Legal Document

542 U.S. 55 NORTON, SECRETARY OF THE INTERIOR, ET AL.,v.SOUTHERN UTAH WILDERNESS ALLIANCE AL.Supreme Court of United States. No. 03-101. Supreme Argued March 29, 2004. Decided June 14, The Bureau Land Management (BLM), an Interior Department agency, manages the Utah land at issue here under Federal Policy and Act 1976. Pursuant to 43 U. S. C. § 1782, Secretary has identified certain federal lands as "wilderness study areas" (WSAs) recommended some these suitable for wilderness designation. designated by Congress enjoys special protection; until acts, must "manage [WSAs] ... so not impair the[ir] suitability . preservation wilderness." 1782(c). In addition, each WSA or other area is managed "in accordance with" a use plan, 1732(a), BLM document which generally describes, particular area, allowable uses, goals land's future condition, next steps. CFR 1601.0-5(k). Respondents Southern Wilderness Alliance others (collectively SUWA) sought declaratory injunctive relief BLM's failure act protect public from environmental damage caused off-road vehicles (ORVs), asserting three claims relevant here, contending that they could sue Administrative Procedure (APA) "compel agency action unlawfully withheld unreasonably delayed," 5 706(1). Tenth Circuit reversed District Court's dismissal claims. Held: alleged failures are remediable APA. Pp. 61-73. (a) A 706(1) claim can proceed only where plaintiff asserts failed take discrete it required take. discrete-action limitation precludes broad programmatic attack such rejected in Lujan v. National Wildlife Federation, 497 871, required-action rules out judicial direction even demanded law. 61-65. (b) SUWA first violated 1782(c)'s nonimpairment mandate permitting ORV WSAs. While 1782(c) mandatory object be achieved, leaves discretion decide how achieve object. argues will support APA suit, but general deficiency compliance lacks requisite specificity. principal purpose this agencies undue interference with their lawful avoid entanglement abstract policy disagreements courts lack expertise information resolve. If were empowered enter orders compelling statutory mandates, would necessarily whether was achieved. does contemplate pervasive federal-court oversight. 65-67. (c) also comply provisions its plans contravenes requirement manage plans, 1732(a). however, tool project present use. Unlike specific command requiring promulgate regulations date, plan statement priorities; guides restrains actions, prescribe them. about what do, if funds there more pressing priorities, cannot plucked context made basis suit. statements legally binding commitment enforceable 67-72. (d) finally contends did fulfill obligation Environmental 1969 "hard look" undertake supplemental analyses areas had increased. Because applicable regulation requires impact (EIS) supplemented "are significant new circumstances concerns bearing on proposed impacts," 40 1502.9(c)(1)(ii), assess need supplementation, Marsh Oregon Natural Resources Council, 490 360, 385. However, supplementation "there remains major actio[n] occur," id., 374. Since approval "action" EIS, once been approved, no ongoing "major actio[n]" require supplementation. 72-73. 301 F. 3d 1217, remanded. SCALIA, J., delivered opinion unanimous Court. CERTIORARI TO UNITED STATES COURT APPEALS FOR TENTH CIRCUIT. Deputy Solicitor General Kneedler argued cause petitioners. With him briefs Olson, Assistant Attorney Sansonetti, Clark, Barbara McDowell, Andrew Mergen, John A. Bryson, Susan Pacholski, Roderick E. Walston. Paul M. Smith respondents. brief respondents et al. Jerome L. Epstein, William Hohengarten, Elaine J. Goldenberg, Stephen H. Bloch, James Angell, Patti Goldman, Todd D. True. Turcke W. Mortensen filed Shared Access al.* JUSTICE SCALIA 1 case, we authority court 706(1), extends review States Management's stewardship own planning documents. 2 * Almost half State Utah, 23 million acres, administered within Interior. For nearly 30 years, management governed 1976 (FLPMA), 90 Stat. 2744, 1701 seq., "established favor retaining multiple management." 877 (1990). "Multiple management" deceptively simple term describes enormously complicated task striking balance among many competing uses put, "including, limited to, recreation, range, timber, minerals, watershed, wildlife fish, [uses serving] natural scenic, scientific historical values." 1702(c). second goal, "sustained yield," control depleting over time, ensure high level valuable future. 1702(h). To ends, FLPMA establishes dual regime inventory planning. Sections 1711 1712, respectively, provide comprehensive, lands, process "project[s]" "present use," 1701(a)(2), given lands' inventoried characteristics. 3 Of course all compatible. judgment should set aside expense commercial recreational uses. pre-FLPMA enactment, 1964, 78 890, provides areas, subject exceptions, "shall [have] enterprise permanent road," motorized vehicles, manmade structures. 16 1133(c). designation Congress, see 1782(b). 4 (Secretary) so-called (WSAs), roadless 5,000 acres possess characteristics," determined Secretary's inventory. 1782(a); 1131(c). As name suggests, WSAs (as well wild prior passage FLPMA) have subjected further examination comment order evaluate wilderness. 1991, 3.3 study, Dept. Interior, BLM, Statewide Study Report (Oct. 1991). This recommendation forwarded yet acted upon it. Until acts one way other, "the shall continue manner applies including considered unsuitable Secretary. See §§ 1782(a), (b); App. 64 (BLM Interim Lands Under Review). Aside identification WSAs, main employs protection against — call "resource plan." 1601.0-5(k) (2003). adopted after notice comment, "designed guide actions," 1601.0-2. 1712; 1610.2 Generally, condition land, FLPMA, "[t]he principles sustained yield, when available." 6 Protection come into increasing conflict another element use, include primarily designed lightweight, four-wheel "all-terrain vehicles," capable sport utility vehicles. 8340.0-5(a) According Forest Service's most recent estimates, 42 Americans participate travel year, than double number two decades ago. Cordell, Outdoor Recreation 21st Century America (2004). sales all-terrain alone roughly doubled past five reaching almost 900,000 2003. Tanz, Making Tracks, Enemies, N. Y. Times, Jan. 2, 2004, p. F1, col. 5; Discover Today's Motorcycling, Motorcycle Industry Press Release (Feb. 13, 2004), http://www.motorcycles.org (all Internet materials visited 4, available Clerk case file). ORVs negative consequences, soil disruption compaction, harassment animals, annoyance lovers. Brief Defense Council Amici Curiae 4-7, studies cited therein. Thus, faces classic dilemma sharply inconsistent scarce resources congressional silence respect 7 1999, organizations petitioners Director, amended complaint, here: (1) allowing degradation WSAs; (2) implement relating use; (3) whether, pursuant (NEPA), 83 852, 4321 contended remedy APA's provision delayed." 8 entered divided panel reversed. 1217 (2002). majority acknowledged "federal may fails carry mandatory, nondiscretionary duty." Id., 1226. It concluded, just duty, therefore compelled comply. similar reasoning, claim; likewise NEPA claim. We granted certiorari. 540 980 II 9 All involve assertions Failures sometimes APA, always. begin considering limits places inaction. 10 authorizes suit "[a] person suffering legal wrong because action, adversely affected aggrieved meaning statute." 702. Where statute private right "agency action" complained "final action." 704 (emphasis added). "[A]gency defined 551(13) whole part rule, order, license, sanction, relief, equivalent denial thereof, act." (Emphasis added.) 706(1): "The reviewing compel 11 702, 704, insist action," either (in 702 704) 706(1)). definition begins list categories decisions outcomes implemented sanction [or] relief." 551(13). those circumscribed, definitions make clear: "an effect implement, interpret, law policy" (rule); "a final disposition matter rule making" (order); "permit form permission" (license); "prohibition taking [of] compulsory restrictive (sanction); "grant money, assistance, authority," etc., "recognition claim, right, immunity," "taking application petition of, beneficial person" (relief). 551(4), (6), (8), (10), (11). 12 terms following APA: "or But "equivalent thereof" (or equivalent), "denial listed (and perhaps equivalent). 13 definition, "failure act," our view properly understood is, actions (including equivalents) earlier Moreover, without equation "act" interpretive canon ejusdem generis attribute last item ("failure act") same characteristic discreteness shared preceding items. See, e. g., Washington Social Health Servs. Guardianship Estate Keffeler, 537 371, 384-385 act" thing "denial." latter agency's saying request; former simply omission formally rejecting request example, decision deadline. important point limited, items 551(13), action. 14 central analysis required. appears 706(1)'s authorization withheld."1 regard carried forward traditional practice passage, achieved through prerogative writs principally mandamus Writs Act, now codified 28 1651(a). normally enforcement specific, unequivocal command," ICC New York, & R. Co., 287 178, 204 (1932), ordering "`precise, definite [an official] whatever,'" ex rel. Dunlap Black, 128 40, 46 (1888) (quoting Kendall Stokes, Pet. 524, 613 (1838)). Humboldt 224 474, 484 (1912). described General's Manual whose reasoning often found persuasive, see, Darby Cisneros, 509 137, 148, n. (1993); Chrysler Corp. Brown, 441 281, 302, 31 (1979); Vermont Yankee Nuclear Power Inc., 435 519, 546 (1978), empowers "to perform ministerial non-discretionary matter, directing 108 (1947) Jaffe, Judicial Control Action 372 (1965); K. Davis, Law 257, 925 (1951). 15 These limitations several kinds challenges. kind 871 There challenge withdrawal program, couched unlawful plaintiffs wished "set aside" 706(2).2 879. concluded program action": "[R]espondent seek wholesale improvement decree, rather offices halls improvements made. respondent direct `agency action' causes harm." 891 original). 17 Federation fared better characterized revise proper fashion" consider ibid., withheld" "not law" 706(2). 18 (which includes, course, force law). time period, left discretion, act, power specify be. 47 251(d)(1), Communications Commission establish implement" interconnection requirements "[w]ithin months" date enactment Telecommunications 1996, supported decree prompt issuance regulations, setting forth content regulations. III 19 mind, turn SUWA's "continue wilderness," relies Review, interprets prevent them being "degraded far, compared area's values purposes, significantly constrain Congress's designate [it] release uses." 65. 20 Section great deal deciding assuredly mandate, clarity necessary total exclusion 21 1782 contain categorical imperative, namely, mandate. suggesting any compliance. language quoted earlier, "take [the agency] noting "mandamus lie though involves exercise discretion." Safeway Stores, Inc. 138 2d 278, 280 (Emerg. Ct. 1943). referred excerpts, discussed above. deficiencies compliance, unlike ruling specificity 22 derived both empowered, well, determine mean ultimately become supervising court, work injecting judge day-to-day management. few examples management, might allege free-roaming horses burros maintain thriving ecological balance," [New Orleans Jazz National] [H]istorical [P]ark preserve perpetuate knowledge understanding history jazz," [Steens Mountain] Cooperative Area benefit generations." 1333(a), 410bbb-2(a)(1), 460nnn-12(b). prospect oversight pace directives contemplated B thus contravening 1732(a); 1610.5-3(a) (2003) ("All resource authorizations subsequent detailed planning, conform approved plan"). count complaint variety commitments litigation reduced two, 1991 San Rafael various aspects 1990 implementation Henry Mountains area. 24 (completion route area), aspect (creation "use supervision files" area) already completed,3 moot. light Factory Butte area," sub-area open [plan] obligated conduct intensive monitoring program." 7-8. based plan's "will monitored closed warranted." 140. contest assertion below informal taken place Appellee 01-4009 (CA10), 23, demands continuing program. By apparently means adherence discussion "Use Supervision Monitoring" 148-149, addition calling files created) "[r]esource documented recommendations corrective "[m]onitoring focus determining necessitate change designation," "emphasis placed [limited areas]." 149. acknowledges recently commenced. 12. light, existence "program" contemplates, contention 25 directive regulatory "conform to" plan. Unless amended, contrary presently discussion, us go further, conclude "will" this, that, least absent clear indication 26 tools projected." 1701(a)(2) implementing preliminary step overall managing development subsequent, scope 1601.0-2 confirm ordinarily medium affirmative "project[ions]."4 Title 1712(e) plans" decisions, distinct itself. Picking up theme, defining declares "is steps, regulations." Use Planning Handbook specifies used site-specific decisions. II-2. 27 Plans receive different Appeal Department's Board Appeals portion amendment." 1610.5-3(b) Board, reviews "decisions rendered Departmental officials [t]he resources," 4.1(b)(3)(i), since regards determination, decision. Society, 109 I. B. 175, 178 (1989); 221, (1986); II-2, IV-3. protested director, appealed. apt illustration immense projected activity embrace. Over 100 pages length, presents comprehensive framework 1.5 BLM-administered land. Twenty separately discussed, mineral extraction, protection, livestock grazing, cultural resources, recreation. lays ambitious agenda preparation additional, steps implementation. Its introduction notes "[a]n [ORV] scheduled prepared year [San plan]." Plan 9. Similarly "scheduled preparation" environmentally sensitive "along allotment habitat fire recreation , selected sites, watershed scenic river Ibid. schedule shows "[a]nticipated [i]mplementation" still others, "one per fiscal year." 95-102. 29 Quite constrains (at usual case) unreasonable think intended otherwise, nationwide commit far future, appropriated. Some explicit budgetary constraints. Petitioners 42-43, plans). specification, reasonably implied. point, provided called merely reiterates duties perform, itself creates agency. lead priorities. immediate divert energies projects throughout country fact pressing. And while please operate detriment sound predictable consequence much vaguer making coordination difficult, depriving concerning long-range intentions. hold like do" projections That so, find unnecessary envisioned sufficiently amenable compulsion APA.5 IV 32 Finally, obligations NEPA. Before addressing NEPA-required duty actionable place. prepare "proposals legislation affecting quality human environment." 4332(2)(C). Often initial EIS sufficient, supplemented. 370-374 (1989). Quality "[t]here impacts." 1502.9(c)(1)(ii) Marsh, interpreted 4332 necessary. S., 385; 378-385. 33 evidence increased "significant information" look." disagree. noted `major actio[n]' met: dam construction gave rise completed. Here, contrast, although "[a]pproval [land plan]" 1601.0-6 added), completed approved. "proposed regulation. (though additional revised, 1610.5-5, 5-6). 34 35 reversed, remanded proceedings consistent opinion. 36 ordered. Notes: Robin Rivett Pacific Legal Foundation amicus curiae urging reversal. Briefs amici affirmance California Bill Lockyer, California, Manuel Medeiros, General, Richard Frank, Chief Brieger, Acting Theodora Berger, Senior Ken Alex Craig Thompson, Supervising Attorneys Durbin Potter, respective follows: Salazar Colorado, Blumenthal Connecticut, Lisa Madigan Illinois, Thomas Reilly Massachusetts, Jeremiah (Jay) Nixon Missouri, Mike McGrath Montana, Brian Sandoval Nevada, Patricia Madrid Mexico, Eliot Spitzer Drew Edmondson Oklahoma, Hardy Myers Oregon, Larry Long South Dakota, Peggy Lauten-schlager Wisconsin; Defenders Katherine Meyer Eric Glitzenstein; Montana Association Jack Tuholske; Organization Veterans' Advocates Daniel Wedemeyer; Charles Koob Johanna Wald; Robert Adler G. Dreher; Russell Train Nicholas Yost Gary Widman. delayed" delay 706(2) provides, part: "(2) "(A) arbitrary, capricious, abuse otherwise ." Route Designation (2003), http://www.ut.blm.gov/sanrafaelohv/wtheplan.htm; Appellants 771 (declaration manager field office, establishment area); Respondent (hereinafter (acknowledging completion actions) arguable creation maintenance files, (for reasons later text) say merits apply equally file exceptions regulation, designating roads, trails (see 8342)." II-2 (2000) Handbook). See,e. Final Resource 63 (1991) Rfael Plan) (available http://www.ut.blm.gov/planning/OTHERS/SRARMP-ROD%20MAY%201991.pdf). express could, enforce monitor imposed 8342.3 question before

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