United States v. ASARCO Inc.

214 F.3d 1104, 2000 Daily Journal DAR 6346, 30 Envtl. L. Rep. (Envtl. Law Inst.) 20654, 2000 Cal. Daily Op. Serv. 4776, 50 ERC (BNA) 1913, 2000 U.S. App. LEXIS 13939, 2000 WL 767702
CourtCourt of Appeals for the Ninth Circuit
DecidedJune 15, 2000
DocketNo. 98-36247
StatusPublished
Cited by8 cases

This text of 214 F.3d 1104 (United States v. ASARCO Inc.) is published on Counsel Stack Legal Research, covering Court of Appeals for the Ninth Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
United States v. ASARCO Inc., 214 F.3d 1104, 2000 Daily Journal DAR 6346, 30 Envtl. L. Rep. (Envtl. Law Inst.) 20654, 2000 Cal. Daily Op. Serv. 4776, 50 ERC (BNA) 1913, 2000 U.S. App. LEXIS 13939, 2000 WL 767702 (9th Cir. 2000).

Opinion

REINHARDT, Circuit Judge:

I. BACKGROUND

In 1983, the Environmental Protection Agency (EPA) placed the “Bunker Hill Mining Site” on the National Priorities List (NPL), a list of the most contaminated sites in the nation. The list is maintained by the EPA pursuant to the Comprehensive Environmental Response, Compensation, and Liability Act (CERC-LA). See 42 U.S.C. § 9601 et seq. The listing of the Bunker Hill site reflected widespread contamination caused by more than 100 years of mining and mining-related activity. Consistent with EPA policy, the listing did not set forth any site boundaries. Over the next several years, however, the EPA referred to the Bunker Hill Superfund Site in various documents as a twenty-one square mile box, bounded on the west by the town of Pinehurst and on the east by the town of Kellogg, in Shoshone County, Idaho (the “Box”).

In March 1996, the United States, at the request of the EPA, the Department of Interior, and the Department of Agriculture, filed an action against various owners and operators of mining and mineral processing facilities to recover, among other things, damages under CERCLA for injury to natural resources with respect to the “Bunker Hill facility.” See 42 U.S.C. [1105]*1105§ 9607(a)(4)(C). The United States’ complaint stated that the “Bunker Hill facility” with respect to which damages were sought was listed on the NPL in 1983, and stated further that the boundaries of the “Bunker Hill facility” encompassed the Co-eur d’Alene Basin. The Coeur d’Alene basin includes the main stem and south fork of the Coeur d’Alene river, most of its tributaries, and Lake Coeur d’Alene, and constitutes an area of approximately 1,500 square miles. -

In their answers to the United States’ complaint, the defendants asserted CERC-LA’s statute of limitation as a defense. See 42 U.S.C. § 9613(g). Under CERC-LA, a cause of action for natural resource damages must generally be filed within three years of “the discovery of the loss and its connection with the release in question.” § 9613(g)(1)(A). For facilities listed on the NPL, however,1 CERCLA provides a limitations period that may be considerably longer: “With respect to any'facility listed on the National Priorities List (NPL) ... an action for damages under this chapter must be commenced within 3 years after the completion of the remedial action (excluding operation and maintenance activities).” 42 U.S.C. § 9613(g)(1).

Both the United States and the defendants moved for summary judgment on the statute of limitations issue. The United States argued that the “Bunker Hill facility” was listed on the NPL and therefore triggered the longer statute of limitations. It acknowledged that, if the shorter time limit applied, its claims would be time-barred. Ini opposition, the defendants argued that the NPL listing relied on by the United States covered only the twenty-one square mile “Box,” and that the areas outside the “Box” — the vast majority of the site as defined by the United States — fell under the shorter statute of limitations.

Ruling on the cross-motions for summary judgment, the district court held that, while the initial listing on the NPL did not confer fixed boundaries on the Bunker Hill site, “at some point the EPA ha[d] to draw a line on what the EPA considers the NPL facility to be.” United States v. ASARCO, 28 F.Supp.2d 1170, 1180 (D.Idaho 1998). After it does so, the district court held, the EPA is not precluded from “expandfing] the boundaries of a NPL listed site,” but it must do so “through proper regulatory channels.” 28 F.Supp. at 1180-81 & n. 24. The district court then concluded that the EPA had elected, in the years following the NPL listing, to draw a line around the Box and to consider the Box to be the NPL facility. Because the EPA had not subsequently undertaken notice and comment rule-making to expand the boundaries beyond the Box, the district court ruled that the principal portion of the United States’ claim, the portion relating to the area outside the Box, was governed by the shorter statute of limitations. Accordingly, the district court granted partial summary judgment to the defendants and denied partial summary judgment to United States. The United States filed this interlocutory appeal.2

II. DISCUSSION

The district court held that, because the EPA had treated the Bunker Hill NPL site as encompassing only the Box, the agency was precluded from asserting in its present CERCLA action that the Bunker Hill site includes a broader part of the Coeur d’Alene' Basin. It suggested that the government could expand the site boundaries, but only by engaging in notice- and-comment rulemaking.

Enacted in 1980, CERLA directed the President to compile a list identifying top [1106]*1106priorities among the nation’s known hazardous waste sites. Sites included on this list, the National Priorities List, are considered the leading candidates for Superfund-financed cleanup. See 42 U.S.C. § 9605(a)(8)(B). The listing does not, however, definitively establish which sites are the most polluted or what should be done about the various sites. Instead, “[t]he initial identification of a site for the NPL is intended primarily to guide EPA in determining which sites warrant further investigation to assess the nature and extent of the public health and environmental risks associated with the site.” See 54 Fed.Reg. 13297 (1989). Although the act of listing a facility on the list gives EPA the authority to undertake certain remedial activities and to pursue various forms of legal action to recover money from “potentially responsible parties,” the listing does not itself assign liability to any person or require any person to undertake any action. See id. Rather, subsequent government action is ordinarily necessary for that purpose.

It is the policy of the EPA that it may revise NPL site boundaries at any time. Because of the “limited purpose of the NPL (as the mere identification of releases),” the EPA has concluded that an NPL listing neither describes nor fixes the boundaries of the NPL site. See 55 F3d. Reg. 9689 (1990); 54 Fed.Reg. 13296, 13298 (1989). While the preliminary description of the boundaries of the NPL site will often be represented by the scoring of the release performed using the Hazard Ranking System, the position of the agency is that it may revise this description of the facility boundaries as it acquires more information about the extent and severity of the contamination. According to the agency, it may, if it chooses, follow the contamination as far as it goes and then “consider! ] the facility, for response purposes, as the entire area where hazardous substances have come to be located, even if that area extends beyond the boundary for which the site was named.” 54 Fed.Reg. 13298.3 In short, the EPA’s policy is that further notice-and-comment rulemaking is [1107]*1107not required following the initial site designation.

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214 F.3d 1104, 2000 Daily Journal DAR 6346, 30 Envtl. L. Rep. (Envtl. Law Inst.) 20654, 2000 Cal. Daily Op. Serv. 4776, 50 ERC (BNA) 1913, 2000 U.S. App. LEXIS 13939, 2000 WL 767702, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-asarco-inc-ca9-2000.