Document: 451 U.S. 259 101 S.Ct. 1673 68 L.Ed.2d 80 James G. WATT, Secretary of Interior et al., Petitioners,v.State ALASKA al. KENAI PENINSULA BOROUGH, Petitioner, v. State Nos. 79-1890, 79-1904. Argued Jan. 13, 1981. Decided April 21, Syllabus The Kenai National Moose Range was created in 1941 as a national wildlife refuge by withdrawing acreage from public lands Alaska. Commercially significant quantities oil underlie the Range, and issued gas leases for beginning 1950's. has distributed revenues these according to formula provided § 35 Mineral Leasing Act 1920, whereby 90% are paid Alaska 10% United States Treasury. In 1964, 401(a) Wildlife Refuge Revenue Sharing amended so add word "minerals" list resources, which were be 401(c) that Act, 25% counties lies, remaining funds used Department purposes. Department's Solicitor then made determination, Comptroller General concurred, superseded with result under applied lease refuges. Petitioner Peninsula Borough, "county" within thereafter brought suit Federal District Court, seeking declaration governed distribution Range. also filed same court, still such distribution, suits consolidated. Court granted summary judgment Alaska, Appeals affirmed. Held: Revenues generated on federal refuges consisting reserved lands, here, must 1920. Absent any expression congressional intention repeal implication, term applies only minerals land acquired Pp. 265-273. 612 F.2d 1210 (9th Cir.), Louis F. Claiborne, Washington, D.C., petitioner Andrus. Charles K. Cranston, Anchorage, Borough. Thomas Koester, Juneau, respondents. Justice POWELL delivered opinion Court. 1 narrow issue presented cases is two statutes provides received lands. 2 * withdrawal nearly million acres See Exec. Order No. 8979, 3 CFR 1043 (1938-1943 Comp.). Public Land 3400, 29 Fed.Reg. 7094-7095 (1964) (adjusting boundaries). its name suggests, breeding ground moose. Fish Service administers it part system. Range.1 Pursuant authority 30 U.S.C. 181 seq., mid-1950's. Udall Tallman, 380 1, 85 792, 13 616 (1965). substantial leases.2 From first receipt 1954, 14 Stat. 450, amended, 191. This prescribes Treasury.3 4 1975, Director inquired whether should 49 383, 16 715s(c), rather than Director's inquiry prompted 1964 amendments 401(a), added statutory formula.4 Pub.L. 88-523, 78 701. According this formula, wherein purposes.5 ruled amendment governed, superseding App. Pet. Cert. p. 26a. concurred view Solicitor. 55 Comp.Gen. 117 (1975). Upon request reconsideration 1976, affirmed his initial decision. Op.Comp.Gen. File: B-118678, June 11, reprinted 42a. 5 Borough against lies. If governs, will receive none. court various officials, revenues. provision applies, continue and, far law concerned, consolidated lawsuits.6 6 436 F.Supp. 288 (1977). examination apparently conflicting statutes, held referred found Id., at 292. Distribution refuges, held, continues determined 1920.7 Ibid. viewed legislative history demonstrating Congress concerned primarily difficulties acquiring expected no increase amendments. 291-292. 7 Ninth Circuit (1980). That largely ambiguous. 1213. It refused find addition had repealed implication 1920 without clear showing intent Congress. Morton Mancari, 417 535, 549-551, 94 2474, 2482-2483, 41 290 (1974). further approved Court's holding because gave effect each statute. F.2d, 1214-1215. 8 We certiorari sub nom. Andrus 449 818, 68, 66 20 (1980).8 now affirm. II 9 rely "plain language" Act. They contend ambiguity mineral resources all described As currently phrased, provides: 10 "[A]ll sale or other disposition animals, salmonoid carcassas [sic ], timber, hay, grass, products soil, minerals, shells, sand, gravel, [or] privileges . shall separate fund hereafter prescribed." 715s(a) (1976 ed., Supp.III). 11 defines system include "acquired reserved" conservation protection certain fish wildlife. No restriction placed upon common meaning "minerals." Given clarity, argued, resort unnecessary improper. 12 agree "[t]he starting point every case involving construction statute language itself." Blue Chip Stamps Manor Drug Stores, 421 723, 756, 95 1917, 1935, 44 539 (1975) (POWELL, J., concurring). Rubin States, 424, 698, 633 (1981). But ascertainment apparent face single need not end inquiry. Train Colorado Interest Research Group, 426 10, 96 1938, 1942, 48 434 (1976); American Trucking Assns., Inc., 310 534, 543-544, 60 1059, 1063-1064, 84 L.Ed. 1345 (1940). plain-meaning rule "rather an axiom experience law, does preclude consideration persuasive evidence if exists." Boston Sand Co. 278 41, 48, 52, 54, 73 170 (1928) (Holmes, J.).9 circumstances enactment particular legislation may persuade did intend words have their literal effect. E. g., Church Holy Trinity 143 457, 459, 36 226 (1892); Ryan, 284 167, 175, 52 65, 76 224 (1931). Sole reliance would assume answer question issue. These involve terms facts before us. Restatement cannot intended control. Recognizing this, invokes maxim more recent irreconcilably governs. 2A C. Sands, Sutherland Statutes Statutory Construction 51.02 (4th ed. 1973). Without depreciating general rule, we decline read being irreconcilable conflict ascertain actual Our guided another maxim: " 'repeals favored,' U.S., 549, S.Ct., 2482, quoting Posadas City Bank, 296 497, 503, 56 349, 352, 351 (1936). "The legislature 'clear manifest.' Borden Co., 308 188, 198, 182, (1939), Red Rock Henry, 106 596, 602, 27 251 (1883). give can do while preserving sense purpose. supra, 551, 2483; see Haggar Helvering, 389, 394, 337, 339, 340 III extensive purpose probable Nonetheless, think significant, there explanation subject H.R.Rep.No.1753, 88th Cong., 2d Sess. (hereinafter H.R.Rep.); S.Rep.No.1096, S.Rep.), U.S.Code Cong. & Admin.News 3265; 110 Cong.Rec. 19882-19883 (remarks Rep. Ostertag). study few materials pertinent insertion persuades us work change pre-existing A. 15 Prior withdrawn conclusion seriously questioned. First, time until well after invariably Second, long ago arguably applicable statute, unamended 15, ch. 261, 383 1935 Act), n. 4, govern disposal 21 873 (1942). Comp.Gen., B-105133, Oct. 1951, 82.10 Third, our (1965), strongly suggests prior 1964. involved been domain Executive Order. deprive power, conferred necessary authorization grant leases. excluded application designated but exclude areas." 795 (footnote omitted).11 Because "under provisions chapter," inescapable deduction Tallman that, continued provide 17 Neither nor authorized extraction 40 Op.Atty.Gen. (1941) (Attorney Jackson); responded passing Acquired Lands, Aug. 7, 1947, 513, 61 913, seq. supra. conferring specified including gas, "distributed manner prescribed receipts affected lease." 355. requires 18 Thus, when reasonably clear. Such own terms, operation 1947 Lands. B 19 alter program revenue impetus proposals leading passage difficulty experienced new See, S.Rep. 5; H.R.Rep. 2. Localities resisted having removed local tax rolls. "provide equitable payments compensation loss taxable properties system." 2-3. Law 88-523 met problem changing 401(c)(1), lay could receive, option, payment based adjusted cost produced.12 pay old. There silence suggestive, sufficient make increased mandated amendments.13 (statement Udall); 11. might mentioned wrought through amounts exceeding total existing revenues.14 During deliberations amendments, Senate House Committees tables present containing estimated proposed 13; 3. relevant table shows Peninsula. assumed both amendments.15 22 inference seems formula. reasonable Interior. appears 1962 bills supported substitutes pending counties. S. 2138, 87th 1st (1961); H.R. 13176, (1962). report Committees, offered term, here concedes included proposal's descriptive category "various perfecting provisions." Letter Frank P. Briggs, Assistant Interior, 20, 1962, S.Rep.No.1919, Sess., (1962); H.R.Rep.No.2499, 23 leave "perfect" incorporating changes. 1974 Lands subjected hold inserted recognize draws support evident fact almost exclusively problems related adopting 24 Finally, interpreted passed, years thereafter, altering contemporaneous carries weight. 16, 801. attention particularly appropriate cases, amendment. SEC Sloan, 103, 120, 98 1702, 1712, 148 (1978). current interpretation, position, entitled considerably less deference. Electric Gilbert, 429 125, 143, 97 401, 411, 50 343 (1976). wholly unpersuasive. IV 25 summary, Finding "clearly expressed intention" 2483, conclude Accordingly, 26 ordered. STEVENS, concurring. 28 My colleagues periodically criticize way manages docket. Most frequently, criticism takes form dissent denial certiorari. e.g., Brown Transport Corp. Atcon, 439 1014, 99 626, 58 687 (WHITE, dissenting). Although I consider practice dissenting denials counterproductive, Singleton Commissioner, 940, 942-946, 335, 335 (opinion J.), context suggest misuse scarce occasionally denying deserving plenary consideration, granting adequate justification.1 creates itself manner, expressions concern about overburdened judiciary ring hollow echo. permitted final unique petitions decision judicial decision, reason anticipate comparable arise foreseeable future.2 fully majority's why correctly ambiguous even persuaded STEWART better argument, feel interest served allowing litigation terminate Appeals. how divide clearly matter decide. displeased decisions Appeals, promptly reverse them revising statutes. view, doubt acted simply denied certiorari.3 On hand, perceived legislature, nothing gained protracting litigation. Admittedly, amount money stake, ante, 263, 6, offsetting costs associated escrow review, expenditure material human significant. 31 undergoing profound Among most importance courts appeals. Today they truth last Like resort—including one—they render withstand test time. perfect appellate structure entirely eliminate error. certainly, sit correct what perceive mistakes committed tribunals. often accorded special respect finality,4 possess monopoly either finality respect. quality done appeals merits esteem entire Nation, but, unfortunately, widely recognized be. Indeed, believe those dedicated judges deference merits, able resist temptation tentative prediction review produce different theirs. my opinion, certiorari.5 reviewing apparent, simple efficient disposition. 32 disagreement management docket not, course, prevent me joining POWELL's merits. 33 STEWART, whom THE CHIEF JUSTICE MARSHALL join, dissenting. 34 strains mean said, judicially repeals reasonable1 specific announced divines unintended. expressly "all ." administered "reserved At fiscal year, portion located. "any reserve area," defined "land domain" purposes, 715s(g)(3), allocation county net receipts. 715s(c)(2). Alternative formulas out "fee 715s(c)(1). Net "shall transferred Migratory Bird Conservation Fund use acquisition suitable areas migratory bird refuges." 715s(e). distinction between natural "acquired" "reserved" scheme therefore clear: leases, like comprised apportioned Fund. go itself. argues apply support, history, exempting concluded "there 715s restrictive 'minerals,' "a approach dictate expansive definition lands." 288, 291. Similarly, plain 715s, fairly brings scope." 1210, mistake proceed further. 37 meaningless reached And, "[i]n construing obliged effect, possible, used." Reiter Sonotone Corp., 442 330, 2326, 2331, 931. Section 355, already established encompassing automatically revenues, point, useful declare once again allocated.2 suggestion, therefore, presumes design adding accomplish precisely nothing. 38 concludes says 1920,3 "repeals favored." Ante, 267. canon force context. challenged section "repealing" merely limited exception one earlier law. When text dealing discrete subject, unambiguous, given alters previous dealt subject. 39 disfavored" argument occupying field, eviscerates coverage indication so. case, presume anticipated broad pronouncement serious implications peripheral, quite different, area, rendered enactment, indicated amend. 290, where Equal Employment Opportunity 1972, taken literally, worked Indian preference policy consistently years. description Mancari prototypical adjudication appropriate," id., 550, instructive: longstanding, important component Government's program. anti-discrimination provision, aimed alleviating minority discrimination employment, obviously designed deal indeed, opposite problem." Ibid., Fussell Gregg, 113 631, 993. contrast obvious. deals specifically subject—distribution object earlier, general,4 statute.5 enough indicate aware doing Supp.III) discloses numerous choose compensate located, some omitted reference "minerals," S.2138, S.2678, 2770, 2927, 3201, H.R.12144, 12143, 11535, 11525, 10714, S.1720, (1963); reference, H.R.2393, 1004, 1127, 9030, 5996, H.R.11008, (1964); S.179, 1363, S.2498, (1964). Presumably, adopted bill difference. Moreover, "technical" amendment, last-minute floor. SeeUnited Batchelder, 114, 2198, 2202, 755. suggestion raised submitted substitute Senate. Report dated 22, Authorize Increased Payments Counties Refuges: Hearings H.R.10714, H.R.11525, H.R.11535, H.R.12143, H.R.12144 Subcommittee Fisheries Committee Merchant Marine Fisheries, highlighted, unlikely escaped notice.6 Later language, 19; 9, following 42 very difficult inadvertent unnoticed.7 But, demonstrates reflected 'The said whole inconclusive. Certainly, contains reject requires.' Ullman 350 422, 433, 100 511. 43 today bothered altered prevailing law.8 usually "Every act made, making declaring law; impeded mere inconsistent enactment." T. Sedgwick, Interpretation Constitutional 104 (2d 1874). affirmative obligation explain deems wise necessary, demonstrate consequences action.9 Harrison PPG Industries, 446 578, 592, 1889, 1897, 64 525. And "[i]t function 'Congress unaware accomplished.' Albernaz 450 333, 342, 1137, 1144, 67 275 (quoting Railroad Retirement Board Fritz, 166, 179, 453, 461, 368. Rather join speculative efforts doctrine implied repeal, rest construction: leges posteriores, priores contrarias abrogant. Sedgwick describes approval follows: 'If acts passed times, last,' Master Rolls, 'is obeyed; obedience observed derogating first, way.' 104. Columbia Hutton, 18, 26-27, 369, 371-372, 60; Henderson's Tobacco, Wall. 652, 657, 235; Tynen, 88, 92, 153. Observance allows basic canons plainly say.10 Chief Marshall century half ago: "[T]he collected employ. Where room construction. strong justify departing search themselves suggest." Wiltberger, Wheat. 76, 95-96, 37. 45 respectfully dissent. Today, pumped. Brief Petitioners 4. Substantial oil, however, thought Between 1966 $57 64. $3.8 contiguous $3,143 1a-2a. interpreting Congress' directions remembered historically alone part, 35, set forth 191, "All sales, bonuses, royalties, rentals chapter into Treasury States; 90 per centum thereof legislature. 50% By owned except 181. 3, 401 "the surplus wildlife, spontaneous shell, 378, 383. version text, infra, 265. "(1) fund, year ., situated fee area whichever greater: "(A) An equal product 75 cents multiplied located county. "(B) three-fourths fair market value, Secretary, "(C) connection during year. "(2) situated, 715s(c) 401(b) expenses production fund. 401(e) Fund, laudable purchasing Since commenced account $23 million. declaratory relief, sought accounting since allegedly due recovery payments. resumption accustomed general, sold citizen never state private ownership." Wallis Pan Petroleum 384 63, 2, 86 1301, 1302 369 (1966). 1302. 1978, rejected "including, to, crude petroleum gas." 8394, 95th recommending stated "insure" effective date 401(c). H.R.Rep.No.95-1197, disclaims affect outcome Members stating inappropriate proper courts. 124 31436-31440 (1978) Sen. Culver Gravel). sole five declined clarify 1978. left resolve addressed judgment: among federal, state, governments resource "Of course true used, sense, primary, ordinarily reliable, source writing: contract, anything else. surest indexes mature developed jurisprudence fortress dictionary; remember always accomplish, whose sympathetic imaginative discovery guide meaning." Cabell Markham, 737, 739 (CA2) (L. Hand, aff'd, 326 404, 193, 165 (1945). speculates probably basis today, "shell, sometimes contended "other privileges" Memorandum July Counsel Service, 87. noted, contention 1942 1951. For reasons elaborated understood leasing minerals. 1946 contradicted subsequently Department. (1941). speculates—inconsistently, think—that embraced discredited interpretation post, 279-280, criticizes concluding Post, 278-279. explains reaffirm words, contradicts joins positing substantive change, disagrees Tallman's binding, construe incorrect. required determine reach Orders authority. examined requisite 795, liberalized 95-469, 1(a)(3), 92 1319. 5, supra law). treacherous intent. Scripps-Howard Radio, Inc. FCC, 316 62 875, 880, 1229 Here, inconceivable knowingly changed substantially long-standing comment. "salmonoid carcass[e]s" 1(a)(1), Even comparatively trivial addition, explicitly stated, "[s]almonoid carcasses allow salmon hatchery operations." 1963, totaled $2,350,000. exceeded $3,800,000. 2a. 1963 unamended, $1,768. figure 14, Of independent another. light ever-increasing number severe practical constraints ability freely certiorari, certainly safe whenever likelihood other, deserving, cases. suggested Appeals' conflicted General, petition behalf parties, future Circuit. 18. fact, concerns action 264-265, 8; 285, 10. Jackson "[w]e infallible, infallible final." Allen, 344 443, 540, 397, 427, 469 (concurring result). possibility lower incorrectly decided is, factor decides exercise discretionary jurisdiction. However, Rule 17.1 Rules makes plain, jurisdiction serve purposes broader correction error cases: "A writ right, discretion, therefor. following, neither controlling measuring character considered. "(a) matter; resort; departed accepted usual proceedings, sanctioned departure call power supervision. "(b) "(c) been, be, settled Court." "neither control[s] measur[es]" extent discretion deny surely none factors identified unreasonable, unusual, sharing returns locality immediately large. compensates lost status services refuge, 75% Supp.III), satisfies maintenance. infra. While conflict, assumes meaning, Although, sheds direct here," 1213, arguable despite vigorous contentions today's 1678. "from disposition" privileges." mentioned, administering agency "disposition reservations conditions [it] best interests Government." H.R.Rep.No.886, 74th (1934). 1946, Op. Solic. Dept. M. 34516 (Aug. 1946). Under embracing "perfecting provision," (1962), all. spokesmen hearings generally 4; "[u]nder enacted percent operations production, grazing, timber harvest, like." More Equitable To Having 1720, 2498 Commerce, (emphasis added); Participation Receipts: 2393, 5596, 9030 11008 added). decide apportionment contrary assertion, "explai[n] 'minerals' reaffirm" controlled 268, before; properly future. Ideally, prefaced "notwithstanding law." not. Instead, introduced unambiguous prospective phrase: "Beginning next full thereafter. least me, needed more. covers later particularity acquired. extent, constitute former. narrowly drawn, prevail over provision. Radzanower Touche Ross 148, 158, 1989, 1995, 540. limitation pervasive Sherman e. unreasonable fundamental equally expect specify, indeed consider, affecting swept away old unclear. much statistical comparing actually showed meant reading indicates, reflected. 271. straw scarcely compels says. hardly surprising legislators overlooked disparity entry lengthy exhibit. noteworthy refers appeared Reports only, nn. explained carcasses," 271, supports strained logic, premised notion intent," ibid., put notice trivial, peril. fails similarly provisions, important, free strike unexplained That, leads "treacherous" results feared lead absurd futile result, see, Armstrong Paint Varnish Works Nu-Enamel 305 315, 59 83 195, variance whole. 1345. Shapiro 31, 1375, 1391, 1787. relies ignored decade 272-273. administrative errors self-validating. 117-119, 1711-1712, 148; Adamo Wrecking 275, 287-288, 566, 573-575, 54 538; Dixon 381 78, 223. Unauthorized immune correction, retrieve mistakenly dispersed officials. Wurts, 303 414, 415-416, 637, 638, 82 932; Wisconsin Central R. 164 190, 212, 45, 399. 1975 considered evaluation Instead inertial continuation practice. A reliable "detailed comprehensive" re-evaluation confirmed General. Sierra Club, 347, 358, 2335, 943. NLRB Iron Workers, 351, 651, 660, 586. am wrong, revise appropriate, constitutional lawmaking courts, changes thinks necessary. readiness rewrite contributes, afraid, undue willingness redrafting. Environment Works, confronted dispute chose "tak[e] position pursuant Act." S.Rep.No.95-1174, pp. (1978), 2979, 2982. 8.

Category: 9