Legal Document

420 U.S. 35 95 Supreme Court Reporter 839 43 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1 Russell E. TRAIN, Administrator, Environmental Protection Agency, Petitioner,v.CITY OF NEW YORK et al. Number 73—1377. Argued Nov. 12, 1974. Decided Feb. 18, 1975. Syllabus The Federal Water Pollution Control Act Amendments of 1972 provide a comprehensive program for controlling and abating water pollution. Title II these makes available federal financial assistance municipal sewers sewage treatment works. Section 207 authorizes the appropriation 'not to exceed' specified amounts each three fiscal years, § 205(a) provides that '(s)ums authorized be appropriated pursuant (§ 207) . shall allotted by Administrator' Agency. President directed Administrator not allot among 207's maximum but instead no more than $2 billion $5 year 1973 $3 $6 1974; complied with this directive. Thereupon respondent city New York brought class action seeking declaratory judgment was obligated full years 1974, an order directing him make those allotments. District granted respondents' motion summary judgment, Appeals affirmed, holding 'the requires sums in 207.' Held: do permit under less entire 207. Pp. 42-49. (a) That directs allotment only 'sums'—not 'all sums' as originally provided when legislation went Conference—and Conference Committee added qualifying language 207, which specific show congressional intention giving Executive discretionary control over rate allotments programs. has meaning its own apart from 205(a), reflects realistic possibility approved applications grants funds already would total amount appropriated. And word 'sums' different can ascribed function context words sums.' 42-46. (b) modified position taken petitioner §§ merely give discretion timing expenditures, ultimate obligated, urged lower courts, does alter Court's conclusion. Administrator's power extends since, even assuming some sort outlays Act, legislative history indicates exercised at obligation phase, rather stage, process. 46-49. D.C.Cir., 494 Reporter, 2nd 1038, affirmed. Sol. Gen. Robert or Haw. Hawai‘i KFH45 A2 Bork, petitioner. John R. Thompson, City, respondents. Mr. Justice WHITE delivered opinion Court. This case poses certain questions concerning proper construction Act7 1972, 86 Statutes-at-Large 816, 33 Code KF62 1251 seq. (1970 ed., Supp. III) (1972 Act), 2 833, adding II, 201—212, 62 1155, 1281—1292 III),1 finan- [Amicus Curiae Information pages 36-37 intentionally omitted] cial 75% cost Under there is 'authorized appropriated' purposes 1973, $7 '(s) ums 207)' later 30 days after October 1972.' authorized' 1974 1975 'shall January 1st immediately preceding beginning ..' From sums, 201(g)(1) 'to any municipality publicly owned works .,' plans specifications required 203 meeting other requirements including 204. 203(a) specifies approval project deemed contractual payment proportional contribution such project.'2 3 pollution bill became passed Congress on 4, vetoed 17. promptly overrode veto. President, letter dated November 22, 1972,3 (to) section 207' and, instead, '(n)o ..'4 On December 8, announced regulation5 accordance President's he allotting 'sums exceed billion, respectively.' 4 litigation, similarly situated municipalities State York, followed immediately.6 complaint sought against Agency declaring well In May denied dismiss cities' judgment. 161 U.S.App.D.C. 114, 131, 1033, 1050 (1974). 5 Because differing views respect between courts Columbia Fourth Circuit Train versus Campaign Clean Water, 136, 847, 42 82, we certiorari both cases, 416 969, 94 1991, 40 557 (1974), heard them together. sole issue7 before us whether permits We hold affirm Appeals.8 6 Administrator.' years. dispute turns principally foregoing indicated sections Act. 7 contends sums'—authorized must are words, it argued maximum, minimum, 205(a). necessarily case, insists, because legislation, initially passing House Senate somewhat form, amended changes, were adopted Houses intended wide spending 8 changes relied so-called Harsha amendments, two. First, 205 bills they Conference, 207.9 'all' struck Conference. Second, inserted so specified. 9 arguments based statutory unpersuasive. sum If failed submit projects sufficient require obligation, hence appropriation, authorized, if exercising whatever authority might have given deny grants, refused obligate amounts, obviously lesser amounts. But if, example, course approving making contracts, plainly 'authorized' $35 billion. money future 207,—then equal allotted. speaks appropriated, appropriated; far 205(a)'s requirement concerned, see difference ordered withheld. latter much former. Both 10 It insisted reading fails effect Committee's bill. But, indicated, own, quite Surely nothing inconsistent authorizing requiring States. Indeed, ever amount, may made funds. 11 As striking 205, confer withhold chose inadequate means so. appears said outlay programs either stage intention, without more, legislation. Without something addition what now us, cannot accept few deletion one altering complexion thrust conceived Houses, firm commitment substantial within relatively limited period time effort achieve early solution urgent problem.10 believe last minute scuttled providing seemingly limitless obligation. Yet Government's courts—combined argument conferred unreviewable. 12 had second thoughts. He claim amendments should far-reaching effect. Court, conferring obligated. asserts although limit initial continues' exercised, 'until $18 been exhausted.'11 Brief Petitioner 13; Tr. Oral Arg. 16 true represents major modification legal posture,12 our conclusion affected. first place, allot, balance additional then 17, funds, authorized.'13 22 consequent withholding squared statute. 13 part Congress, hope forestalling veto, imply indicating arguably phase contrary, view history, indications control, was, point where connection threshold States.14 appeals carefully examined arrived same conclusion, most dealt issue.15 thus reject suggestion 14 Accordingly, 15 So ordered. Judgment 17 DOUGLAS concurs result. provisions chiefly involved are, pertinent part, follows: 1285(a) III): 'Sums 1287 title June 30, except 1972. .' 'There carry out subchapter ending $5,000,000,000, $6,000,000,000, 1975, $7,000,000,000.' 203, 1283 '(a) Each applicant grant his approval, plans, specifications, estimates proposed applied (sic) 1281(g)(1) 1285 otherwise meets chapter. act upon soon practicable submitted, project. '(b) shall, work progresses, payments recipient costs incurred These share date voucher covering plus value materials stockpiled vicinity conformity '(c) After completion final pay appropriate unpaid payable account project.' established funding method important respects normal system authorization separate annual acts. approach, until actual Government firmly committed. contract-authority scheme incorporated now, authorizations appropriations also continuing Branch contractually commit up authorization. expectation will automatically forthcoming meet commitments. mechanism considerably reduces appropriations. issue extent expenditures funded manner circumstances present here. Letter Nixon William D. Ruckelshaus, App. 15—16. Although directly 15, $4 year. 6. 37 Fed.Reg. 26282 (1972). proceed Fed.Rules Civ.Proc. 23(b)(1) (2) allowed Detroit intervene plaintiff. petition writ presented question suit compel here barred doctrine sovereign immunity, briefed apparently abandoned. concedes that, 'allotment ministerial district jurisdiction done.' 14. July while pending Congressional Budget Impoundment Public Law 93—344, 88 297, 31 1301 IV), effective. X imposes postponing use determines budget particular rescinded, special message explaining basis therefor. For rescission effective, approve 45 days. Should desire delay expenditure authority, similar Congress. His recommendation rejected adopting resolution disapproving deferral. render moot decision unnecessary, 1001, note following 1401 that: 'Nothing contained construed as— '(3) affecting way claims defenses party litigation impoundment.' appear affect cases one, enactment Solicitor General, behalf submitted supplemental brief agrees mooted contrary filed. asserting ground grounds application here, included deferrals reported new Act: 'Grants waste plant ($9 billion). Release all highly inflationary, particularly rapid rise non-Federal control. Some deferred prior February 1, 1975.' submission, asserted 'applies determinations since law approved,' nevertheless thought include report actions concluded effective 120 Cong.Rec. 17195 (Sept. 23, 1974). Other bear possible mootness issues reach coverage us. appeared 'allocate' 'allot.' significance. declares 'it national goal discharge pollutants into navigable waters eliminated 1985,' 101(a)(1), 1251(a)(1) III). apply best technology life consistent subchapter.' 201(g)(2)(A), 1281(g)(2)(A) See 301(b)(1)(B), 1311(b)(1)(B) determination during 1973—1975 reflected remarks Senator Muskie, Chairman Subcommittee concerned manager floor: '(T)hose who say raising called higher taxes, contribute inflation simply understand crisis. 'The conferees spent hours studying problem financing cleanup members agreed end committed 75-percent 1973—75. great deal money; how begin set forth '. (T)here two strong imperatives worked together convince conference needed: first, conviction magnitude produce necessary technology; second, knowledge minimum needed finance facilities standards imposed 'Mr. deadlines talking about going need strongest kind evidence pick load. back down, credibility, investment convinced level medicine solve problems face.' 118 33693—33694 authorization-appropriation favor system, involve binding reliable 117 38799, 38846—38853 (1971); 10751-10761 Congressman Harsha, floor bill, explained preference approach essential orderly continuous planning. Id., 10757—10758. goes argue little refuse obligate, eventually otherwise. Our unnecessary question. presently being administered 13. 205(b), remain unobligated one-year close become reallotment formula determined Administrator. reallotment, formula, senior majority conferee Senate, gave Senate: 'Under others, obligational next Also, committed, though allocated. suggested Administration flexibility funds.' 33694 repeated proceedings override 36871. Nothing challenging Senator's executive did extend House, mentioned terms. impact repeatedly reference expend. Typical Representative Harsha's 'emphasize pacing item' estimates. 33754. id., 33693, 33704, 33715—33716, 33754—33755, 36873—36874, 37056—37060. 1033 aff'g 358 F.Supp. 669 (D.C.1973). Courts reached result: Ohio ex rel. Brown EPA, Nos. C. 73 1061 & 74—104 (ND 26, 1974); Maine Fri, Civ. 14—51 (Me. 21, Florida Train, 73—156 Fla. 25, Texas A—73—CA—38 (WD Tex. Oct. 2, 1973); Martin-Trigona 72—C—3044 Ill. 29, Minnesota ,EPA, 4—73, 133 (Minn. actively litigated held 364 258 (CD Cal.1973).

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