Document: 503 U.S. 569 112 S.Ct. 1606 118 L.Ed.2d 222 UNITED STATES of America, Plaintiff,v.STATE OF ALASKA. No. 118, Orig. Argued Feb. 24, 1992. Decided April 21, Syllabus Pursuant to, inter alia, § 10 the Rivers and Harbors Appropriation Act 1899 (RHA), Secretary Army, through Army Corps Engineers, granted Nome, Alaska, a federal permit to build port facilities extending into Norton Sound. The permit's issuance was conditioned on submission by Alaska disclaimer rights additional submerged lands that it could claim within its boundary if facilities' construction moved coastline seaward. However, also provided reserved right accreted pending decision court competent jurisdiction officials lacked authority compel sovereignty as condition issuance. After were constructed, United States Department Interior proposed lease sale for minerals in Alleging proposal involved subject disclaimer, announced intention file suit challenging Corps' require disclaimer. leave this Court commence action, both parties have filed motions summary judgment. Held: acted his discretion conditioning approval Nome change federal-state project might cause. Pp. 575-593. (a) This Court's review statute administers involves an examination 10's language, decisions interpreting 10, longstanding fulfilling Congress' mandate. On face, 10—which prohibits building any structure navigable waters "except plans recommended Chief Engineers authorized Army"—appears give unlimited grant or deny such one at issue. While RHA's legislative history statutory antecedents offer little insight intent, idea delegating well established immediate precursors RHA. support view should be construed broadly, see, e.g., ex rel. Greathouse v. Dern, 289 352, 53 614, 77 L.Ed. 1250, authorize consideration factors other than navigation during process, cf. Pennsylvania Industrial Chemical Corp., 411 655, 93 1804, 36 567. In addition, since late 1960's, regulations adopted interpreted empowering take account several "public interest" factors—including full range economic, social, environmental factors—in addition deciding whether issue permit. See, 33 CFR 320.4(a)(1). 576-583. (b) There is no merit Alaska's argument mandate authorizing consider exceeded 320.4(f), which authorizes project's consequences boundary. Contrary position, practice does not conflict with Submerged Lands 1953 (SLA), provides coastal State's extends three miles from coastline. Although coastlines are natural artificial alterations, California, 381 139, 176-177, 85 1401, 1421, 14 296 (California II ), making effort alter existing over Rather is, reasonable exercise authority, determining will increase control detriment States' legitimate interests. Neither SLA nor addresses effect additions coastline, sanctioned, California II, supra, 177, S.Ct., 1422, mechanism exercised case. Nor do prohibit considering process changes boundaries result establishment international purposes—since always affect boundaries—and different domestic purposes. Specifically, Secretary's action because case did specify goal achieving single 583-591. (c) that, even valid, they force State abdicate It untenable say property interests fall outside relevant criteria requires determine would interest." And make sense, inconsistent hold legitimately may facility, yet seek less drastic alternative lands. failure identify option disclaimers render policy contrary law. See Gaubert, 499 ----, 111 1267, 113 335. cannot said arbitrary capricious manner, notified state promptly objection project, specified curative option, afforded ample time consult officials, then draft can contend notice, similar those has past proceedings. 591-592. motion judgment granted; denied. WHITE, J., delivered opinion unanimous Court. Jeffrey P. Minear, Washington, D.C., plaintiff. John G. Gissberg, Juneau, defendant. Justice WHITE 1 Ever gold rush 1901, Seward Peninsula western been focus attempts gain region's riches. re McKenzie, 180 536, 21 468, 45 657 (1901). city sprang life almost overnight, some 20,000 seekers arriving vessel summer 1900 when spring thaw opened up seaward passage. Since time, never linked interior road—travelers traders must arrive air, sea, dog sled. heavy reliance traffic, lack region, inspired early 1980's develop construct facilities, including causeway road, breakwater, offshore terminal area, implications lie heart lawsuit, comes us bill complaint States. question presented decline unless agrees deemed location 2 * August 25, 1982, applied District under 30 Stat. 1151, U.S.C. 403, 404 Clean Water Act, 86 884, amended, 1344.1 issued Public Notice Application Permit October 20, invited interested persons comment granted. November 22, division ground Nome's these cause "artificial accretion legal coast line." Joint Stipulation Facts 2. requested waive future claims pursuant 67 29, 43 1301 et seq., arise extension caused facilities. Solicitor same effect, stating " 'move baseline present location' '[f]ederal mineral leasing affected state-federal boundary, boundaries, measured baseline.' 2-3. Accordingly, 'approval application upon executing agreement quit deed preserving boundary.' Id., 3. 3 July 1, 1983, transmitted Solicitor's letter Natural Resources advised until 'waiver State-Federal Ibid. responded May 9, 1984, submitting conditional claimed facility. issuance.2 being satisfactory, completed permitting permit.3 4 March 11, 1988, Minerals Management Service published "Request Comments Nominations Lease Sale Sound Intent Prepare Environmental Impact Statement," solicited public Service's minerals, gold, near 5. submitted comments following month, alleging announcing waiver delete approximately 730 acres dispute project. 5 sought we 1991. 1411, 464. two entered 7 Outer Continental Shelf (OCSLA), 1336, Stat.Ann. 38.05.137 (1989), direct revenues disputed acreage escrow paid prevailing party.4 judgment, now consider. 6 Our principles evaluating agency interpretations congressional statutes settled. Generally, reviewing agency's administered agency, first "whether Congress directly spoken precise issue." Chevron U.S.A. Inc. Defense Council, Inc., 467 837, 842, 104 2778, 2781, 81 694 (1984). Should silent ambiguous posed, decide "agency's answer based permissible statute." 843, 2781-2782. applying principles, examine turn language RHA, it, A. Section RHA pertinent part: 8 "The creation obstruction affirmatively Congress, capacity prohibited; shall lawful . structures water except Army; excavate fill, manner modify course, location, condition, of, port, roadstead, haven, harbor, canal, lake, harbor refuge work prior beginning same." 403. 9 provision quite broad. flatly "creation obstruction" itself bans Army." contains authorization decision; appears Reports Senate House Committees charged recommendations contain hint drafters vest apparently unbridled plain seems suggest. H.R.Rep. 1826, 55th Cong., 3d Sess. (1899); S.Rep. 1686, (1899). similarly intent. §§ 1890 River Harbor Sept. 19, 1890, 26 454-455. prohibited "any obstruction, law, waters, respect jurisdiction" made unlawful "wharf, pier, kind harbor-lines without permission War." slightly amended 1892 add prohibition "in refuge, inclosure approved 13, 1892, 3, 27 110. reflected reality attend each individually, had earliest days Republic. As Report accompanying law observed: most important feature extent goes War contracts completion more works river improvement." 967, 52d 1st (1892). departure old driblet system appropriations," continued, "was found so your committee determined apply larger scale last act." 666, 4-5 By passed therefore, explanations broad employed carry out directive sparse. B 11 substance unchanged enactment, only few occasions construe broadly narrowly. case, example, considered writ mandamus order wharf waters. 1250 (1933). stipulated interfere navigability, nevertheless denied impede developed create means access George Washington Memorial Parkway along Potomac northern Virginia. 355, 615. applicant argued refusal theory construction's effects navigation. refusing equitable noted petitioners' accepted "only doubtful questions resolved [petitioners'] favor," mandatory duty imposed he satisfied navigation." 357, 616. 12 interpretation exceptional. Republic Steel 362 482, 491, 80 890, 903 (1960), observed "[w]e read charitably light purpose served. philosophy statement Mr. Holmes New Jersey York, 283 336, 342, 51 478, 479, 75 1104 [1931], 'A amenity, treasure,' forbids narrow, cramped reading either 13 10." stated later case: "Despite difficulties wording consistently coverage principal beneficiary beneficiary, Government itself." Wyandotte Transp. Co. States, 389 191, 201, 88 379, 386, 19 407 (1967) (citations omitted). 567 (1973), approach somewhat analogous situation enacted contemporaneously 10. "may deposit" refuse matter "whenever anchorage injured thereby." 407. required allow discharges where We held construed. reaching conclusion, "even concedes certain deposit injure navigation, need necessarily deposit, proviso makes discretionary—i.e., 'may permit' deposit." U.S., 662, 1810. further "contains followed issuing permits," id., 668, 1814, rejected our view, breadth. Without specifying considered, "it building" 403 (emphasis added). holding Corp. limited logically follows confined solely considerations 10.5 C 15 administrative down years extended Secretary. An Attorney General W. Wickersham 1909, after "consider[ation of] relating having waters." Op.Atty.Gen. 284, 288 (1909). 16 narrow persisted many decades. "Until 1968," according document produced "the regulatory program protect nation's 42 Fed.Reg. 37122 (1977). 1968, general guidance included permitted activities interest quality, recreation, fish wildlife, pollution, resources, 209.330(a).6 17 Yet expansive reading, plainly authorized, Committee Operations concluded still enough. 91-917, p. (1970). earlier "restricted act law." summarized holdings generously, 2-4, commended "for recognizing [in 1968] broader responsibilities" emphasized "should instruct district engineers their emphasis how all aspects interest, but conservation air esthetics, scenic historic sites, ecology, waterway." react "advice" Fifth Circuit's Zabel Tabb, 430 F.2d 199 (5th Cir.1970). upheld though flood control, power production. decision, began long changing governing evaluations. (1977) (describing historical background practice). 1976, factors. 209.120(f)(1). 18 reflect consistent used settled Engineers. With breadth review, substantially 1976 provide: "(a) Interest Review. (1) evaluation probable impacts, cumulative activity intended use interest. Evaluation impact careful weighing become particular benefits reasonably expected accrue balanced against foreseeable detriments. proposal, so, conditions allowed occur, therefore outcome balancing process. That national concern protection utilization resources. All thereof: among conservation, economics, aesthetics, concerns, wetlands, properties, wildlife values, hazards, floodplain land use, shore erosion accretion, supply energy needs, safety, food fiber production, ownership and, general, needs welfare people." 320.4(a)(1) (1991). 20 These guide evaluate To contends invalid wider just reject position. statute's cases 1960's. III concede acknowledging issues navigability permit.7 exceed regulation part follows: "(f) Effects limits territorial sea. Structures affecting line base sea purposes Applications reviewed specifically altered. If coordination before final taken. engineer request [the Solicitor's] concerning outer continental General." 320.4 22 advances arguments why concerns scope authority. address turn. 23 proceeds premise SLA, trumps establishes "to geographical distant 1312. state-owned alterations. 1421-1422, (1965); Louisiana (Louisiana Boundary Case), 394 40, n. 48, 89 773, 790, 44 (1969). rules, asserts determinations line, fiat override Cf. Serv. Comm'n FCC, 476 376, 106 1902, 90 369 (1986). According federalism preclude finding confers preproject Kake Village Egan, 60, 82 562, 573 (1962). 24 responds already given requisite enactment appropriately complied statute. Federal Government's sets absolute vests exceptions case-by-case basis maintains denying Jay Boyd, 351 345, 353-354, 76 919, 924, 100 1242 (1956). 25 find persuasive one. here usurping guarantee nothing practice, alters right. What doing, what finds, fact Were accept zone conceivably hostage applicable logical extreme, powerless sole gaining zone, pollution. points mandates result.8 note neither itself, history, 3-mile limit, 176, 50, (1965) ). however, recognized expansion 1422. But Special Master encroachment unwarranted structures, thus between parties." 1421. suggests permits Master's report cited written SLA. Brief (citing 143, 1404). contention fails persuade us, sanctioned "Arguments inequity allowing met, pointed out, ability Such "power waters" meaningless indeed pollution.9 next First, 1421-1422. Convention Territorial Sea Contiguous Zone, Apr. 1958, U.S.T. 1607, T.I.A.S. 5639, explaining establish "a administration conduct relations (barring unexpected rules Convention)." 165, 1416. Because facility will, circumstances, boundary,10 "single" frustrated establish, 28 maintains, "goal" Rather, "definiteness stability." aims, achieved creating perfect symmetry Act. Stability decides disclaim surely ordinary occasioned changes. intimates problems fishing, salvage operations, criminal "[u]nstable unpredictable [that] confusion areas." Reply 6. speculative indefinite.11 uncertainty ends disclaims three-mile remains same. circumstances new presumably there identifies, nautical maps readily Nothing parties' lodgings fishermen sailors who rely charts suffer prejudice rule announce today.12 29 conducting IV Finally, actions regulations. argues shoreline lands, lands." 28. derive inter-agency responsibilities, State, 320.4(g)(6) (1991) states "dispute[s] factor decision." posits 320.4(a)(1), include numerous evaluated reference 31 analysis Parts III-A III-B suggests, persuasive. indicate "effects States." 320.4(f). maintain 320.4(g)(6), places weight, clearly speak disputes type here. Moreover, unpersuaded inferred scheme. 32 various challenges procedures especially alleged shortcoming formalizing permit-issuance process.13 "policy" simply specific omission 1274, 335 (observing agencies "establish -by-case basis, adjudicatory proceedings programs"). Certainly communicated openly appropriate 'to litigate secret laws.' Renegotiation Bd. Bannercraft Clothing Co., 415 94 1028, 1033, 39 123 (1974) (quoting 151 U.S.App.D.C. 174, 181, 466 352 (1972) (case below)). 24a-25a. avers 1970 "Alaska explain improper advantages identifying formal regulation." Opposition 16. manner. objected permit; pursued; 2-7, App. 11a-16a, 17a-19a, 20a-21a, 22a-23a, 24a, 26a-31a. form Lodging Permits Disclaimers.14 conclude capricious. V 34 granted, 35 ordered. recitation facts drawn September 6, "1. Subject paragraph below, way construction, maintenance, operations binding not, treat development again below. "2. executed complying status quo entitled. admission shoreline, party hereafter regarding location. "3. leading determination line. "4. becomes ineffective 3-4. modified bidding period closed receipt bids, sides agree live controversy exists continuing disagreement prospect sales area. moot, about 422 184, 186, 95 2240, 2244-2245, 109 (1975). reads differently, suggesting relate instead prosecutorial defined. disagree. contingent underlying prosecution rather decision. placed great weight courts, "almost universally agreed, courts accordance imposing flat ban unauthorized foreign substances regardless 671, 1815. cites Wisconsin Illinois, 278 367, 418, 49 163, 171, 73 426 (1929), proposition decisions. way. Illinois properly limit nonnavigability reasons obstruct 417, 171. version "[t]he rest primarily 209.330(a) (1967). acknowledges, polluting see 17, includes mention effects. brief Coastal Organization amici curiae go endanger human health welfare, marine environment, economic potential." Alabama al. Amici Curiae Plainly mentioned clear, fundamentally correct Indeed, excepts operation presently actually occupied right." 1313(a). Furthermore, retains navigational servitude powers constitutional commerce, defense, affairs." 1314(a). weakened existence OCSLA, 1331 "jurisdiction, disposition" Shelf, identified "vital resource reserve" value. 1332(1) (3). undertaken explicitly considers 320.4(f) equation 1969. 209.120(d)(4) perfectly OCSLA Under alterations extend country's exclusive zone. art. 8; (stating ratified Nations Law Sea], provisions customary law"). variations uncommon. non-coincident. 165-166, possibility occur providing decree fixed "shall ambulatory" 1301(b). President's proclamation 12-mile functionally distinction boundaries. Argentine Amerada Hess Shipping 488 428, 441, 8, 683, 691, 102 818 (1989). accurately created compromise agreements reached Mississippi 498 380, 273 (1990). Nollan Comm'n, 483 825, 107 3141, 97 677 (1987), commission granting conferring easement across landowner's beach. quotes "unless serves governmental ban, restriction valid 'out-and-out plan extortion.' 3149. rule, applicability one, action. 836, 3148. Even here, benefit behind permit—to lands—is contests legality Administrative Procedure 706, contention, notice proceedings, 12115 (1974); 38 12217 subsequent amendments, 41220 (1986); dated December 1980, oil-rich Prudhoe Bay, "In issuance, representative, ARCO dock Bay waterflood designed substantial secondary recovery oil gas field, SOHIO, extension. Agreement Act." Disclaimers 5(a)2.

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