Document: 460 U.S. 300 103 S.Ct. 1095 75 L.Ed.2d 77 NORTH DAKOTA, Appellant,v.UNITED STATES. No. 81-773. Argued Nov. 2, 1982. Decided March 7, 1983. Syllabus The federal Migratory Bird Hunting Stamp Act (Stamp Act) authorizes the Secretary of Interior to acquire easements over wetland areas suitable for migratory waterfowl breeding and nesting grounds. Section 3 Wetlands 1961 (Loan provides that no land habitats can be acquired with money from fund established such acquisitions unless acquisition "has been approved" by Governor or an appropriate agency State in which is located. Between 1977, successive Governors North Dakota consented covering approximately 1.5 million acres wetlands State. By United States had obtained about half this acreage. In 1970's, however, cooperation between began break down, 1977 enacted statutes restricting States' ability wetlands. These set out certain conditions must met "prior final approval" easements, permitted a landowner drain any after-expanded excess legal description easement, limited all maximum term 99 years. brought suit Federal District Court, seeking declaratory judgment that, inter alia, were hostile law could not applied easement violation would nevertheless valid. Court granted summary States, Appeals affirmed. Held: 1. consent required § Loan cannot revoked at will incumbent Governor. To hold otherwise inconsistent Act's purpose facilitating Here, question clearly Dakota's as 3's language provides. Nothing statute withdrawal approval previously given. Nor does legislative history suggest Congress intended permit revoke their consent. Pp. 312-316. 2. Since its outright, may based on noncompliance forth legislation. And extent legislation landowners contrary terms agreements, it interests applied. For same reason, limiting years pursuant given consents. 316-320. 650 F.2d 911, Robert O. Wefald, Bismarck, N.D., appellant. Barbara E. Etkind, Philadelphia, Pa., appellee. Justice BLACKMUN delivered opinion Court. 1 Under Act, authorized small Although initially Secretary's wetlands, now seeks withdraw impose future acquisitions. This has led present litigation, State's posture raises whether proceed prior 2 * A. 1929, Conservation (Conservation Act), 45 Stat. 1222, ch. 257, 16 U.S.C. 715 et seq., became law. 5 1223, was "for use inviolate sanctuaries birds."1 Land under are subject conditions: they approved advance Commission, §§ 5, 715a 715d, located "have acquisition," 715f. 4 1934, order provide funding 48 451, 718 enacted. 718a, hunters purchase bird hunting stamps, commonly known duck stamps. 4, 718d, proceeds sale stamps form special "migratory conservation fund" (conservation fund) used primarily pay "the location, ascertainment, acquisition, administration, maintenance, development" Act. hasten habitats, amended 1958. price stamp increased, and, most important our purposes, expend new type property: "small pothole areas, therein, rights-of-way access thereto," "to designated 'Waterfowl Production Areas.' " Pub.L. 85-585, 3, 72 487, 718d(c). Such production "acquired without regard limitations requirements Act." Ibid. Because these did have maintained sanctuaries, there need them purchased outright; prohibiting fee owners draining destroying wetlands' suitability 6 Despite 1958 amendments, sales proved insufficient rate deemed necessary. Accordingly, source income provided through 87-383, 813. originally sums appropriation exceed $105 seven-year period.2 added interest-free loans repaid proceeds. addition, located.3 B 7 principal grounds continental four northern Great Plains—North Dakota, South Minnesota, Montana.4 particular, rich breeding, Government's high priority. See, e.g., H.R.Rep. 95-1518, p. (1978); U.S.Code Cong. & Admin.News 1978, 4722; S.Rep. 94-594, (1976), 1976, 271. 8 part, cooperated efforts preserve habitats. Two after went into effect, State, 715f, gave "acquisition . water, water deem necessary establishment reservations." 1931 N.D.Laws, 207, 360. 1958, more than 276,000 refuges. Hearings S. 2447 al. before Subcommittee Senate Committee Interstate Foreign Commerce, 85th Cong., 2d Sess., pp. 79-81 (1958). 9 When passed 1961, Fish Wildlife Service, promptly sought gubernatorial Guy Dakota. his successor, Link, consents specified acreage within each county but list particular parcels.5 Service total consents.6 10 mid-1970's down. sources dispute altogether clear; accuses misleading whom reneging some unrelated agreements relating flood-control projects. See Record 19-20, 40; Brief Appellant 30-33. event, 204, 461, 426, 923. 11 affects three major ways. First, codified N.D.Cent.Code 20.1-02-18.1, 1979 553, 11, 1412,7 requires submit proposed board commissioners "federal involved"—here, Service—must "detailed impact analysis," county, well, directed prepare analysis expense. If recommend approve it. Next, 20.1-02-18.2, 1981 258, 654,8 negotiate time period restrict "by land, wetland, being sought," "drain area description." Finally, 47-05-02.1 (1978),9 restricts duration restrictions cast doubt upon sufficiency title, since 1977.10 12 1979, state respects applied; valid; legislative-consent provision apply App. Juris. Statement 16a, Eighth Circuit 911 (1981).11 We noted probable jurisdiction appeal. 455 987, 102 1609, 71 846 (1982). II 13 protection birds long recognized "a national interest very nearly first magnitude." Missouri v. Holland, 252 416, 435, 40 382, 384, 64 L.Ed. 641 (1920). turn century, Secretaries Agriculture successively charged responsibility preservation, distribution, introduction, restoration game other wild birds." May 25, 1900, 31 187, 701. A series treaties dating back 1916 obligates protect regulation hunting, refuges, habitats.12 providing play central role assuring Nation's continue flourish. 14 absence contrary, unquestionably power condemnation, Paul 371 245, 264, 83 437, 292 (1963); Kohl 91 367, 371-372, 23 449 (1875). conditioned obtaining located.13 concedes governors, various times issue us further easements.14 15 argument 715k-5, once given, will. reads 715k-5 require only also (and successors office) until moment actually acquired. Thus, although asserts terminate remainder.15 takes position will; assigned exhausted." 24. As case involving statutory interpretation, "we again obvious when we note determining scope statute, one look language." Dickerson New Banner Institute, Inc., --- ----, 986, 990, 74 ---- (1983). Transamerica Mortgage Advisors, Inc. Lewis, 444 19, 100 242, 246, 62 146 (1979). "Absent expressed intention ordinarily regarded conclusive." Consumer Product Safety Comm'n GTE Sylvania, 447 102, 108, 2051, 2056, 766 (1980). uncomplicated; shall "unless thereof agency. case, Governors. given.16 17 Before neither nor areas. prerequisite expressly exempted requirement, Nonetheless, followed informal practice agreement acquisition. simply incorporate practice. 107 Cong.Rec. 17171 (1961) (remarks Sen. Magnuson); id., 17172 Hruska). There indication elsewhere already given.17 18 evidence conclude behind part. facilitate making available additional funds. replete references bringing five control. 2187 Merchant Marine Fisheries 87th 1st 14-19, 23-24, 28-31, 33-39 (1961); 705, 545, 1-2 (1961). Obviously, take place overnight; careful planning many anticipated. supra, revocable, engage severely hampered. detailed program estimate needs, setting priorities, allocation funds, negotiations negated instant Governor's decision politics made undesirable. 19 Our conclusion strengthened fact enactment, controversial. It Commerce explanation, see accepted House Representatives explanation discussion, H.R.Conf.Rep. 1184, 21184 discussion came floor, body assured formalize existing gaining acquiring land. unwilling assume Congress, while expressing firm belief so casually undercut plan preservation. Clearly, process. But plans freely indeed end. then up choose how best resources putting effect. 20 intimated might become revocable if delay unreasonably consent, 26; Tr. Oral Arg. 35, reach here. unreasonable delay. Until interfered pursued diligently fluctuated somewhat year year, substantial.18 generally anticipated minimum 25 complete.19 underway span well limits contemplated Congress. 21 next consider legislation, purports easements. raise different concerns, discuss turn. 22 20.1-02-18.1. sets sanction 20.1-02-18.1 failure comply refused. explains represents qualify condition acquisitions." 33; 35. thus provision, permits chooses give future.20 At here status do understand argue imposes retroactive terms, application because nothing limit "final obtained. Moreover, attempt unavailing. ruled above requisite obtained, revoked. 24 20.1-02-18.2. challenge those portions 20.1-02-18.2 description. object, part 20.1-02-18.2(2) easement. ." standard contains clause n. 6, read void clauses even agreed landowner. addressed similar situation Little Lake Misere Co., 412 580, 93 2389, 37 187 (1973). exercised authority Louisiana wildlife refuge. Mineral rights reserved years, extensions conditions. barred reversion mineral effect extended landowners' indefinitely. 26 Applying Clearfield Trust Co. 318 363, 63 573, 87 838 (1943), concluded "is arising bearing heavily regulatory ., choice-of-law task courts." U.S., 592, S.Ct., 2396. key factors "[w]e deal[t] interpretation (a) explicitly authorized, though precisely governed, (b) itself [was] party." Id., 594, 2397. involves rather stake same. choice applicable presents question. borrowed appropriate, "specific aberrant rules standards law." 596, 2398. 27 "plainly States," 597, 2399, refused equally said: 28 "To abrogation explicit deal serious blow congressional scheme programs. programs scope. They anticipate acute active bargaining officials possible appropriations. Certainty finality indispensable transaction, especially critical when, here, carrying mandate irrevocably commit scarce funds." 29 previously-given consents.21 regulations deems wildlife, 715e, include outside Kleppe Mexico, 426 529, 546, 96 2285, 2295, 49 34 (1976); Camfield 167 518, 525-526, 864, 867, 42 260 (1897). respond inherently fluctuating nature chosen imposing described itself. willing abrogated law.22 30 3. 47-05-02.1. Much persuades nonappurtenant Act.23 commitment cease passed. incorporated 80 1916, less before. ensure essential remain protected, adopted permanent whenever possible. Permanent 1977,24 apparently difficulty negotiating landowners. automatic termination make impossible "[c]ertainty finality" "critical Misere, 2399. 596; Albrecht, 496 906, (CA8 1974). III 32 held required, extent, affirm below. 33 ordered. O'CONNOR, REHNQUIST joins, concurring dissenting 35 I agree disagree holding reasonable matter remand allow lower courts opportunity determine Government delayed remand, believe decides another properly dissent 36 brief, "Congress assumed able rely continued effectiveness—at least amount consents." Appellee (emphasis added).1 concession point reflects position, correct my view, intend consents, never withdrawn failed time. virtually concerning meaningful right control light unquestioned condemnation procedures.2 (1963). surely bind forever act them. irrevocable frustrate legitimate just wildfowl. Therefore, taken finds unnecessary decide lapse concludes elapsed case. bases factual statements indicating complete." Ante, 315 (footnote omitted). correctly points appear Report hearings amendment show adding complete objectives regardless duration. merely assumes estimated completing "reasonable time" purposes acted reasonably exercising either addition support Court's point. 38 acknowledges involved ceased result issue. not, "reasonable" law, below 39 Second, argues resolves fails clear [that] entire parcels. descriptions much larger parcels change acquired." 311-312, 14. raised complaint filed stated date 764,522 acres. 31. claim repeated answers interrogatories. 49. challenged claim, stipulated evidentiary material resolve cross-motions necessity for, revocability of, 71-73. Indeed, revoked, themselves legally inadequate 71-72. exhaustion below, 41 enable am unable join entirety. 5(a) Improvements 95-616, 92 3113, minor changes quoted text. sense language, altered. 715d (1976 ed., Supp. V). authorization loan increased $200 2(a) Extension 90 189, 715k-3. relevant part: "Provided further, That moneys agency." 813, 715k-5. proviso "shall law" sanctuaries. latter legislature; former "appropriate glaciers retreated Plains end last ice age, left wake thousands shallow depressions. depressions, prairie potholes, excellent ducks. 906 1974), characteristics region advantages ducks: "Each square mile dotted 70 potholes feet deep. [On types land] usually retain July August, therefore, environment aquatic invertebrates plants, basic foods adult ducks offspring. Essential maintenance availability numerous during drier summer months. On hand, too lake deeper waters, proper habitat species rear young. Also, young, prefer isolated pothole, share large lake." 908-909. Kantrud Stewart, Use Natural Basin Breeding Waterfowl J. Management 243 (1977); Prairie Potholes: Draining Duck Hatchery, National (Oct.-Nov. 1981) 6. written prepared Service. Each covered separate substantially follows: "I, ______, accordance provisions October hereby grant America lands Area ______ wetlands." 55. Some forms signed Game Commissioner representative 4-5, 47. typical contained parcel imposed "now recurrence natural man-made causes," including "any enlargements said resulting normal abnormal water." prohibit owner draining, filling, leveling burning farming activities "are dry causes." 14-16; 6a-7a. (Supp.1981), provides: "Federal acquisitions—Submission commissioners, public comment, required. governor, fish commissioner, designees, responsible department interior, bureaus agencies, refuges counties board's recommendations. An affirmative recommendation acquisitions, transfer lease, servitude. "The affected, designee designees board, shall, twenty-one days receipt proposal, physically inspect notice date, hour, where comment published week two weeks official newspaper substance action, recommendations sixty proposal. "A included proposal commissioner consideration include, to, recreational impacts. agent affected fiscal, social, agricultural impacts interior reimburse expenses incurred preparing analysis. analyses forwarded aid coordinator office furnish copies interested agencies political subdivisions, subdivisions thirty review return comments office. Upon expiration thirty-day period, received approval. may, comments, file approval." "Negotiation leases, servitudes purposes. servitude [16 718d] may: "1. Negotiate sought. "2. Restrict sought, "Failure nullify section 20.1-02-18." enacted, death ownership. 463. repealed 1, 654. "Regulations governing servitudes, real property.—Real property property, binding section. printed document agreement. ". servitude, restriction specifically out, regulated ninety-nine years." 1981, pending Appeals, forbidding reservation, suspending fund. 654, 20.1-02-18.3 (Supp.1981). F.2d, 916. "[t]o encumber habitat." 918. Convention Protection Birds, States-Great Britain, 1702, T.S. 628 (1916); Birds Mammals, States-Mexico, 50 1311, 912 (1936); Danger Extinction, Their Environment, States-Japan, U.S.T. 3331, T.I.A.S. 7990 (1972); Concerning States-Union Soviet Socialist Republics, 4647, 9073 (1976). Habitat mandated Union, Art. IV, U.S.T., 4653-4654, Japan, VI, 3335. confusion 11a; 916, parties 11. "without 715-715k 715n-715r. requirement—codified 715k-5—as reading concluded, incorrect. codifiers Code chose midst provisions, choice, "made codifier should weight." Welden, 377 95, 99, 84 1082, 1085, 152 (1964). "requirements Act," 718d(c), advances preliminary arguments find unpersuasive. invalid, specify parcel-by-parcel necessary, tells "as involved." Magnuson). county-by-county Link satisfied standard. both "nature involved," i.e., county. valid, exhausted 1977. stems located, apply. counted toward 4.8 acres, far authorized. conceded ("The 4,788,300 ."). clear, authorize "acres supra. took 72. oral argument, informed formally he intends formality holds revocation 28. Cf. Unzeuta, 281 138, 142-143, 284, 285, 761 (1930) (State exercise States). arise debates, Senate's brief suggests expected effective Senator Magnuson commented "conceive joint everyone else Hruska, member confirmed Commission "[t]here processed makes possible." Senators Hruska envisioned sequence events occurred here: develop general submitted approval, approval—over course be. Dep't Interior, Annual Reports Lands Control (1974-1977) (Table Areas); Bureau Sport (1961-1973) Areas). 2182, (1958); H.R. 12006 Fisheries, (1958) (statement Rep. Reuss); (testimony Ross Leffler, Assistant Wildlife, Interior); Daniel H. Janzen, Director Sports 47 Metcalf); 85 (comments O'CONNOR unpersuasive, initial Post, explained page 13, Compare Williams, 302 46, 50, 58 81, 83, 82 (1937) (federal requiring parental minor's enlistment, confer consent), with, James Dravo Contracting 134, 146-147, 208, 214, 155 (Art. I, 8, cl. 17, Constitution, assumption consent). concerns future. 20, Burnison, 339 87, 503, 94 675 (1950), relies, contrary. traditional testamentary gifts States. "affect eminent domain face prohibitory state." 93, 14, 507, 14; Fox, 315, 320, 192 (1876). applies response dissatisfaction Legislative Council (November 1976), reprinted 22, 39. 99-year only, nn. 21, 27; Transcript 41. reference Magnuson, who

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