Legal Document

480 U.S. 531 107 S.Ct. 1396 94 L.Ed.2d 542 AMOCO PRODUCTION COMPANY, et al., Petitioners,v.VILLAGE OF GAMBELL, ALASKA, al. Donald P. HODEL, Secretary of the Interior, Petitioner, v. VILLAGE GAMBELL Nos. 85-1239 and 85-1406. Argued Jan. 12, 1987. Decided March 24, F. Henry Syllabus Section 810(a) Alaska National Interest Lands Conservation Act (ANILCA) provides, inter alia, that, before allowing use, occupancy, or disposition public lands that would significantly restrict Alaskan Natives' use those for subsistence, head federal agency having primary jurisdiction over must give notice, conduct a hearing, determine restriction subsistence uses is necessary reasonable steps will be taken to minimize adverse impacts. Petitioner Interior (Secretary) granted oil gas leases petitioner companies off coast under Outer Continental Shelf (OCSLA). Claiming had failed comply with § 810(a), respondents, two Native villages organization, sought injunctions to, prohibit exploratory drilling leases. The District Court held ANILCA applies OCS. It denied respondents' motions preliminary injunctions, ruling although respondents established strong likelihood success on merits, injunctive relief was inappropriate because balance irreparable harm did not favor them, interest favored continued exploration, which cause type harm—a in resources—that designed prevent. Appeals affirmed holding OCS but reversed Court's denial injunction. court held, damage presumed when an fails evaluate thoroughly environmental impact proposed action, appropriate remedy violation statute absent rare unusual circumstances. Held: 1. Appeals' direction injunction conflicted Weinberger Romero-Barcelo, 456 305, 102 1798, 72 91, error. 810(a)'s purpose protect resources from unnecessary destruction, all land adversely affect such resources, there no clear indication Congress intended limit district courts' traditional equitable discretion by requiring them issue cases. erroneously focused 810's procedure rather than its underlying substantive policy preservation resources. decision does undermine policy, since it based findings exploration activities uses, can control offshore-leasing process even after completed, dispute. Instead, stated relied presumption contrary principles, has basis ANILCA, fully environment. Furthermore, harms favors company petitioners committed approximately $70 million have been lost issued. Moreover, conclusion interests served supersede others supported statutory language, merely declares should reconciled competing where possible. Pp. 541-546. 2. apply 546-555. (a) By ANILCA's plain only within State Alaska's boundaries, defines "public lands" mean situated "in Alaska," phrase precise geographic/political meaning delineated exactitude include coastal waters point three miles coastline, commences. 546-548. (b) Nothing language structure compels this deviate "Alaska." Title VIII's subsistence-protection provisions constitute just 1 15 Titles, none rest any express implied applicability OCS, 2 utilize same definition as VIII. 1001(a) contains lone reference establish section's inapplicability itself suggests refers "the Federal jurisdiction," "primary jurisdiction" 548-552. (c) similarity between predecessors, Statehood Claims Settlement Act, also refutes contention "Alaska" Those statutes allowed new Alaskans select Alaska" their own. inconceivable could either Natives so vital national resource 555. (d) legislative history indicates OCSLA governs offshore development. 552-554. (e) construction rule doubtful expressions resolved Indians here, ambiguity requires interpretation. 774 F.2d 1414 (CA9 1985), part, vacated remanded. WHITE, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, MARSHALL, BLACKMUN, POWELL, O'CONNOR, JJ., joined, Parts I III STEVENS SCALIA, joined. STEVENS, filed concurring part judgment, post, p. ----. Habicht, II, Washington, D.C., petitioner, Interior. E. Edward Bruce, petitioners, Amoco Production Company, S. Cooper, Anchorage, Alaska, respondents. Justice WHITE Court. Norton Sound (Lease Sale 57) Navarin Basin 83) areas Bering Sea (OCSLA), 67 Stat. 462, amended, 43 U.S.C. 1331 seq. (1982 ed. Supp. III). Ninth Circuit directed entry against activity connection concluded likely 810 (ANILCA), 2371, 16 3120, prior issuing We certiorari, 476 1157, 106 2274, 90 717, we now reverse.1 * When (OCS) Lease 57, Gambell Stebbins enjoin him proceeding sale, claiming aboriginal rights hunt fish 3120(a), provides protection natural used Alaska.2 motion thereafter summary judgment intervenors, villagers OCS.3 3 rights, different grounds, scope 810. People Clark, 746 572 (1984) (Gambell ). With respect claim assumed without deciding once Sound,4 these extinguished 4(b) (ANCSA), 85 690, 1603(b). That section provides: 4 "All titles, if any, claims title including submerged underneath water areas, both inland offshore, hunting fishing may exist, are hereby extinguished." (Emphasis added.) 5 construed geographic region, contiguous continental shelf above it, area strict legal boundaries Alaska." F.2d, at 575. Finding ambiguous, examined wrote extinguishment provision broadly "to accomplish complete final settlement avoid further litigation claims." Ibid. then geographical ANCSA 4(b): 6 "[The villages] make compelling argument VIII [ANILCA] protecting were territorial earlier extinguishing rights. clearly related. adopted aware might threaten Natives. . assumption preference procedural protections mandated co-extensive made measures necessary." 579-580. 7 found support view history. But, according Appeals, "[t]he most reason resolving ambiguous coverage outer benefit Natives." Id., 581. acknowledged familiar Indians. See Pacific Fisheries United States, 248 78, 89, 39 40, 41-42, 63 L.Ed. 138 (1918). remanded questions whether substantially complied course complying other statutes,5 not, voided. 8 In compliance decision, prepared postsale evaluation possible impacts 57.6 execution leases, permitted lessees limited uses. He stage activities, seismic drilling, occurred restricted do future. Finally, he development production ever conducted, likely, they might, event major oilspill, periods areas.7 9 April 1985, Sound. At time, village Gambell, joined Nunam Kitlutsisti, organization Yukon Delta Natives, complaint seeking void 83 imminent Basin. consolidated them. merits. Although Secretary, EIS's Five Year Leasing Plan Sales, evaluated some detail effect considered alternatives reduce eliminate "he precepts mind time evaluation." App. Pet. Cert. No. 85-1239, pp. 57a-58a. And occurred, certain required hearing §§ 810(a)(1)-(3) conducting lease sale. Nevertheless, following findings: 10 "(1) delay nation's quest energy independence. Expedited OCSLA. 1332(3); 11 "(2) resources; 12 "(3) continues possess power shape off-shore leasing process. Therefore, studies require alteration conditions configuration able caused violation." 62a-63a. 13 Accordingly, applying test injunction, movants; addition, case 14 Respondents appealed reversed. Hodel, (1985) II court, agreeing properly balanced interest. Relying Save Our Ecosystems 747 1240, 1250 (1984), stated: " 'Irreparable action.' 1423. ruled "injunctive circumstances." "Unusual circumstances" interfere long-term contractual relationship, Forelaws Board Johnson, 743 677 1984), result environment, American Motorcyclist Assn. Watt, 714 962, 966 1983). 1423-1425. circumstances instant case. declared expedite superseded preserve culture rejected arguments improper retroactively 83. Petitioners assert erred directing grant addressed similar 91 (1982). Navy violated Water Pollution Control (FWPCA), 33 1251 III), discharging ordnance into sea permit. U.S., 307-308, S.Ct., 1800-1801. ordered permit refused weapons-training operations during application Navy's "technical violations" causing "appreciable harm" quality grievous military preparedness therefore Nation. 309-310, 1801-1802. First until obtained permit, concluding balancing absolute duty obtain 310-311, 1802-1803. reversed, acknowledging outset fundamental principle course. 311, 1802. reviewed well-established principles governing award courts. 311-313, 1802-1804. brief, bases injury inadequacy remedies. each case, consider party granting withholding requested relief. particular regard given interest, ensure hardly circumstances, judge sitting chancellor mechanically obligated every law." 313, 1803. "Of course, intervene guide exercise discretion, lightly assume depart principles. 'Unless many words, inescapable inference, restricts court's equity, full recognized applied.' (quoting Porter Warner Holding Co., 328 395, 398, 66 1086, 1089, 1332 (1946)). 17 Applying FWPCA—to restore maintain integrity Nation's waters—would undermined continue polluting water. 314-315, 1804-1805. completely circumvented An discharges means ensuring Act8 nothing Act's suggested deny courts discretion.9 18 see distinguishes Romero-Barcelo destruction. actions sets forth through effects undertaken minimized. There enforcing provision, nor compelled infer limitation. Like effect—preservation refusal policy. reviewing Secretary's Sales 57 83, well study I, expressly uses.10 conclude factual finding erroneous. process," 63a, referring four distinct stages OCSLA, particularly requirement secretarial approval plan, 1351. n. 6, supra. dispute meaningfully conjunction his review plans. "[i]rreparable action." 1423 (emphasis added). This ANILCA. environment protected presumption. Environmental injury, nature, seldom adequately remedied money damages often permanent least long duration, i.e., irreparable. If sufficiently therefore, usually issuance Here, however, probable. side fact conducted summer 1985 chance recovery enjoined. 1430. 19 important role interest" discretion. OCSLA's policy11 "such harm, prevent." 63a. concluded, statutes, stake. read repealed state always more lands; rather, framework reconciliation, possible, interests.12 20 21 contend agree. imposes obligations agencies decisions affecting Alaska. lands." 3102, lands," included terms, purposes Act13 follows: 22 term 'land' lands, waters, therein. 23 'Federal land' States December 2, 1980. 24 'public lands' which, 1980, except [land selected 339, law, Corporation ANCSA, referred 19(b), 1618(b) ]." 25 meaning. exactitude. "admitted Union equal footing States," defined "all territory, together appurtenant thereto, Territory (Statehood Act) 1, 339. Submerged 1953, 29, 1301 applicable State. 6(m), 343. Under 1312, seaward boundary extends line coastline. line, 2(a), 1331(a). definition, general, "nontechnical" sense region Shelf.14 579. reject notion waving hand general northwest North America "Federal "situated attains precision mathematical symbol, expression capable evidence actually another "[D]eference supremacy Legislature, recognition Congressmen typically vote bill, generally us 'the expressed ordinary words used.' Locke, 471 84, 95, 105 1785, 1793, 64 Richards 369 9, 82 585, 590, 492 (1962)). "exceptional case" acceptance word "thwart obvious statute." Griffin Oceanic Contractors, Inc., 458 564, 571, 3245, 3250, 73 973 (1982) (internal quotations omitted).15 26 something viewed context whole.16 allocation Alaska,17 begun 1958 1971 ANCSA.18 To end, provided additions Park System, Wildlife Refuge Forest Wild Scenic Rivers Wilderness Preservation establishment Area Recreation Area, Titles II-VII, 2377-2422. facilitate conveyance ANCSA. IX XIV, 2430-2448, 2491-2549. remaining left available laws. need extended beyond order effectuate apparent purposes.19 difficult believe VIII, alone among implausible (with exceptions noted 13, supra 27 statute, 1001(a), 3141(a), OCS.20 1001 wilderness characteristics, wildlife "North Slope": 28 "(a) shall initiate carry out (other Shelf) north 68 degrees latitude east western Petroleum Reserve—Alaska, Reserve—Alaska conservation system units Act." 29 parenthetical excluding abundance caution Slope" related statute—the Natural Gas Transportation 1976, 719 III)—to 719b. Whatever caution, 1008(a), 3148(a), intend despite 1001(a). 1008(a) "establish, pursuant Mineral [Lands] 1920, amended [30 181 III) ], program subject Reserve—Alaska." extend OCS; mineral 1333(a)(1). 30 places perform Unlike onshore turns issue. G. Coggins & C. Wilkinson, Public Land Resources Law 434 (1981). 31 predecessor 100 acres vacant unreserved years admission. 6(b), 340. Similarly, 40 therein located exception installations selections Act. 1602(e), 1610(a), 1611. agree "[i]t allow portions OCS—'a reserve [government] public' (43 1332(3))." Brief 85-1406, 33. Clearly, apportion nearly identical strongly statute. 32 plain, relationship calls question meaning, ordinarily end matter." Chevron U.S.A. Inc. Defense Council, 467 837, 842, 104 2778, 2781, 81 694 (1984). "Going behind search possibly congressional intent step cautiously best 95-96, 1793 omitted). our reading language. Significantly, nowhere number remarks floor debates specifically particular. central exploitation dedication units. A amount expected recovered and, doing so, manner Representative Udall, Chairman House Committee Insular Affairs, manager example, assure Members bill inordinately development: "The experts tell going onshore. Offshore 203 sedimentary basin. Let me how much put cannot get it. answer zero. Every single acre basin potential open prospecting. owns beneath high mark, Government rest. 34 "Under legislation open, explored developed, acres." 125 Cong. Rec. 9900 (1979) added); id., 11128. 35 casual debate weight definitional statute.21 Spoken less written language; Udall easily say "offshore Indeed, thrust statement Numerous statements legislators reveal common understanding consistent language—that simply "has Shelf," 11170 (remarks Rep. Emery).22 36 Circuit's reliance here canon regarding resolution ambiguities exist; disregard Congress." South Carolina Catawba Indian Tribe, 498, 506, 2039, 2044, 490 (1986). 37 decide 4(b). Respondents' cross-petition issue, 85-1608, granted, vacated, light opinion. 38 ordered. whom SCALIA joins, judgment. Given Shelf, applied proper standard determining availability relief.* join separately petitioned 85-1406 respectively, presenting questions: (1) enter whenever finds extraordinary conflicts (1982); (2) Shelf; (3) requirements significant stage, California, 464 312, 656, 78 496 (1984); (4) retroactive effect. second disposes third fourth questions. cross-petitioned, 1601 pending "In withdraw, reserve, lease, otherwise law authorizing actions, designee needs, achieved, needed purposes. No withdrawal, reservation, occupancy effected agency— gives notice local committees regional councils 3115 title; of, holds, vicinity involved; determines (A) necessary, sound management utilization (B) involve minimal disposition, (C) upon resulting actions." moved appeal. May 10, 1983, 59 tracts leased bonus payments totaling $300 million. While appeal pending, approved plans submitted 1340 proceeded 1984. 17, 1984, resulted 163 total $500 As explained Circuit, "[a]boriginal right exclusive ancestors assertion sovereignty States." 574. Oneida Nation County Oneida, 414 661, 667-669, 772, 777-778, (1974); Cohen, Handbook 486-493 Coastal Zone Management 1451 Marine Protection, Research, Sanctuaries 1431 Mammal Protection 1361 Fishery 1801 Endangered Species 1531 Policy 42 4331 Pursuant (NEPA), Department drafted 1982 332-page Final Impact Statement (EIS) 57. analyzed EIS subsequent development, production, conceivably "subsistence uses," 803, 3113. documented shellfish, mammal, bird, animal utilized Stebbins, sensitivity oilspills, impacts, harvest pressure. 47-53, 136-148. sociocultural changes "While take occur proposal, probability disturbance, form reduction take, large-scale disruption harvesting reductions unlikely whole. For Savoonga, lesser extent 'big mammal hunting' (Diomede, King Island, Wales) due relatively greater vulnerability oilspill events, short-term disturbance peak period." 142. comparable 1983 previously Plan. 337, 669, developing OCS: formulation 5-year plan Interior; sales; lessees; production. Each involves separate regulatory may, transfer purchasers additional OCS." itself, present future estimated 13% being undertaken. 81a-106a. stressed definite latter time. considerable degree EIS. accordingly explicit evaluations. 107a-115a. planned 1985. addition FWPCA enforced fines criminal penalties, 1319(c) (d). 314, 1804. believed absence enforcement distinguished Romero-Barcelo. 1426, insuring incorrect. simple responsible official comply. interpreted TVA Hill, 437 153, 98 2279, 117 (1978), Congress, 1973, 87 884, foreclosed possessed equity completion Tellico Dam snail darter, endangered species. flat ban destruction critical habitats species conceded dam destroy habitat darter. "Refusal action ignored 'explicit Act.' 173, 2291. appeared us, chosen darter dam. [not bare violation] remedies Court; vindicate objectives similarly distinguishable Hill. Implicit lease-sale public, expeditious orderly safeguards, maintenance competition needs." 1332(3). ground trial merits whereas fail grasp significance distinction. essentially plaintiff show actual success. See, e.g., University Texas Camenisch, 451 390, 392, 101 1830, 1832, 175 Despite nature proceeding, record enough record, confidence factor abandoned. definitions entire IX, implementation amends provisions, terms strikingly Supreme twice expansive non-technical interpretation achieve Congress's native fisheries. Hynes Grimes Packing 337 86, 110-116 [69 968, 982-986, 93 1231] (1949); 89 [39 138] (1918)." 580. body known Annette Islands," reservation Metlakahtla Indians, particular: embraced uplands intervening surrounding waters. "any occupied Eskimos said Territory" authorized Karluk Reservation distance 3,000 feet shore. 92, 69 972. cases, reservations, phrases band adjacent These cases inapposite. "Alaska," meanings commonly understood, inquiry, exclude island group, Eskimos." derived statutes. plainly land" "title" 102(2), 3102(2). hold hesitate "interests therein." Certainly, defining "lands, therein" 114-116, 984-986. comprised titles spans pages Statutes Large, 2371-2551. contained 2422-2430, 3111-3126. articulated purpose: benefit, education, inspiration generations contain nationally natural, scenic, historic, archeological, geological, scientific, wilderness, cultural, recreational, values, described established. "(d) sufficient cultural values adequate opportunity satisfaction economic social needs people; accordingly, designation represent intensive thus believes designating units, recreation obviated thereby." 101, 3101 Report bill: principal H.R. [sic] reported Affairs designate 120 ownership management. virtually completes began land; percent complete. disposal 44 one-eighth complete." H.R.Rep. 96-97, pt. 135 (1979). (1979); S.Rep. 96-413, 126 (1979), U.S.Code Admin.News 5070. definitions. X XV pertain XI transportation utility systems across, access into, XII federal-state cooperation, XIII miscellaneous administrative provisions. Cong.Rec. 9893 Vento) ("[The Udall-Anderson bill] 95 favorable sites, comprises two-thirds potential"); 9907 Young) ("I this: person who supports first great disservice environment"); 11174 Huckaby) ("Alaska's billion barrels"). 21889 (1980) Sen. Bayh) ("100 sites remain exploration"); 21657 Cranston) (same); 18747 Hart) ("[M]ost undiscovered lies affected designations"); 11450 Kostmayer) ("Two hundred five untouched bill"). finally enacted, cover saving clause, 3125, specifies Magnuson (FCMA), 331, FCMA, asserts fishery authority zone commences 200 coast. 1811, 1812(1). According inclusion FCMA clause However, "anadromous throughout migratory range zone," 1812(2). Thus, interpret FCMA's clause. recognizes declines reach presented petition. ante, 534-535, discussion nonessential arguably lower employ analysis remand. Even if, cross-petition, retain apparently relation special precedent providing "[a]n 1414, 1422 1985) 1984). prevent interference

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