents' encompasses portions northeastern eastern western Dakota. dispute richness coal, nor waxing developing crucial play due significant percentage access. has initiated, decade, three Central Power Study addressed coordinated electric power encompassing 15 States. It aborted 1972 lack utilities. Montana-Wyoming Aqueducts Study, intended recommend best use water resources southeastern Montana suspended initiation third study, (NGPRP 7 reveal degree concern matters first two studies, clear devoted entirely environment. carried out interagency, federal-state task force participation, designed "to assess social, economic impacts" five Nebraska.5 Its primary objective provide analytical informational framework policy planning decisions levels government"6 formulating "scenarios" probable area's environment culture various possible techniques development. final August 1, 1975, decision case. 8 addition, engaged complete review coal-leasing program Nation. February 17 year announced during "short-term leasing policy" prevail, new restricted narrowly defined circumstances then allowed only when NEPA.7 purpose range activities system guide program. statement, "Coal Programmatic EIS," went through drafts form September 19, filed based complex called Energy Minerals Activity Recommendation System (EMARS), assessed prospective it. parties litigation process implementing program.8 9 Against background, turn now raised case status reached III 10 issue remains began: whether region.9 arguing negative, rely squarely upon find reliance placed. 11 As noted sentence opinion, Since suggested controlling phrase Act, case, "major actions." prevail Our relevant shows none; instead, are 12 lease, right-of-way permit, some Several Courts permitted "significantly environment" meaning 102(2)(C). See, E. g., Scientists' Institute Public Information, Incorporated AEC, 156 395, 404-405, 481 1079, 1088-1089 (1973); Davis Morton, 469 593 (CA10 1972). do requirement indeed statements type course litigation.10 Similarly, agreed tandem adoption Tr. Oral Arg. 9. Their admission made, coherent scope, surely consequences. 13 But expressly found existing Government described complaint. initiated is, encourage Plains. That individual industry country integrated into otherwise interrelated. These disturbed Appeals, remain fully supported Court.11 14 Quite apart event action,12 desire met reasons. absence subject analysis envisioned statute statement. contain, essence expected adverse action, it, it.13 overall respondents, in, A define fairly precisely scope limits Where exists, attempt produce little more than along lines NGPRP, containing estimates attendant predicate production NEPA.14 IV reversing did accepted concluded thought constituted "attempts development" scale. released time, information needed formulate "contemplating." therefore issued; 16 conclude think mistaken concluding, "contemplating" considered represent This policy, manner consistent policies procedures 1969." context, meant named efforts gain background subsequent application decisionmaking projects. sense spoke consistently Indeed, same paragraph relied See supra, 400-401. Moreover, time indication events shown purpose. ruled, effects rates preface "are comparison only; proposals." All still exists 48. 18 Even contemplated petitioners, drawn Act. recognized mere sufficient believed empowers begin prior formal proposal. accordingly devised four-part "balancing" test contemplation factors likelihood imminence program's coming fruition, extent available thereto, irretrievable being made options precluded "as refinement progresses," severity should implemented. 19 availability "ripe" deemed unclear, actually producing surmised avoided because ceased most while underway. imminent release soon completed permitting irrevocable resources. reason remand issuance report. 20 reasoning support legislative history required, mentions factors. Rather, last Term, moment ready "is action." Aberdeen & Rockfish R. C. SCRAP, 422 289, 320, 95 2336, 2356,5 191 (1975) (SCRAP ) (emphasis original). procedural duty imposed quite precise, enforcing similarly precise. germination Such assertion judicial uncertain duties invite involvement day-to-day agencies, litigation. project accompanying thereof necessarily result may good many unnecessary statements.15 B 21 Secretary's error. entitled need valid, irreparable disclosed Would intervenors who carry business ventures depended operations. equities originally entered injunction; following "harm" justifying "matured" whenever filed. harm. First, itself moment, ever due. Second, themselves, adequacy challenged anywhere else.16 Thus, simple equitable grounds injunction: Districtourt's injury stood, countervailing equities. V 22 discussion far primarily remains, urged attempted decision. Instead, renew appear reach. insist that, Plains, "regional" intimately related. 23 ways view contention. amounts attack sufficiency stand approve. such, proceeding, challenge particular record.17 attacupon properly us, intend 24 stating our general agreement basic premise situations where time. protection placed responsibility goals "all practicable means, essential considerations policy." 101(b), 4331(b). "action-forcing" provisions directive assure consideration decisionmaking." Conference Report 115 Cong.Rec. 40416 (1969).18 By requiring Congress formulation position submitted parties.19 cases meet duty. cumulative synergistic concurrently agency, together.20 Only evaluate different courses action.21 25 Agreement premise, acceptance so "related" single us recently adopted approach provides: 26 "A. proposition, determined Secretary, involving leases covered multiple statements. cases, basin boundaries, drainage areas, common reclamation problems, administrative interdependence, factors." Brief 20a. 27 At another point, document approach22 "regional EIS" "if series interrelated impacts . unless previous sufficiently analyzed action(s)." Id., 20a-21a. 102(2)(C), although appropriate 28 conceded show agree. 67. determination weighing number including interrelationship among feasibility. Resolving high expertise left agencies. Cf. SCRAP II, U.S., 325-326, S.Ct., 2358-2359. arbitrary assume appropriately. contrary. 29 "programmatically," "geographically," "environmentally" Both "programmatic" relationship "geographic" resolve, ultimately, proper themselves approached basis.23 deny focused complaint.24 precise reon unimportant, irrelevance delineation Secretary: "Resource (like NGPRP) tools employed availability, intelligently take. Simply put, prelude planning, data base decide seldom coincide given evolve simply educational backdrop." Affidavit Oct. App. 191. 31 "environmental" relationship, contend "will wide variety throughout them follows: Diminished water, air pollution, increases population industrial densities, perhaps climatic changes. Cumulative are, indeed, what effect particularly identification occur, assigned competency contentions regionwide25 submissions indicate, bas basins, Supra, 410-411. say choices arbitrary. interrelationships conclusively extend across basins feasibility might necessitate restricting 32 sum, between applications.26 regionwide tt judgment reversed, reinstated affirmed. proceedings opinion. 33 So ordered. 34 MARSHALL, whom BRENNAN joins, concurring dissenting part. 35 N Dec. Immigration Nationality Decisions agree much Part IV, holds remedy violations (NEPA), 83 Statutes-at-Large 852, 4321 Et seq. matter how blatant too late adequate formulated. today recognizes, contemplates process. NEPA's enactment, end challenging act all. situations, content largely unsatisfactory enjoining ordering insufficient because, except deterrence, early And, after-the-fact remedies, invites post hoc rationalizations, cf. Citizens Preserve Overton Park Volpe, 401 402, 419-420, 91 814, 825, 136 (1971), candid balanced assessments wasteful causing developed laid aside 36 Nonetheless, lawsuit, belated remedies opportunity impose confronted situation which, according allegations, violating act, seized devise effective remedy. narrow class essentially eventual danger posed nonpreparation great intervention ready. loses sight inadequacy narrowness category constructed construes preclude intervening decision, unnecessarily ability effectuate intent mandated neither relies. 37 premises novel reaffirmed today. Under 4332(2) (C), "the (environmtal impact) 'is action.' " Ante, 406, quoting company 2356, 45 (first emphasis added). Preparation complicated project, takes considerable amount Flint Ridge Dev. Scenic Rivers Assn., 426 776, 789 n. 10, 2430, 2438, 205 (1976); Sixth Annual Report, Council Quality 639 (1975). Necessarily, substantially litigation, instance, assert interested years complete. 22. Accordingly, violate propose making next working 38 start necessity. Early whole recognizes. demonstrates "(b)y (environmental) During ." 409, Compliance allows decisionmaker account he decisions, open mind like receptive considerations. tip iceberg, visible underlying usually unnoticed public." 628 39 Because comply comes fails law. disputed today, formed reviewing questions formulated were: 40 "How likely come occur? To meaningful presently implementation effects? progresses? How severe implemented?" 44, 880 41 disapproval inquiry precludes future demonstration workability, work violation blatant.1 concluding instead negate prompt believe sensible way enforcement none me, persuasive.2 43 begins rejection announcing "quite precise" leaves "no 406. Given wording requirement, baffling. imposes "proposals" assiduously avoids giving hint, history, "proposal" action" hardly termed vaguely worded seems serve catalyst "common law" date, responded just created law." U.S.App.D.C., 34-36, F.2d, 870-872. source success. Of course, correct dart language. must, give anything enforce And 44 But, claims sort claim. know alter them. create mechanism pre-existing duties. Next, fears, test, "invite untrue exaggerated. certainly right process, limited timing alone. long capricious, "definition therefore, hands appellees," 33, 881 adopts 412. important, intervene theour-part indicated abdication agency's necessity intervention. rule recognition curious notion construction substantive rights depend persons seek court. Watson, 411, 433, 452 820, 832, 842, 598 (1976) (Marshall, J., dissenting). noncompliance complain frivolous, stiff plaintiff hastened (the) judgment." Barlow Collins, 397 159, 175 90 192 (1970) (opinion Brennan, J.). 47 Lastly, complains, never statements." 406 (footnote omitted). bypassing instances dropped discovered showed sensitivity able dream loud filing statement," 43, 879, disturb freedom. avoid wasted effort suggests, imagine, why unlikely successful achieving goal. 48 short, offers speculation, misconception, exaggeration reject reasonably Whatever difficulties initial warranted articulated interring chance breathe. 50 51 asserted jurisdiction §§ 701-706, 1331(a), 1361. Prior ruling judgment, utilities, companies, natural gas Indian tribe, rancher. Most joined separate petition Number 75-561, together date modification prohibit company, party leased 1972. 11. 14, partially plan. News Release (Oct. 3, 1972), 132. outline, 136. (Feb. 17, 1973), 125-127. 75-561 brief press description Pending full operation thereof, short-term effect. contended failed 102(2)(A) (D), 4332(2)(A) specified describe involves unresolved conflicts concerning uses (Subparagraph (D) redesignated subparagraph (E) Law 94-83, 89 424.) count subparagraphs, affidavit stay injunction, Wyoming. One multiproject 395-396. Another subsequently modified 4, Supra. tract, apparently occasioned tract. fourth, intimate view. Cady 527 786 (CA9 1975). confirms regarding changed. 195-196. supports reading bill passed House contained provision comparable reported amended, Senate forerunner committee conjunction S.Rep.No.91-296, Page (1969). After House-Senate Conference, managers House, explained tracks H.R.Conf.Rep.No.91-765, (1969), U.S.Code Cong. Admin.News 1969, 2767. 40420 "(i) Proposed "(ii) implemented, "(iii) "(iv) man's maintenance enhancement long-term productivity, "(v) irreversible implemented." (Emphasis added.) contrast, deals dimensions. With allowances inexactness predictive ventures, kind depends 'federal action' taken," 322, 2357, (1975), lease bear resemblance Nevertheless, each bounds defined, official "shall consult obtain comments law involved." evolution enters someone protests maturity hazard disruption. inadequately of, approval. adequate, enjoin broader statement; prepared, taken once operation, permissibility V, Infra. lodged copy massive six-volume record. term applied became 102(2) Senate. (1969); 40416, 40419 Senate, originated received attention, interpretation. 2, 20-21; 29052-29053, 29055, 29058, consistent. 40923-40928. points proposed. statute, speaks solely actions; less actions. reach stage actual proposals, environment; condition presumably reflect earlier effects. 26, Neither substitute Hudson Preservation FPC, 453 463, (CA2 1971), cert. denied, 407 926, 92 2453, 813 (1972). insure "hard look" consequences; "interject executive choice taken." Natural Defense 148 5, 16, 458 827, 838 "Executive Summary Decision Document" signed dated December staff recommendations EIS. 397-398. represents shift disagree. see 395; quoted evaluated collective insofar possible, area." position, affidavits dating back regions "subregions" completed. not, pendency subregion, inconsistent predication. involve similar methods converting coal. correct, significant. moreover, study. 397. example, mines environmentally opening reduces supply aquifer independent. state reply few active located miles mine, 90,000 square Nor always emphasized, disputed, commit others; nor, apparently, approvals approvals. remaining proposals. Nothing (1976), suggests successfully test. Ridge, considering arguably real estate developer, rejected "The fruitfully developer's worked out. 791 13, 2439 13. contrary here recognizes begun out, identify here. distinction before, When initiating proposal, demanding. circumstances, "intended proposal," whereas approved, seeks "during parties." 409 approach. true general, observes, analyze, 401-402, observation generalization plainly inapplicable discredit confuses possibility reality. parties, concedes used term. "(I)t accurate 'contemplate' (although respondents) district , Impact Statement confirms, '(i)t (to petitioners) smaller subregions, geologic structures, basin, selected actions' preferable." 32. assumptions," 403, misapprehends

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