Document: 444 U.S. 51 100 S.Ct. 318 62 L.Ed.2d 210 Cecil D. ANDRUS, Secretary of the Interior, et al., Appellants,v.L. Douglas ALLARD al. No. 78-740. Argued Oct. 1, 1979. Decided Nov. 27, Syllabus The Eagle Protection Act makes it unlawful to "take, possess, sell, purchase, barter, offer purchase or transport, export import" bald golden eagles any part thereof, with proviso that prohibition does not apply "possession transportation" such parts thereof taken prior effective date Act. Similarly, Migratory Bird Treaty engage in activities respect migratory birds and their parts, unless they are permitted by regulations promulgated under Appellant Interior prohibiting commercial transactions legally killed before came protection these Acts. After two appellees who had sold "pre-existing" Indian artifacts partly composed feathers currently protected were prosecuted for violations both Acts, appellees, engaged trade artifacts, brought suit District Court declaratory injunctive relief, alleging Acts do forbid sale appellees' insofar as constituent bird obtained dates if property, violate Fifth Amendment. granted relief sought, holding be interpreted applicable pre-existing, therefore void unauthorized extensions violative Amendment property rights. Held: 1. Both contemplate regulatory commerce birds, without regard when those originally taken. Pp. 322-326. (a) In view exhaustive careful enumeration forbidden acts Act, narrow limitation compels conclusion that, pre-existing Congress specifically, declined except other thanpossession transportation from general ban. legislative history shows this precise use terminology was intentional. Moreover, against lawfully federal is fully consonant Act's purpose preventing evasion statutory prohibitions gain. 322-323. (b) While contains no explicit exception possession became effective, nevertheless text, context, support Secretary's interpretative regulations. There nothing requires an can implied. structure context also suggest congressional understanding authorities could ban where otherwise expressly instructed 323-326. 2. simple acquired effect a taking violation challenged compel surrender question, there physical invasion restraint upon them. denial one traditional right always amount taking. Nor fact prevent most profitable dispositive, since reduction value necessarily equated 326-328. Harriet S. Shapiro, Washington, C., appellants. John P. Akolt, III, Denver, Colo., appellees. Mr. Justice BRENNAN delivered opinion Court. 1 conservation statutes designed destruction certain species birds.1 Challenged case validity appellant prohibit statutes. provide pertinent part: 50 CFR § 21.2(a) (1978): 2 "Migratory nests, eggs, Federal . may possessed transported permit, but imported, exported, purchased, sold, bartered, offered sale, trade, barter. ." 22.2(a) 3 "Bald eagles, alive dead, eggs June 8, 1940, October 24, 1962, possessed, traded, 4 Appellees artifacts: several own enterprises, employed enterprise, professional appraiser. A number existed protections into force. Act,2 Colorado. complaint alleged birds' It further Amendment.3 5 three-judge court, convened pursuant 28 U.S.C. 2282 (1970 ed.),4 held because "grave doubts whether would constitutional construed pre-act products," "not preexisting, legally-obtained products therefrom. App. Juris. Statement 13a-14a. Accordingly, court ruled "the interpretive regulations, C.F.R. §§ [are] [appellees'] rights." Id., at 14a. Judgment entered declaring subject invalid unenforceable rights owned statute," enjoining appellants "from interference exercise rights, including barter exchange." 16a-17a. We noted probable jurisdiction. 440 905, 99 1210, 59 452 (1979). reverse. 6 * contends respond serves purpose, arguing wildlife furthered am embargo traffic avian safeguards effect. A. 7 Our point departure analysis language enactment. See Southeastern Community College v. Davis, 442 397, 405, 2361, 2366, 60 980 "Though we end words construing disputed statute, certainly begins there." F. Frankfurter, Some Reflections on Reading Statutes 16 (1947). 8 terms plainly must read argues. sweepingly framed 668(a) birds. dealt problem qualifying "nothing herein shall " eagle coverage (Emphasis supplied.) 9 668(a), specifically than To exemption "we forced ignore ordinary meaning plain language." TVA Hill, 437 153, 173, 98 2279, 2291, 57 117 (1978). question oversight drafting error. Throughout statute distinct concepts possession, transportation, taking, treated precision. broad proscriptive provisions consistently encompass full catalog prohibited acts, purchase. 668(b), 668b(b). contrast, exemptions created limited 668(a),5 668a,6 ibid.7 10 That intentional clear history. An explanatory letter Department Agriculture adopted Senate Report bill defines reach make 11 deal will bill." S.Rep. 1589, 76th Cong., 3d Sess., (1940). added.) 12 Further amended 1962 cover once again excepted only 76 Stat. 1246. And particularly relevant has twice reviewed rejecting Department's authorized bar artifacts.8 Cf. NLRB Bell Aerospace Co., 416 267, 275, 94 1757, 1762, 40 134 (1974). 13 purposes reasonable conclude possibility gain presents special threat preservation prospect creates powerful incentive evade take large volume draftsmen might well serious danger sure means which determine age feathers; recently easily passed off having been long ago.9 14 argue even cannot ascertained, still possible constituent. Thus, contend goal have achieved less onerous sales ban: example, requiring documentation appraisal feathered artifacts. short answer legislation artifacts; broadly addresses shape form. devised resist evasion, datable separate undatable products. alternative ways insure free choose method found efficacious convenient. "[T]he legislature pass measures people police power, itself judge necessity expediency adopted."10 New York ex rel. Silz Hesterberg, 211 31, 40, 29 10, 12, 53 L.Ed. 75 (1908). B 15 fundamental couched expansive Title 703 provides "[u]nless made hereinafter provided subchapter, pursue, hunt, take, capture, kill, attempt deliver shipment, ship, export, import, cause shipped, transport transported, carry carried, receive carriage, export" 17 But effective: regulation. 21.2 Unlike our therefore, reliance negative inference precluded.11 Nevertheless, 18 On its face, comprehensive naturally forbidding all compose doubt exempt ban,12 When wanted prohibition, so unmistakable terms. 711.13 19 enactment—to extent enlighten—also statute. If assumed automatically unnecessary specify 711 permissible circumstances sell game bred farms preserves.14 Furthermore, unaware tool enforcing policy flat proscription wildlife, legality At time, States, simply restricted during seasons closed hunting. supra, S.Ct., 12. Also Canadian law implementing Treaty,15 contained provision barring "during time capturing, killing, bird, nest, egg law," 55 Cong.Rec. 5412 (1917).16 aware—thus applied illegally rather season hunting prohibited. Against background, absence implies intended embrace technique banning whenever 20 Related sometimes shed light previous United States Aluminum Co. America, 148 F.2d 416, 429 (CA2 1945) (L. Hand, J.). Other enacted enforcement lawfulness notable example. more recent Endangered Species 1973, framed, endangered species, passage.17 1538; Kepler, 531 796 (CA6 1976); Delbay Pharmaceuticals, Inc. Commerce, 409 F.Supp. 637, 641-642, 644 (D.C.D.C.1976); see H.R.Rep. 94-823, pp. 3-4 (1976) (discussing amendment Act). meant items retroactive application prohibitions, care explicitly, 1372 (Marine Mammal 1972); 1538(b) (Endangered 1973), 90 911, amending 1539 Act); 92 3760, 1538 never established pre-existing-artifacts though occasions.18 21 persuaded empowers covered spite onset protection. indication contrary.19 follows properly permit artifacts.20 disagree Court's interpretation inapplicable parts. II 22 authorize wholly deprives them opportunity earn profit relics.21 23 Penn Central Transportation City, 438 104, 123-128, 2646, 2659-2662, 631 (1978), exposition Takings Clause. need repeated length here. Suffice say government regulation—by definition—involves adjustment public good. Often curtails some potential economic exploitation private property. require compensation effectively regulate "Government hardly go values incident diminished paying every change law." Pennsylvania Coal Mahon, 260 393, 413, 43 158, 159, 67 322 (1922); Central, U.S., 124, 2659. 24 Clause, preserves governmental power regulate, dictates 'justice fairness.' Ibid.; 2659; Goldblatt Hempstead, 369 590, 594, 82 987, 990, 130 (1962). abstract fixed judicial intervention Clause becomes appropriate. Formulas factors developed variety settings. 2659-2662. Resolution each case, however, ultimately calls much judgment logic. 25 here Rather, significant restriction imposed disposing least owner possesses "bundle" "strand" bundle aggregate viewed entirety. Compare 130-131, 2662-2663 Twin City Power 350 222, 259, 240 (1956), Virginia Electric & 365 624, 81 784, 838 (1961). Michelman, Property, Utility, Fairness: Comments Ethical Foundations "Just Compensation" Law, 80 Harv.L.Rev. 1165, 1230-1233 (1967). crucial retain possess donate devise 26 is, sure, undeniable Again, dispositive. review regulation, Hadacheck Sebastian, 239 394, 36 143, 348 (1915), supra.22 instant unable derive benefit exhibit admissions charge. rate, loss future profits unaccompanied restriction—provides slender reed rest takings claim. Prediction profitability essentially matter reasoned speculation courts especially competent perform. Further, perhaps very uncertainty, interest anticipated gains traditionally compelling property-related interests. Cf., e. g., Fuller Perdue, Reliance Interest Contract Damages (pt. 1), 46 Yale L.J. 52 (1936). 27 Regulations goods upheld claims unconstitutional For sustained alcoholic beverages despite individuals left previously stocks. Everard's Breweries Day, 265 545, 44 628, 68 1174 (1924), involved forbade liquors manufactured passage claim tersely rejected. 563, 633.23 Jacob Ruppert, Caffey, 251 264, 141, 64 (1920), extended domestic intoxicating nonintoxicating "on hand act," id., 302, 150, upheld. Brandeis dismissed challenge, stating "there appropriation merely lessening due use."24 303, 151. Mugler Kansas, 123 623, 273, 31 205 (1887). true bear costs But, within limits, burden borne secure advantage living doing business civilized community." 422, 163 (Brandeis, J., dissenting). hold Amendment.25 Reversed. 30 THE CHIEF JUSTICE concurs 54 250, amended, set forth "Whoever, place jurisdiction being knowingly, wanton disregard consequences his act manner commonly known American eagle, part, foregoing whoever violates regulation issued fined $5,000 imprisoned year both: Provided further, addition subchapter relating eagle." 2, 755, 703, similarly provides: "Unless manner, product, manufactured, consists, whole included conventions between Great Britain concluded August 16, 1916 (39 1702), Mexican mammals February 7, 1936, Government Japan extinction, environment March 4, 1972." Appellee L. Allard convicted violating establishes criminal penalties unpermitted sales. Allard, 397 (D.C.Mont.1975). Pierre Bovis 707, Bovis, Nos. 75-CR-63 75-CR-66 (Colo.1975). thereunder unconstitutionally vague improper delegation Executive Branch. These allegations pressed address insubstantial did justify convention court. disagree. Goosby Osser, 512, 93 854, 35 (1973); Hagans Lavine, 415 528, 536-538, 1372, 1378-1380, 39 577 Exemption necessary protect livestock, agriculture predation. scientific, zoological, religious needs and, circumstances, falconry. golden, bald, 1246, 1972 reinforced, 86 1064. occasion—especially latter—the scheme considered. 1986, 87th 2d Sess. (1962); 1450, 92-1159 (1972), U.S.Code Cong. Admin.News, p. 4285; 92-817 (1972). force preceding amendments, 6.1 (Cum.Supp.1944); 11.1 11.8(b) (1964); 22.2 although wording 1960 otherwise, 11.6(b) Affidavit Dr. Alan H. Brush, 44-46. reading shaken until 1959, Alaska exempted strictures 668. 14, 73 143. taken, purchased Territory way undercut 48 States; pre-1959 license country, vice versa. unpersuaded argument lost "identities" elements This contention bottomed word "part" instead "product." distinction immaterial: Pub.L. 93-300, 88 190, indicated clarification substantive law. 93-851, 1918, predates years. Originally Convention (on behalf Canada) now implements similar treaties country nations. generally Coggins Patti, Resurrection Expansion Colo.L.Rev. 165, 169-174 (1979); M. Bean, Evolution National Wildlife Law 68-74 (1977). terms, exception. 704. "Nothing breeding proper increasing food supply." fact, Conference accepting floor actually withdrawn order add indicating sold. 56 8015 (1918); 8130, 8430. 5412-5413 (1917) (Senate); 7372 (1918) (House). treaty Canada. indicates lawful excuse possessing selling out season, what be. 1976, establish animals 94-359, 1539. circumscribed scope Commerce grant pre-Act animal position prevents rely Japan, incorporated 1974. 190. "[a]ny exchange [migratory] illegally, prohibited." Convention, like Conventions, great weight material variations particulars supra n. 11, 173-174; 70-73; hazardous look single definitive resolution construction problem. inasmuch Conventions represent binding international commitments, minimum wildlife; developing measures. 74-76. depart course courts. Although determined cases supporting position. Two cited cases, Hamel, 534 1354 (CA9 1976) (per curiam ), Blanket, 391 (W.D.Okl.1975), neither decide nor imply decision posed Language favorable Aitson, 74-1588 (CA10, July 21, 1975), dictum unpublished opinion. Contrast Richards, 583 491 (CA10 1978). Marks, 420 (S.D.Tex.1925), impermissible punish passed. ruling rested court's Congress' authority power. Whatever logic ruling, underlying assumption national clearly flawed. See, Hughes Oklahoma, 441 322, 1727, 250 early district authored same judge, sustain proposition advanced Fuld Store 262 836 (D.C.Mont.1920); re Informations Under 281 546 (D.C.Mont.1922). cursory inquiry find unconvincing. Indeed, heightened restrictions appropriate recognition exploitation. amendments addressed stiffening intent 74 866; 1787, 86th (1960); 1779, (1960), 3459. appears cast process, used raised standing assert He asserts stated not, argues, then "value after already applicability Act." Brief Appellants 30. misplaced. Even assuming sufficiently pre-effectiveness urge Because challenge restricts ability dispose personal, concrete, live controversy. Baker Carr, 186, 204, 691, 663 timing acquisition investment-backed expectations, erect jurisdictional obstacle threshold. Of course, others. All face prosecutions statutes, itself, suffices give litigate should emphasized accompanied removal coal. considered Eighteenth (Prohibition) gave prerogative override limitations. beverage Ruppert retained product domestically consumption, 151; Hamilton Kentucky Distilleries 146, 157, 106, 108, 194 (1919), undoubtedly commercially crippling. No importance attached enactment war cf. Eureka Mining 357 155, 168, 78 1097, 1104, 1228 (1958). briefly interfere occupation. inclined exhume variant theory consist

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