District Judge of the E asternDistrict of Loui siana, sitting bydesignation. * 

### INTHE UNI TED S TATESCOU RT OFAPPEALS

FORTHEFIFTH CIRCU IT

N o. 08- 10890 CI TYO F D AL LA S, TEXAS P l a i n tiff-A p p ell a n t v. H . D A L E H A L L , E T A L . D efen da n t - A pp el l ee and TE XAS W AT ER DEV EL OPM ENT B OARD Pl ai nt i f f

- Appe l l ant
v. UN I TE D S TA TE S DEP ART M ENT OFT HE I NTERI OR, ET AL D efen da n t s- A pp el l ees A p p ea lf

rom the U n i tedS tates U n i tedS tates D i stri ct C ou rt f or t h e N ort h ern D i st ri ctof T exas

B ef ore SM ITH an d S O U T H W IC K , Cir c uitJ u dg es, an d E N G E L H A R D T , D i st ri ct Ju dg e . * United States Court of App eals Fifth Circuit 

### F I L E D Ma rch 12, 2009 Cha rl es R. F ulb ru g e II I ClerkN o. 08- 10890

2 K U R T D . E N G E L H A R D T , D i st ri ctJu dg e: A f t er prepari n g an E n vi ronm en t alA sses sm en t(“ E A” ) of t h e proposed N ech es W i l d l i fe R efu ge i n E a st T ex a s, the U . S . F i sh & W i l d l i fe S erv i ce (“ F W S ”) an n ou n ced i t s Finding of N o Signi f

i can tIm pa ct(“ F O N S I” ) , ob vi ati n g t h e need t o pr epar e a n E nvi r onm ent alI m p a ct S t at em ent(“ E I S” ) . FW S t hen se tan a cq u i siti onbo u n d a ryf or th e refu ge an da c c e p te daco n s e rv a tio n e a s e m e n t w ith in that boundary . Th es e ac t i ons pre c l uded a r es ervoir t he C i t y of D al l as ( “C i ty”) a n dt h e T e x a s Wa t e rD e v e l o p me n tB o a r d(“ T WD B ” ) h a dp r o p o s e df o rt h e s a me sit e. Th e Ci t y and TW D B sue d i n fede r aldi st r i c tc our tc l ai m i ng t hatt he E At hat F W S prepa red w as f l aw ed, t h at un der t h e N ati on alE n vi ronm en t alP ol i cy A ct ( “ N EP A” ) t h e a g e n c y wa s r e q u i r e d t o p r e p a r e a n EI S , a n d t h a tt he est abli shm en tof

t h e ref u ge vi ol ated t h e T en t h A m en dm en t . T h e di st ri ctcourt di sm i ssed severalof t h e A p p el l an t s’cl ai m s and gran t ed F W S ’m ot i on f or s u m m a r yj u d g m e n to n o t h e r s . We A F F I R M. I . B A CK GRO UND In 196 1, t h e S t ate of T exas f i rst i den t i f

i ed a si t e al on g t h e U pp er N eches Ri ve ri n Ande r s o n a nd Che r o ke e Count i e s as a po t e nt i alr e s e rvo i rt o s e rve t he gr ow i ng D al l as / Ft. W or t h M et r opl ex. D ubbed t he Fast r i l lR es ervoir , t he s i t e w as agai n i ncl uded i n a s t at e w at erage ncy r es our c es pl an i n 1984, and i n t he 1997 and 2001 r egi onalw at erpl ans i ssu ed by T W D B . Th e Ci t y and TW D B ’ s pl an e n v is io n e dco n s tr u c tin gth e re s e rv o irin2 0 5 0 a n d t a p p in git in 2 0 6 0 . T h e r e is n ot h i n g i n t he r e c o r d p r i o rt o 2 00 5 t hati ndi c at e s t hatt he Ci t y o rTW D B t o ok a n ys te p s to d e v e lo p th e s ite b e y o n d in c lu d in git– a m o n go th e rp o s s ib le re s e rv o ir si t es–i n regul arl y u pd ated pl an n i n g docu m en t s. In 198 5, F W S i den t i f i ed the sam e si t e as a possibl e w i l dl i fe ref u ge, si n ce i t s nat ive bo t t o m l and har dwoo d f o r e s t and w e t l and s pr o vi de an i m po r t ant w i nt er i ng habi t atf

orm i gr at i ng w at er f

ow l . Th atye a r, F W S l i st ed t he s i t e a s hi gh- priority f

orpr ot ec ti on . F W S ap p rov ed a p reli m i n a ryrefu ge pr op osalin 1988N o. 08- 10890

3 andpr e pa r e d adr af tEA , b utputt he pr oj e c ta s i de forlacko f f undi ng. The pr oj e c tw as r e vive d i n 2 003 and t he a ge nc y i ni t i at e d p ubli cc o m m e nti n J une 200 4. P u bl i c w orksh ops w ere hel d i n Ju l y 200 4 an d F W S m ad e a presentati on t o the re gion a lw at erpl anni ng gr oup i n O c t obe rof t hatye ar . A not herE Aw as pre par ed, w hi c h l i st ed t hre e al t er nat ives : n o act i on, t he r ec om m ended 25 , 281- ac r ec o nf

i gur atio n, a nd anarrow er 15, 294
- acre c on f i gu rat i on . T h e E Aref erenced t he r es ervoirpr opo sa land not ed t hatbo th th e l ar gerand s m al l err ef uge c onf i gurat i ons w oul d pr eve ntt he r es ervoirf r om be i ngb u i l t . Th e EAw as d is tr ib u te dto p u b lic o ffic ia ls a n din te r e s te dg r o u p s , o p e n m e e tin g s w e r e h e ldin M ay 200 5, and i tw as ope n f orpub l i cr evi ew and c om m entf ort w o w ee ks t hat sam e m on t h . M ore t h an 1, 600 com m en t s w ere received , bu tt h e E Aw as not r evi se d, and a “f

i nal” E Aw as noti ss ued. O n Jul y 28, 2005, FW S co ncl uded t hat a n E IS w a s u n n ece ssa ryan dpr ep a red a F O N S I. B y e ar l y 2005 , t he C i t y w as aw ar e thatFW S had re vived t he r ef uge proposa l . O n M arch 9, 200 5, t h e D al l as C i t y C ou n cil pa ssed a re so lu t i on e x p r e s s in gad e s ir e to w o r kw ith F W S o n a p la n t h a t w o u lda llo w t h e re s e rv o ir andt he r e f

uget o c o e xi s ta nd a ut ho r i z i ng a fe as ibil i t y s t udy . O n Augus t1 6t h, th e T e x a s le g is la tu r e d e s ig n a te dth e F a s tr ill R e s e rv o ira s a“c r itic a l re s o u r c e ,” a n dth e J a n u a r y2 0 0 6 r e g io n a l w a te rp la n r e c o m m e n d e db u ild in gth e re s e rv o ir as pa r to f

i t s w at e rm ana ge m e nts t r at e gy . M e e t i ngs w e r e al s o he l d b e t w e e n t he di r e c t o ro f

FW S a nd Ci t y r e pr e s e nt at i ves to d i s c us s a l t e r nat ive s i t e s f o rt he r ef uge, and s t at e and FW S r epr es ent at ives cont i nued t o c om m uni c at e thro ugh t he f i r s tha l f

o f 2 00 6 ab o uta l t e r nat ive pl ans tha tw o ul d a ll o w ar e f ugea nd a r e s e rv o irt o co e x is t. T h e C itya n dT W D B s c h e d u le d

–th o u g h d idn o t a c tu a lly be gi n–as e r i e s o f

e ngi ne e r i ng ande nvir o nm e nt als t udi e s . By J une 1 1, 2 00 6, t he da y FW S de s i gna t e d an “ ac qui s i t i o n bo unda r y” f o r t he r e f

ugee nc o m pa s s i ng t he l ar ger25, 281- ac r e s i te, th e feas ibi l it y s t udy w as notc om pl et ed norhad A ppel l ant s t aken any c onc r et e s t eps t ow ar d pl anni ng t he r es ervoir , s uch asN o. 08- 10890

4 appl yi ng f

orper m i t s. A c c om panyi ng t he des i gnat i on w as a Conce pt ual M ana ge m e ntPl an o ut l i ni ng ho w l andw i t hi n t he bo unda r y w o ul d b e a c quir e d. Th e N ec hes W i l dl i fe Ref uge w as s ett o c om e i nt o e xi st enc e w hen FW S, by pur c has e or dona t i o n, t o o k t i t l e t o o ra n i nt e r e s ti n pr o pe r t y w i t hi n t he acqu i si t i on bou n da ry . O n A u gu st23, 200 6, F W S accept ed a on e- acre c ons ervat i on e as em entf r om a l andow nerw i t hi n t he ac qui sit i on bo und ar y. TW D B and t he C i t y f i l e d t he i ns t antsuit s on J anua r y 10 , 2 00 7, a r gui ng i nt e ral i a t hatt he EAw as f l awed, t hat FW S s ho ul d ha ve pr e pa r e d a n EI S, a nd t h at th e ref

u ge vi ol ated t h e T en t h A m en dm en t . O n O ct ober 24, 200 7, t h e di st ri ct c o ur tdi s m i s s e d f

ive o f t he Ci t y’ s c l ai m s , i nc l udi ng t he co ns t i t ut i o nalcl ai m , a nd t w o of T W D B ’ s c l ai m s, un der R u l e 12(b) ( 6) . T h e parti es f i l ed cross- m ot i on s f

or pa r t i als um m ar y j udg m e nton t h e N EP A c l ai m s , a nd o n J une 3 0, 2 00 8, t he di s t r i c tc o ur td e n i e dt he Appe l l ant s ’m o t i o ns a nd gr ant e d FW S’ s m o t i o n. Relyi ng he av i l y o n S ab i n e R i ver A u t h . v. U. S . D ep’ tof t h e I n t eri or , 951 F . 2d669 ( 5th C i r. 19 92 ) , t he di s t r i c tc o ur the l d t hata n EI S w as no tr e quir e d b ecau s e t he e s t a b l i s h m e n t o f t h e a c q u i s i t i o n b o u n d a r y d i d n o t c a u s e a n y c h a n g e i n t he p h y s ic a l e n v ir o n m e n t . T h e c o u r t c o n c lu d e d t h a t t h e r e fu g e ’s e ffe c to n th e C it y ’s w atersup pl y w as speculat ive an d not w i t h i n t h e sc ope of N E P A . T h e courtal so f ou n d that the E Acon si dered a reasonab l e rang e of al t erna t ives an d eva l u ated t he ne c e s s ar y i nf

o r m at i o n. The Ci t y andTW D B m o ve d f o ran i nj unc t i o n pe ndi ng ap pe aland f

o rent r y o f

f i nalj udg m e nt , w hi c h wer e g r ant e d o n J ul y 28 , 2 00 8. The par t i es s ubse quent l y f i l ed a j oi ntm ot i on t o a m end t he j udgm ent , w hi c h w as gr ant ed o n Sept em ber4, 2008. N ot i c e of appealw as f

i l ed o n Sept em ber8, 2008, a n dth e a p p e a l w a s e x p e d ite do n S e p te m b e r2 2 , 2 0 0 8 . I I . DI S CU S S I ON A . St andard of

R evi ew W e r evi ew t he di st r i c tc our t ’ s gr antof s um m ar y j udgm ent de no vo . T errebon n e Pa ri sh S ch. B d . v. Mobi lO i lCorp ., 3 1 0 F .3d 8 7 0 , 8 7 7 (5t h C ir. 2 0 0 2 ).N o. 08- 10890

5 T h e courtm ay on l y setasi de an agen cy’ s deci si on not t o prepa re an E IS w h ere a plai n t i f

f est abli shes t h at th e deci si on w as “ arbi t rary, cap rici ou s, an abu se of d is c r e tio n , o ro th e r w is e n o t in a c c o r d a n c e w ith la w .” 5 U .S .C . § 7 0 6 (2 )(A); see a lso Ma rs h v. O r. Na tu ra l R es . Co u n cil , 4 9 0 U .S . 3 6 0 , 3 7 5 -7 6 (1 9 8 9 ); Kle ppe v. Si e r r a Cl ub , 4 27 U . S . 390 , 412 ( 197 6) . U n der t h i s hi gh l y defer en t i alst an da rd of r e v ie w , are v ie w in gco u r t h a s th e le a s t la tit u d e infin d in gg r o u n d s fo rre v e r s a l. Sabi neR i ver , 9 5 1 F .2 da t6 7 8 . C o u r t s m a yn o tu s e r e v ie w o f a n a g e n c y ’s e nvir o nm e nt ala nalys i s a s ag ui s e f o rs e c o nd- gue s s i ng s ubs t antive de c i s i o ns c om m i t t e dt o t he d i s c r e t i o n o f t he a g e nc y . But“ [i] n c o nd uc t i ngo urNE PA i n qu i ry, w e m u st‘ m ak e a searchi n g an d caref u li n qu i ry i n t o t h e fact s and revi ew w he t he rt he de c i s i o n . . . w as b as e d o n c o ns i de r at i o n o f t he r e l e va ntfac t o r s a nd w h eth er th ere h a s be en a clearerro r of j u d gm en t. ’” Marsh , 490 U . S. at378 (cita tion om itted ). W e r e v i e w de no vo ad istr ict co u rt’s d ism iss a l pu rs u a n t to R u le 1 2 (b )(6). B a ll a r dv. W

a ll , 4 1 3 F .3d 5 1 0 , 5 1 4 (5t h C ir. 2 0 0 5 ). “A llof th e p la in t if f’s a lle g a tio n s m u s t b e a c c e p te d a s tr u e , a n d th e d is m is s a l w ill b e a ffir m e d o n lyif i tappears thatno r eli ef c oul d be gr ant ed underany s etof fac t s t hatc oul d be p rov en con sist en t w i th the all eg a ti on s.” Id . at 514- 15 (i n t erna lqu ot ati on o m i t t e d) . H o w e ve r , “ c o nc l us o r y all e ga t i o ns o rl e ga lc o nc l us i o ns m as que r ad i ng a s fa ctu a lcon cl u sion s w i l ln ot s u ff i ce to p rev en t am oti on to dism i ss. ” T aylorv. Boo ksA Mi l l i o n, I

nc ., 2 9 6 F .3d 3 7 6 , 3 7 8 (5t h C ir. 2 0 0 2 ) ( q u o ta tion om itted ). B. Suf

f i c i e nc y o f

t he Envi r onm e nt alAs s e s s m e nt N E P Ad o e s n o t r e q u ir e fe d e r a l a g e n c ie s to fa v o ra n e n v i r o n m e n ta lly pre fer abl e c our seof

ac ti on , b u tr at herr equi r es t hatt hey t ake a “hard l oo k at en viron m en tal con seq u en ces.” R o b er tso n v. Meth o w V a lleyC itizen s Co u n cil , 490 U . S. 332, 350 ( 1989) ( quot i ng Kle ppe , 427 U . S . at 410 n. 21). T h e st atute r equ i res
“ al l agen ci es of t h e F ederal G overnm en t . . . [t o] i n cl u de [ an E IS] in ev e ry r e c o m m e nda t i on orr e po r to n pr o po s al s f o r. . . m aj o rFe de r ala c t i o nsN o. 08- 10890

6 sign i fi ca n tly aff

ecting th e qu a l i ty of th e hu m a n en viron m en t. ” 4 2 U .S .C . § 433 2( 2) . A n E IS i s not n ecess ary w h e n th e fed eralact i on i s not m aj or ordoes n ot h a ve a “si gn i fi c a n t im p a ct on the en viron m en t. ” S ab i n e R i ver , 951 F. 2d at 6 7 7 . T o d e t e r m i n e wh e t h e ra n EI S i s ne c e s s a r y , a n a g e n c ywi l lp e r f o r m a n EA. Si e r r a Cl ub v . Es

py , 38 F. 3d 792, 802 ( 5t h C i r . 1 9 9 4 ); 40 C. F. R . § 1508. 9( a) ( 1) ( defi n i n g an E Aas a “ conci se pu bl i c docum en t” t h at “ [b] ri ef l y provi de[s ] suf f i c i entev i denc e a nd anal ys i s f ordet erm i n i ng w het hert o pr epar e a n e n v i r o n m e n t a li m p a c ts t a t e m e n to ra f i n d i n go f

no s i g n i f

i c a n ti m p a c t” ) . AnEA i s “ a roug h cut, l ow - bu dg et e n v ir on m en t ali m pa ctst atem en tdesi gn ed to show w he t he raf

ul l

- f l e dg e d e nvir o n m e n t a li m p a c ts t at e m e nt–whi c h i s v e r y c o s t l y and t i m e- c on su m i n g t o pr epar e a nd has be en t he ki ss of death t o m any a f

ede r al p roject–is n ece ssa ry . ” S ab i n e R i ver , 951 F. 2d at677 (c i t i ng C ro n in v. U.S . D ep ’ t. of Agri cult u re , 9 19 F. 2d4 39 , 4 43 ( 7t h Ci r . 19 90 ) ) . An EA w i l lr e s ul ti n af i ndi ng t h at an E IS i s necessar yor i n a F O N S I, i n di cat i n g t h at no f u rt h er s t u dyof e n v ir o n m e n t a l im p a c ts is w a r r a n te d . La . C r aw f i s h Produce rs Ass ’

n- W e s tv. R o w an , 4 6 3 F .3 d3 5 2 , 3 5 6 (5 th C ir . 2 0 0 6 ). 1. Fai l ure t o C onsi derA l t er nat i ves A n E Am u stdi scuss al t erna t ives t o t h e pl an n ed acti on , bu tneed not d is c u s s a ll p r o p o s e da lte r n a tiv e s . S ee 4 0 C .F .R . § 1 5 0 8 .9 (b ) (a s s e s s m e n t “ [s ]h a ll i nc l ude b r i e f di s c us s i o ns o f t he ne e d f

o rt he pr o po s al , o f

a l t e r nat ive s . . . o f

t he en vi ronm en t ali m pa ct s of t h e proposed a ct i on an d alt erna t ives, an d a l i st i n g of a g e n c ie s a n d p e r s o n s c o n s u lte d ”); s e ea ls o L a . C r a w fi s h A s s ’n , 463 F. 3d at355 (N E P A“do es n ot req u i re th a t allpr op ose da l tern a tive s, n o m a tter th eir m erit, be dis cussed i n th e E A .” ) . “ [T ] h e rang e of al t erna t ives t h at th e [ agen cy] m u st consi der decreases as t h e env i ronm en t ali m pa ctof t h e proposed a ct i on becom es l es s and l es s subs t ant i al . ” Si e r r a Cl ub , 3 8 F .3 da t 8 0 3 ; seealso High w ay J C it iz en s G ro u

p v. Min eta , 3 4 9 F. 3 d 9 3 8 , 9 6 0 ( 7 t h Ci r . 2 0 0 3 ) ( “W he n . . . an a g e n c ym a k e s a n in fo r m e dd e c is io n th a t th e e n v ir o n m e n ta l im p a c t w ill b e s m a llN o. 08- 10890

7 . . . a l ess extensive search [f or al t erna t ives] i s requ i red. ” ) . T h e rej ect i on of even vi able an d reason ab le a lternatives, af t er an ap propri ate eval u ati on , i s not a rb itr a r ya n dca p r ic io u s . Se eMi s s . Ri v e rBas i n Al l i anc ev . W e s t pha l , 230 F.3d 1 7 0 , 1 7 7 (5t h C ir. 2 0 0 0 ). Th e EAi n t hi s c as e no t ed t hat“t he ar ea und erc ons i der at i on w as i de nt i f i e d i n apr e l i m i nar y s t udyb y t he Tex as W at e r Pl an as an ar e a w i t h t he pot ent i alf

ordev el opm entas a r es ervoir. . . . ” I tal son oted th a t th e Ci t y w as consi deri n g a feasibi l i t y st u dyof t h e res ervoi r. I tan al y z e d th e e f fect s of t h ree dif fe r e nta l t e r nat ive s (no a c t i on, al ar ge rr e f uge , a nd as m all e rr e f uge ) a l o ng m ul t i pl e l i ne s s uc h a s c l i m at e a nd a i rq uali t y, w at e rr e s o ur c e s , ve ge t at i o n, l and us e , a nd c ul t ur alr e s o ur c e s . I n e ac h i ns t an ce, the EAa c kno w l e dg e d a nd a tt e m p t e d t o a n a ly z e th e e ffe c t t h e a lte r n a tiv e w o u ldh a v e o n th e re s e rv o ir p rop osa l . T h e E A a l so an a l yz ed th e cum u l a tive i m p a ct of th e re fu g e in conj u n ct i on w it h ot h er “ pa st, p resent, an d reason ably f oreseeabl e f

u t u re act i on s, ” i n cl u di n g t h e res ervoi r. A ppel l ant s ar gue t hatFW S w as requir ed t o co nsi deran al t er nat ive t hat wou l da l l o w t he ref

uge and t he r e s e rv o i rt o c o e x i s t . I n t he EA, h o wev e r , FW S n ot ed that itw as un able t o eval u ate f u l l y an y such d u alproposal , si n ce pl an s f or t h e res ervoi r w ere “ speculat ive i n t h e short

- t erm , . . . not def i n i t ive i n sc ope or purpos e, and . . . farbe yond t he pl anni ng hor i zo n f or t he r ef

uge pr opo sa l(i . e. , 20 ye ar s ) . ” Addi t i o nall y, a f t e rs e ve r alw e e ks o f

c o ns ul t at i o n be t w e e n s t af f a tFW S, t he C i t y, and TW D B , a TW D B bi ol ogi stadm i t t ed t o the di r ec t orof TW D B t hat “an altern a tive si te tha t i s eq u a lto o rb ig g er a n d/or b etter th a n the N orth N e c h e s s ite h a s n o t y e t b e e n id e n tifie d .” T h e d ir e c to re c h o e dth is a s s e s s m e n t in a l e t t e rt o FW S. O nl y af t e rt he c l o s ur e o f

the pub l i cc o m m e ntpe r i o d a nd the dra ftin go f the F O N S I di d F W S rec eive a prop osalf or al t erna t ive ref

u ge si t es. T h e al t erna t ives i n cl u ded f ou r ot h er s it es t h at A pp el l an t s c l ai m ed w e re of gr e at e re nvir o nm e n t alv al ue , s i nc e t he r e w as m o r e b o t t o m l andha r dwoo d e xt antN o. 08- 10890

8 att he s e s i t e s . Eac h o f t he s e a l t erna t i ve s , ho w e ve r , e nvi s i o ne d b ui l di ng t he F a stri l l R ese rv oir a n d th e resu l ti n g i n u n d a ti on of th e U p p er N ech es a rea , w i th des t r uct i on o f

ve get at i on i n t hatregi on. T he rec or d r eve al s no al t er nat ive t hat al l ow ed c o n st ructi on of t h e res ervoi r and s e rve d FW S’g o alo f pr e s e rvi ng t he bo t t o m l and s and w e t l and s o f t he U ppe rN e c he s . U nde rt he c i r c um s t anc e s , a nd e s pe c i all y give n t hatF W S co nc l ude d t hatt he pr oj e c tha d nos i gnif i c ant e n v ir o n m e n ta l im p a c t, s e eSi e r r a Cl ub , 38 F . 3dat 803 , t h i s r an ge of al t erna t ives w as reasonab l e. 2 . F a il u re to C o n sid e r Im p a c ts A n E Am u stan al yze both t h e di rectan d i n di rectef fect s of t h e proposed act i on t h at are “ reasona b ly for e seeabl e, ” 42 U . S . C . § 4332 ( C ) (i i) ; 40 C . F . R . §§ 150 2. 16(a) & (b) ; 40 C . F . R . § 1508 . 7, w h i ch w e ha ve defi n ed as ef fect s t h at are

“ s u f f i c i e n t l yl i k e l yt o o c c u rt h a tap e r s o n o f o r d i n a r yp r u d e n c e w o u l dt a k e [t h e m] i n to a ccou n t in rea ch i n g ade ci sion . ” C ity of S h o re a cr es v. W a ter w o rth , 420 F. 3d 4 4 0 , 4 5 3 (5 th C ir . 2 0 0 5 ). “R e a s o n a b le fo r e s e e a b ility” d o e s n o t in c lu d e “h ig h ly s pe c ul at ive ha r m s ” t hat “ di s t o r t [ ] t he de c i s i o nm ak i ng pr o c e s s ” b y e m pha s i z i ng consequ en ces beyon d th o se of “ greates tconcern t o t h e pu bl i c and of great est relev a n ce to th e a ge n cy ’ s d ecisi on . ” R obert son , 490 U . S. at35 5 -56 (i nt er nal q u o ta tio n m a r k s a n dcit a tio n s o m itt e d). “ [A ] ‘b u t fo r ’ca u s a l re la tio n s h ip is i ns uf f i c i e ntt o m a kea n a g e nc yr e s p o ns ib l e f o rap a r t i c ul a re f

fe c tu nd e rNE PA and t he r el evantr egul at i on s. R at her , a pl ai nt i f f m ount i ng a N E PAc hal l enge m us te s t ab l i s h t hata n a l l eged eff e c tw i l le ns ue a s a‘ pr o xi m at e c aus e , ’i n t he sen se m ea n t b y t ort l a w , of th e pro p ose dag en cyaction . ” C i ty of S h oreacres , 420 F. 3d at452. A pp el l an t s argue that FW S w as requir ed to an al yze t h e effe ctof est abli shi n g t h e ref

u ge on t h e C i t y’ s w atersup pl y an d u rban p l an n i n g process, given proj ect ed p opu l ati on grow t h . T h e cases cit ed by A pp el l an t s are i n ap posi t e, ho w e ve r , s i nc e t he y c o nc e r n t he e f fectof fe de r ala c t i o ns o n exi s t i ng w aterN o. 08- 10890

9 s o u r c e s , n o t p r o p o s e dw a te rs o u r c e s . S ee S i erra C l u b v. Marsh , 769 F . 2d868 ( 1st C ir . 1 9 8 5 ) (e ffe c t of p o r t d e v e lo p m e n t r u n o ff); Ci tyof D av i s v . Cole m an , 521 F. 2d 6 6 1 (9 th C ir . 1 9 7 5 ) (e ffe c t o f in d u s tr ia l d e v e lo p m e n t r u n o ff); Ca lifo r n iav . D e p ’t of Tran sp ., 2 6 0 F . S u p p . 2 d 9 6 9 (N .D . C a l. 2 0 0 3 ) ( e ffec t of a irp o rt c o n str u ctio n ); Si m m ansv . G r ant , 370 F . S u pp . 5 ( S . D . T ex. 197 4) ( ef fectof el i m i n ati n g w ater source) . Plai n t i f

fs do not ci t e t o an y au t h orit y f or t h e proposi t i on t h at an ag en cy m ustac c ountf

ort he e f

fec t s on a m uni c i palw at ers uppl y o f pr ec l udi ng a p r o p o s e db u t a s -y e t-n o n e x is te n t w a te rs o u r c e . Fur t he r , t he e f

fe c t s o f e s t ab l i s hi ng t he r e f uge , a nd thus pr e c l udi ng t he reservoi r, a re h i gh l y speculat ive an d can n otbe show n t o be t h e proxi m ate c au se of f u tu re w a te rs h o r ta ge s i n D a l l a s. T h e C i ty a n dT W D B n ev er co m m i tted to constr u ct i n g t h e reservoi r an d m ay n ever ha ve don e so, or m ay h ave con st ructed a r e s e rvo i ra ta no t he rs i t e . Bes i de s i nc l udi ng i ti n pe r i o di c all y upd at e d p l anni ng docu m en t s, t h e C i t y an d T W D B ha ve n ever t ak en an y concret e st eps t ow ard constr u ct i n g t h e res ervoi r, such a s s eeking perm i t s, acqu i ri n g property, or com m en ci n g an y of

t h e hy drol ogi cal , f

i scal , or en vi ronm en t alst u di es necessary t o a m ajor p u b li c w orks proj ect . I n fact , t h e C i t y an d T W D B ha ve n ever even s e t t l e d up o n t he e xa c tpo s i t i o n o f t he da m o rf

o o t pr i nto f

t he r e s e rvo i r . Thus , t he C itya n d T W D B h a v e n e v e rid e n tifie dth e p r e c is e ro le th e re s e rv o ir

– e v e n if constr u ct ed an d tapp ed i n 206 0–w i l l pl ay i n sup pl yi n g t h e regi on ’ s f u t u re w ater needs . Fu r t her , t he C i t y ar gues t hatw at ers hor t ages i n t he r egi on w i l lbe gi n as e ar l y as 2 01 0, y e tt he r e s e rvo i rw o ul d no t be t ap pe d e ar l i e rt han 20 60 . G ive n t he u n cert ai n t y over w h et h er t h e res ervoi r w i llb e const ructed and i t s i m pa cton w at e rs upp l i e s , a nd the l o ng t i m e f r am e f o rt he pr oj e c t , t he ef

fe c t s o f e s t ab l i s hi ng t h e ref u ge on w atersup pl i es are n otconcret e enou gh , nor cl osely en ou gh rel ated t o t h e fe d e r a la c t i o n , t o r e q u i r e t h a tt h e yb e i n c l u d e di n t h e EA. 3 . R e li a n c e o n O ld D a taN o. 08- 10890

Lands C

ou nci lal so differs fro m thein stant case in that it involved an EI S, whichis 1 by des ign a morecom pr ehens ive doc ume nt than an EA. 10 A p p e ll a n t s a r g u e th a t F W S re lie du p o n o ldd a ta inits E A . P r o p e r ly an al yzi n g t h e ri sks of an act i on requi res an agen cy t o use u pd ated i n f orm ati on o rda t a; r e l i anc e o n o ut - o f

- da t e o ri nc o m pl e t e i nf o r m at i o n m ayr e nde rt he anal ys i s of

ef fec t s spe c ul at ive and un c er t ai n, w ar r ant i ng t he pr epar at i on o f an E IS . S ee Klam ath- S i skiyou Wi l d lan d s C t r. v. U. S . F ores tS ervi ce , 3 73 F. Supp . 2d106 9, 108 1 ( E . D . C al . 200 4) . I n t h i s c ase m u ch of t h e d ata i n the E Aw as l i f t ed f r om t he e ar l i erE Aprepar ed i n 1988. T he C i t y and TW D B not e thatt her e has been degrad ati on of

t h e si t e an d that a si gn i f i can tport i on of

t h e U pp er N eches bot t om l and hardw oo ds have be en c l eare d . H ow eve r , t he C i t y and TW D B have n otshow n t h at th i s i n f orm ati on w as so f

l aw ed that itprecl u ded assess m en tof r eas onably f

or es ee abl e i m pac t s. N ori s i tc l earhow , i n t hi s c as e, addi t i onal i n f orm ati on as t o env i ronm en t aldegrad ati on of t h e U pp er N eches w ou l d cau se FW S t o c o nc l ude i ts ho ul d l e av e t he s i t e unp r o t e c t e d. I n t hi s s e ns e , t he i ns t ant case di f

fers f rom t h ose c i te d b y A pp el l an t s, w h ere add i t i on alor u pd ated i n f orm ati on w as n eeded b ef ore a r eason ed d eci si on coul d be m ad e as t o w h et h er to in tr u d e o n as ite . See, e . g. , T h e L a n d s Co u n cil v. Po w ell , 395 F. 3d 1019, 1031 ( 9th C i r. 200 5) ( ad di t i on ali n f orm ati on on an i m alha bi t at needed bef ore t i m ber h a rv e s t c o u ldco m m e n c e ) ; I dahoSpo r t i ng Cong r e s s v . Tho m as , 137 F . 3d 1146, 1 115 0 ( 9th C i r. 1998 ) ( ad di t i on ali n f orm ati on on tr ou tha bi t at needed bef ore lo g g in gco u ldco m m e n c e ), o v e r r ule d o n dif f e r e ntg ro unds , T

he Land s Counci lv. McNa ir , 5 3 7 F .3 d9 8 1 , 9 9 7 (9 th C ir . 2 0 0 8 ); Kla m a th -S isk iyo u Wild la n d s C tr ., 373 F . S u pp . 2 d at 10 81 ( ad di t i on alinf orm ati on on ow lpop u l ati on need ed befor e log g in gco u ldco m m e n ce ). U n dou btedl y, w ere a pl ai n t i f f t o show t h at a s i t e h a d becom e so de gr ad e d–f

o r e xa m pl e , bys ubs t ant i alc l e ar c ut t i ng o f t he b o t t o m l andha r dwoo ds s uc h t hati tw o ul d notsu pp ortm i gr at i ng w at e r f o w le ve n if

pr o t e c t e d– s uc h aN o. 08- 10890

11 s ho w i ng m ayw e l lr e nde rt he de c i s i o n t o r e l y o n o l de rda t a arbit r ar y w i t hi n t he m e ani ng o f

N EP A. N o suc h sho w i ng has be e n m ad e i n t hi s i ns t anc e . H e r e , t he us e o f o l de rda t a i n a n E A–byde f i ni t i o n a“r o ughc ut , l o w - bud ge t” a s s e s s m e nt o f e n v i r o n m e n ta l im p a c ts o n th e w a yto d e te r m in in gw h e th e ra n E IS is n e c e s s a r y , seeS ab i n e R i ver , 951 F . 2d at 677–can n otbe sai d to be u n reasona bl e. N or d oe s th e u s e o f th i s d a ta in th i s i n stan ce su p p ort f orcin g th e a ge n cyto en gag e i n a process l i kely, becau se of i t s l en gthy t i m el i n e, t o perm i t f u rt h er e nvir o nm e nt alde gr ad at i o n o f t he s i t e b e f

o r e ade c i s i o n i s r e ac he d. 4. T h e FW S D ec i si o n M a k i n gP ro ce ss F i n al l y, t h e C i t y an d T W D B al so argue that t h e deci si on m ak i n g process F W S eng aged i n w as a sha m . A pp el l an t s poi n tt o severalf l aw s: F W S ’ s c h oi ce of a20 -yea r p roject ho ri zo n f or a n a l ys i s of i m p a cts, i ts fai l u re to coo rd i n a te w i th l ocal an d s t ate pl an n i n g agen ci es i n vi ol ati on of C E Q regul ati on s, an d i t s fai l u re t o publ i sh a “ f

i nal” E A . Th e r ec or d r eve al s t hatFW S engage d i n an ext ens ive p r o c e s s o f p u b lice d u c a tio n a n dp u b licco m m e n t a n de v e n w o r k e dw ith o ffic ia ls f r o m t he Ci t y andTW D B t o i de n t i f y an alt e r nat ive s i t e t hatw o ul d a l l o w t he r ef uge and t he r es ervoir t o c oe xi st . E m ai l s bet w ee n var i ous FW S of f i c i al s r eve al n oth i n g m ore tha n an ap p rop ri a te ad vo ca cyf or a fav ore d a ge n cyaltern a tive . In a rg u i n g th a t F W S w a s req u i red to pu b l i sh a “f i n a l” E A , A p p ell a n ts cite o n l y to n on - bi n di n g i n t erna lp ol i cy m em os an d n otto a n y bi n di n g regulat i on or st atute. A pp el l an t s’asser t i on t h at FW S abu sed i t s di scr et i on by fai l i n g t o “ coordi n ate” w ith the l ocal , regi on al , an d st ate w aterpl an n i n g process fal l s s h ort , si n ce nei t herN E PAnorany o f t he o t hers t at ut es t he C i t y o rTW D B c i t e r equi r e a n ag e nc y t o i ns i nuat e i t s e l f i nt o s t at e pl anni ng pr o c e s s e s i n t he m anne rs ugg e s t e d. Fi nall y , App e l l a nt s fa i l t o s ho w t ha t FW S’ s 2 0
- y e a r p l a nn i ng ho r i z on w as arbi t rarya nd c ap r i c i o us und e rt he c i r c um s t anc e s . As t he di s t r i c tc o ur tno t e d,

“ FW S m usts ets om e ki nd of t i m e f r am e f orit s eval u a ti on s; it c annothave anN o. 08- 10890

12 i n term i n a b l e p l a n n i n g p eriod . ” C ity of D a lla s, T ex . v . Ha ll , 2008 W L 2622809, a t *1 4 n .10 (N .D . T e x . J u n e 3 0 , 2 0 0 8 ). B . R eq u i rem en t of a n E IS In argu i n g t h at an E IS w as requir ed, A pp el l an t s at t em pt t o di st i n gu i sh t h i s c a s e f

r o m S ab i n e R i ver . In t h at c ase, st rikingl y si m i l ar t o t h e present one, F W S setan acqu i si t i on bou n da ry f or a w i l dl i fe ref

u ge on 3, 800 acres i n E ast T exas, an d accepted a n egative, no-devel op m en teasem en tf rom a l an dow n er in s id e th e a c q u is iti o n b o u n d a r y . S ee Sab i n e R i ver , 9 51 F. 2da t6 74
- 76 . The d e s ig n a tio n p r e c lu d e dth e co n s tr u c tio n o f ap r o p o s e dre s e rv o ir . Id . at6 73 . The rese rv oir w a s i n the pr eli m i n a ryplan n in gs ta g e , an dthe state a ge n cyw i th j u ri sd i cti o n o v e rit h a d“obta i n ed n on e of the n ece ssa ryfed era lan dstate p erm i ts, h a d secu red n o f u n d i n g, a n d h a d n ot ye t en tered i n to an y fi rm con tracts for th e 30 0 th ou sa n d p l u s a cre f ee t of w a ter th a t th e reserv oir w o u ld g e n e ra te ea ch ye a r. ” Id . W e concl u ded t h at “t h e acqu i si t i on of a n egative easem en tw h i ch byi t s t e r m s pr o hibit s a ny c hang e i n t h e s t at usq uo does not am ou n tt o ‘ m aj or F e d e r a l a c tio n [ ] s ig n ific a n tlya ffe c tin gt h e q u a lityo f th e h u m a n e n v ir o n m e n t.’

. . . T h e acqu i si t i on of a n egative easem en tw h i ch proh ibi t s devel opm en tdoes not resu l t i n the req u i sit e ‘ ch a n ge ’to t h e p h ys i ca len viron m en t. ” Id . a t 67 9
- 80 (c i tati on s om i tted). T h e a ccep tan ce of su ch an ea sem en t i s “t a n tam ou n t t o i nac t i o n, ” a nd thus t he a c c e pt anc e “ di d no te f fe c t uat e a ny c hang e t o t he en viron m en t w h i ch w ou l doth erw i se tri gg er th e n ee dto pre p a re a n E IS . ” Id . at 6 8 0 . Inthe i n stan t c a se, th e d i stri ct cou rt pro p erly set forth the fa ctors to c ons i deri n appl yi ng S ab i n e R i ver : w he t he rt he age nc y ac t i o n ( 1) pr e c l ude s a ny de ve l o pm e nto f

t he l and , ( 2) c hang e s t he c har ac t e r o r f unc t i o n o f

t he l and , a nd ( 3) prohibi t s anychan ge i n t h e st atus qu o o f th e la n d . C i ty of D allas, T

ex . , 2008 W L 2 6 2 2 8 0 9 a t * 5 . T h e C ityarg u es th a t t h ree i n d ep en d en t au th oriti es d i ctate th a t an E IS was r e q uir e di n t hi s i ns t a nc e : FW S’ s o wn NE PA g ui d e l i ne s , t he NE PAN o. 08- 10890

13 im p lem e n tin gre g u la tion s iss u e db yth e U .S . D e p a rtm e n t of th e I n te rio r (“D O I”), an d the N E P Ai m pl em en t i n g regula ti on s i ssuedby the C ou n cilon E n vi ronm en t alQ u al i t y ( “ C E Q ” ) . T h e F W S gu i del i n es i n cl u de a n u m ber of c r i t e r i a t o a s s i s tt he age nc y i n det e r m i ni ng w he t he ra n EI S i s ne e de d. Am o ng t he s e a r e “i n creas e d s af e t y o rhe alt h ha z ar ds , ” 5 50 FW 3 . 3( B) ( 2) ( e ) , a nd

“ [ a] dv erse effec ts on m u n i ci pa l , i n du st ri al , or agri cul t u ralw atersup pl y or q u a l i ty . . . , ” id . at 3. 3( B ) ( 2) (i) . T h e C i t y poi n ts to th ese gui del i n es and argu es th a t an E IS i s req u i red to w eigh ad eq u a tel y th e h ea l th an dw a ter su p p l y e ff ects of n ot b u i l d i n g t h e reserv oir. B u t th ese gu i d eli n es ha ve n o bi n d i n g fo r c e . S ee Col i se u m S q u are A ss’ n , I n c. v. Ja ckson , 465 F. 3d 215, 229 ( 5t h C i r . 2005) ( “ G ener al l y, t o be l egall y bi ndi ng on an agenc y, i t s ow n publ i c at i ons m usthave b e e n ‘ p r o m u lg a te dp u r s u a n t t o as p e c ifi c s ta tu to r yg r a n t o f a u th o r itya n din confor m an ce w i t h t h e procedu ralrequi rem en t s i m posedby C on gress . ’” ) (cit ati on om i t t ed) . W he n ag e nc y pub l i c at i o ns hav e no t be e n pr o m ul ga t e d pur s uant t o a spe c i f i cgr ant of

s t at ut or y aut hor i t y, an age ncy’ s dec i si on t o a nal yzei m pac t s by o th e rm e th o d s is n o t a u t o m a t i c a llya rb itr a r ya n dca p r ic io u s . Id . at 230. T h ese gu i del i n es w ere not prom u l gated pu rsuan tt o l aw . F u rt h er, by thei r ow n t erm s, t h ey are m ean tt o a ss ist i n d eterm i n i n g w h eth er a n E IS i s n ece ssa ry , n ot d icta te w h e n a n E IS is n e c e s s a r y , a n dca r e fu llyn o te th a t w h e th e ra n yo f th e cr ite r ia t r i gg e r s t he ne e d f

o ra n EI S de pe nds i n e ac h i ns t anc e on “t he s e ve r i t y and d u r a tio n o f e ffe c ts .” F W 5 5 0 3 .3 (B )(2 ). T h e D O I regulat i on s t h e C i t y poi n t s t o are bi n di n g on t h e agen cy, bu tt h ey do no tm and at e t he pr e pa r at i o n o f an EI S i n t hi s c as e . I n t he r e gul at i o ns , a m o ng t h e “M aj or A ct i on s N orm al l y R equ i ri n g an E IS” are “ m aj or new ref u ge syst em uni t s . . . w hi c h i nvo lve sub s t ant ive co nf l i c t s ov e rex i s t i ng St at e a nd l o c all and u s e [o r] s ig n ific a n t co n tr o v e r s y o v e r th e e n v ir o n m e n ta l e ffe c ts o f th e p r o p o s a l.” 62 F ed. R eg. 2 3 7 5 , 238 2. T h e C i t y argu es th at th e ref u ge m eet s bot h t h ese crit eri a. B u tby thei r ow n term s, the regulat i on s “ n orm al l y” requ i re preparati onN o. 08- 10890

14 o f a n EI S but do no t di c t at e pr e pa r at i o n i n e ac h c as e . Fur t he r , t he r e gul at i o ns c l ear l y e nvi si on t hat w hen, purs uant t o an E A , t he age ncy det er m i nes t hatan act i on w i l lha ve n o m aj or envi ronm en t alim p a ct s, an E IS i s not requ i red even w h e n th e a c tio n o th e r w is e m e e ts th e cr ite r ia . Id . In t hi s c as e, af t erpr epar i ng an EAt he a ge nc y m ad e ar e as o ne d de c i s i o n t hatt he r e w e r e no s i gnif i c ant e n v ir o n m e n ta l e ffe c ts . M ore i m portantly, by their ow n t erm s t h e regul ati on s onl y en vi si on pre par at i on o f

an E I S w hen t he re i s a c onf l i c tw i t h “ exi st i ng” St at e a nd l oc al l an d u se or w h ere there i s “ si gn i f i can t” contr oversy over envi ronm en t alef fect s. I n t h i s c a s e , wh i l e a fe a s ib i l i t ys t u d yh a s b e e n c o mp l e t e d , t h e Ci t ya n dT W DB h ave taken no concret e st eps t o devel op the reservoi r ( such as app l yi n g f or perm i t s) , m u ch l ess pu tan y l an d to u se. T h e devel op m e n tof an acqu i si t i on bo unda r y do e s no tc o nf l i c tw i t h e xi s t i ng St at e a nd l o c alus e , b utm e r e l y w i t h a potenti alf

u t u re use. F u rt h er, t h e C i t y an d T W D B h a v e been un able t o show w i t h an y speci f

i ci t y t h e ef

fect s of set t i n g t h e a cqu i si t i on b ou n da ry. Acontr oversy suc h as t hi s one–o vert he hi ghl y spe c ul at ive, uncer t ai n ef fec t s of notbui l di ng a pa r t i c ul arr e s e rvo i r–c anno tb e “ s i gnif i c ant” w i t hi n t he m e ani ng o f b o t h t he r e g u l a t i o n s a n dNEPA . Si m i l ar l y, w hi l e t he C EQ re gul at i o ns t hatt he Ci t y po i nt s t o a r e b i ndi ng o n fe d e r a l a g e n c ie s , seeFrit iofs o n v . A lexan d er , 772 F . 2d122 5, 123 6 ( 5th C i r. 19 85 ) , t he y do no tm an dat e t he pr e pa r at i o n o f a n EI S i n t hi s c as e . The r egul at i ons m er ely r equi r e a n agenc y t o de t er m i ne w het heran ac t i on i s one t hat n o r m a llyre q u ir e s a n E IS . S ee 40 C . F . R . § 15 0 1 .4(a ) . I f t h e agen cy deter m i n es t hatthe act i o n do e s no tno r m all y r e quir e a n EI S, i tt he n pr e pa r e s a n EAa nd m akes a f

i ndi ng as t o w het hert he pr opo se d ac t i onh a s s i gni f i c antenvir onm ent al im p a c ts . Id . a t 1 5 0 1 .4 (b ). In th is ca s e , a s d e s c r ib e da b o v e , F W S p r o p e r ly p r e p a r e da n E Aa n dm a d e aF O N S I, a s e n v is io n e db yth e C E Q re g u la tio n s .N o. 08- 10890

15 T WD B a l s o a r g u e s t h a tt h e i n s t a n tc a s e i s d i s t i n g u i s h a b l e f r o m Sabi ne R i ver be c aus e t he r e f u ge desi gn at i o n i n t hi s c as e w i l lc aus e c hang e s i n t he physi c alenvir onm ent . A s not ed i n t he E A , FW S envi si ons r em ovi ng non- nat ive t ree speci es i n t h e ref u ge an d r ei n t rodu ci n g n ative h ardw oo d a n d ev ergreen s p e c i e s . T WD B a r g u e s t h a t t h i s d i s t i n g u i s h e s t h e c a s e f r o m S ab i n e R i ver , w h ere t he r e w as no e vi de nc e t hat t he r e f uge s i t e w o ul d b e c hang e d i n a ny w ayb y t he a c c e p ta n c e o f a n e a s e m e n t. S ee S ab i n e R i ver A u t h . v. U. S . D ep’ tof t h e I n t eri or , 7 4 5 F . S u p p . 3 8 8 , 3 9 4 (E .D . T e x . 1 9 9 0 ). H o w e v e r , a s th e d is tr ic t c o u r t n o te din i t s or der den yi n g A pp el l an t s’m ot i on forp art i alsu m m ary j u dg m en t , the acti on ati s s ue he r e i s t he e s t ab l i s hm e nt o f an ac qui s i t i o n bo unda r y f o r t he r e f

uge . The es t abl i shm entof

t hatbo und ar y do es notef fec tany c han ge in t he phys i c al e nvi ronm e nt , b utm e r e l y aut ho r i z e s t he pur c has e o f pr o pe r t y f

r o m w i l l i ng b u y e r s o rth e a c c e p ta n c e o f c o n s e rv a tio n e a s e m e n ts . O n c e s u ffic ie n t la n dis ac qui r ed, FW S w i l lbe r equi red to c om pl y w i t h N E PAi n f or m ul at i ng a C om p reh en sive C on serv a ti on P l a n to gu i d e refu ge f ore st m a n a ge m en t. If c hanges i n t he ph ys i c alenvi r onm entare pr opo se d i n t hatpl an, an E I S m ay be req u i red . B u t t h e p rese n t f ed era laction w i l lh a ve n o sign i fi ca n t ph ys i ca leff ects s uc h t hata n EI S i s r e quir e d. A s in S ab i n e R i ver , w he r e t he ac c e pt anc e o f a ne ga t ive , no n- de ve l o pm e nt ea sem en t w a s “t a n tam ou n t t o ina cti on , ” S ab i n e R i ver , 9 51 F. 2da t6 80 , s e t t i ng an acqu i si t i on bou n da ry f or t h e ref

u ge does n o t e ffec ta chan ge i n t h e use or c harac t erof

l and ori n t he phys i c alenvir onm ent . Th us, i t i s not a “ m aj orFeder al a c t i o n [] s i g n i f

i c a n t l y a f

fe c t i n g t h e q u a l i t y o f t h e h u m a n e n v i r o n m e n t , ” 4 2 U. S . C. § 4 3 3 2 ( 2 ) , a n dn o EI S i s n e c e s s a r yu n d e rt h e r e q u i r e m e n t s o f NEPA . C . T e n t h A me n d me n tC l a i ms F i n a l l y, A p p ell a n ts a rg u e th a t th e estab l i sh m en t of th e ref u ge is unc o ns t i t ut i o nalb e c aus e i ti m pe r m i s s ibly i nt r ude s o n s t at e s o ve r e i gnty andN o. 08- 10890

U.S. C ON ST . art. 4 , § 3, cl. 2 . 2U.S. C ON ST . art. 1 , § 8, cl. 1 8. 3 16 v i o l a t e s t h e P r o p e r t y a n dNe c e s s a r ya n dP r o p e rC l a us e s . Be f o r e r u l i n gwe 2 3 m ustdet er m i ne pr ec i se l y w hat , if any, i ss ues ar e pr ope r l y be f or e us . I n i ts am e nde d c o m pl ai nt , t he Ci t y all e gedt hatt he r e w as no tas uf f i c i e ntne xus be t w e e n t he a ge nc y’ s a c t i o n a nd i n t e r s t at e c o m m e r c e , a nd thatFW S v i o l at e d t he C i t y’ s Ten t h A m en dm en tri gh tt o sec u re s u f f i ci en tw atersup pl i es f or f u t u re r es i dent s. I n i t s br i ef be f or e the di st r i c tc our t , how eve r , t he C i t y c onc ede d t hat i tcou ld n otchal l en ge t h e const i t u t i on al i t y of t h e st atutes al l ow i n g f or ac qui s i t i o n o f

pr o pe r t y. The Ci t y’ s br i e f al s o di d no t ar gue a c o ns t i t ut i o nalr i ght t o s ec ure w at ers uppl i es , w hi c h t he di st r i c tc our tnonet hel es s c harac t er i ze d as “a sp u ri ou s ar gu m en t w i th ou t l eg a lba sis. ” C ity of D a lla s, T ex . v . Ha ll , 2 0 0 7 WL 312 5 3 1 1 , a t * 1 1 ( N . D. Te x . Oc t o b e r 2 4 , 2 0 0 7 ) . Rathe r , t he Ci t y a s s e r t ed t hat F W S e x ceed ed i t s authori t y u n der t h e T en t h A m en dm en tw h en i test abli shed th e a c q u is itio nbo u n d a ryan da c c e p te dth e co n s e rv a tio ne a s e m e n t, b e c a u s e it d id s o f o r t he pur po s e o f c o m m and e e r i ng t he s t at e ’ s w at e r pl anni ng pr o c e ss and t hw ar t i ng t he r e s e rvo i r . Bec aus e t he s e w e r e no tt he a l l e ga t i o ns pl e ad e d i n t he am en ded com pl ai n t , t h e di st ri ctcourtdecli n ed t o consi der t h em on the m ot i on to d i sm i ss for fai l u re to state a claim . T h e a l l eg a ti on s i n the am en d ed com p l a i n t, no tha vi ng be e n a ppe al e d, a r e w aive d. In i ts brief b efore th i s cou rt, the C i ty rev i ses i ts con sti tu ti on a larg u m en t. I n t hi s i t er at i on, t he C i t y ar gues t hatFW S, by es t abl i shi ng t he r ef uge, has unc o ns t i t ut i o nall y i nva de d at r ad i t i o nala r e a o f s t at e s o ve r e i gnty–w at e ra nd la n du s e p la n n in g–w ith o u t c le a ra u th o r iz a tio n fr o m C o n g r e s s . A d d itio n a lly , it ar gue s t hate s t ab l i s hi ng t he r e f uge vi o l at e s t he Tenth Am e ndm e nt byr unni ng af oulof the Prope r t y and N ec es sa r y and Pro perC l ause s. Thesear gum ent s bear on l y a pa ssi n g resem bl an ce t o t h e C i t y’ s arg u m en t s on t h e m ot i on t o di sm i ss,N o. 08- 10890

17 an d n on e at al lt o i t s argu m en t s i n t h e am en ded com pl ai n t . A ccor di n gl y, t h ese a r g u m e n ts a r e n o t p r o p e r ly p r e s e n te d a n d w e d e c lin e to c o n s i d e rth e m . S ee S ing leto n v. Wuff

, 428 U . S. 106, 120 ( 1976) ( “ I t i s t he gener alr ul e, of c our se , t hat afed e ra l ap p e ll a te co u rt d o e s n o t co n sid e r a n issu e n o t p a ss e du p o n b e low .”) ; F ed . D ep o sit In s. Co rp . v . Mijalis , 1 5 F .3d 1 3 1 4 , 1 3 2 7 ( 5 t h C ir. 1 9 9 4 ) (“[I]f a l i t i ga ntde s i r e s t o pr e s e rve a n a r gum e ntf o ra ppe al , t he l i t i ga ntm us tpr e s s a nd n otm erely i n t i m ate th e argu m en tdu ri n g t h e proceedi n gs bef ore t h e di st ri ct c our t . I f an ar gum enti s notr ai se d t o s uch a de gr ee thatthe di st r i c tc our thas an o p p o rtu n ityto r u le o n it, w e w ill n o t a d d re ss it o n a p p e a l. ”). I I I . CO NC L US I ON F or th e foreg oin g rea son s, w e A F F IR M th e d ecisi on s of t h e d i stri ct cou rt.