Document: 482 U.S. 193 107 S.Ct. 2318 96 L.Ed.2d 162 UTAH DIVISION OF STATE LANDS, Petitionerv.UNITED STATES et al. No. 85-1772. Argued March 23, 1987. Decided June 8, Syllabus After the Federal Government, in 1976, issued oil and gas leases for lands underlying Utah Lake, a navigable body of water located Utah, State brought suit District Court injunctive relief declaratory judgment that it, rather than United States, had title to lakebed under equal footing doctrine. Under doctrine, States holds waters Territories trust future and, absent prior conveyance by Government third parties, acquires such upon entering Union on an "equal footing" with original 13 States. The Enabling Act 1894 provided was be so admitted. answered remained federal ownership operation Geological Survey official's selection lake as reservoir site 1889 pursuant 1888 all which might selected were reserved property not subject entry, settlement, or occupation. Although repealed 1890, 1890 "reservoir sites heretofore shall remain segregated from entry settlement [the Act]." granted summary Appeals affirmed. Held: Title Lake's bed passed doctrine Utah's admission Union. Pp. 200-209. (a) Even assuming, arguendo, reservation lakebed—as opposed party—could defeat claim accomplished facts here. There is strong presumption against finding congressional intent State's title, light longstanding policy Government's holding land ultimate benefit exceptional circumstances, entitlement could inferred mere act itself. would merely required establish Congress clearly intended include within reservation, but additionally have affirmatively land. 200-202. (b) fails make sufficiently plain Lake reservation. Act's language did necessarily refer waters, already exempt sale, occupation general laws. Moreover, concerns motivated enact statute—concerns homesteaders' possible monopolization speculation arid suitable irrigation works—had nothing do beds waters. no merit contention that, view remarks made reserving Congress' enactment ratified Survey's lakebed. references "segregation" lakebed, placed proper context, segregation adjacent lake. neither nor legislative history supports conclusion ratify 202-207. (c) assuming intend reserve either Act, express intention into statehood. structure strongly suggest intent. transfer prevent subsequently developing reclamation project at any event. broad sweep practical effect public West cannot reconciled States' 208-209. 780 F.2d 1515 (CA10 1985), reversed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., BLACKMUN, POWELL, SCALIA, JJ., joined. WHITE, filed dissenting opinion, BRENNAN, MARSHALL, STEVENS, joined, post, p. 209. Dallin W. Jensen, Salt City, petitioner. Edwin S. Kneedler, Washington, D.C., respondents. Justice O'CONNOR Court. 1 issue this case whether 1896. 2 * A. 3 deeply rooted history, application requires understanding its origins. English common law Crown held sovereign Because important sovereign's ability control navigation, fishing, other commercial activity rivers lakes, considered essential attribute sovereignty. therefore vested whole people. See Shively v. Bowlby, 152 1, 11-14, 14 548, 551-553, 38 L.Ed. 331 (1894). When Colonies became independent Great Britain, they claimed their boundaries successors Crown. Id., 15, S.Ct., 553. admitted enter too hold Pollard's Lessee Hagan, How. 212, 11 565 (1845). 4 In announced principle "in trust" created, dicta even suggested absolutely prohibited taking steps passing underneath 230. Half century later, however, disavowed Lessee, power, Property Clause, convey parties: 5 "By Constitution, now well settled, having rightfully acquired Territories, being only government can impose laws them, entire dominion sovereignty, national municipal, state, over long territorial condition. . 6 "We doubt, therefore, has power grants below high mark Territory whenever it becomes necessary order perform international obligations, improvement promotion convenience commerce foreign nations among several carry out purposes appropriate objects Territory." U.S., 48, 566. 7 Thus, prospective prestatehood private party purpose Territory. further noted, never undertaken dispose Ibid. From this, (although constitutional obligation) grant away some duty exigency." 50, 8 principles articulated been applied number times each we consistently acknowledged most unusual circumstances. recognition policy, lightly infer waters: 9 "[T]he early adopted constantly adhered regarding territory, while sole dominion, refrained making disposal thereof, save instances when impelled particular disposals exigency. It follows during period are inferred, should regarded unless definitely declared otherwise very plain." Holt Bank, 270 49, 55, 46 197, 199, 70 465 (1926). 10 We stated "[a] court deciding question must begin plain, rendered clear especial words, confirmed terms embraces stream." Montana 450 544, 552, 101 1245, 1251, 67 493 (1981) (internal quotations omitted; citations omitted). Indeed, single case—Choctaw Nation Oklahoma, 397 620, 90 1328, 25 615 (1970)—have concluded party. Choctaw Nation, moreover, rested behind Indian treaties case, indispensable promise Tribe part become State. supra, 555, n. 5, 1253, 5. thus literally "singular exception," result depended "on peculiar circumstances." B freshwater covering 150 square miles. drained Jordan River, flows northward empties Lake. Several years before Union, "[t]he opening homesteading raised specter settlers more works, impeding efforts." California 438 645, 659, 98 2985, 2993, 57 1018 (1978). response, Sundry Appropriations 1888, Stat. 505 (1888 Act), authorized select "sites reservoirs hydraulic works storage utilization prevention floods overflows." 526. selected: 12 "[A]ll may hereafter designated reservoirs, ditches canals susceptible time henceforth hereby sale after passage act, until law." 527. On April 6, 1889, Major John Wesley Powell, Director Survey, submitted report Secretary Interior stating "site County site, together situate two statute miles border said water." App. 19. Commissioner General Land Office informed City "the Lake" "a site" instructed "to refuse entries filing designated, accordance [Sundry Appropriations] October 2, 1888." Letter Apr. 11, 21. official reports Congress. "may" settlement. 2993. Therefore, 1890—in response perfect storm indignation people West," ibid. (quoting 29 Cong.Rec. 1955 (1897) (statement Cong. McRae))—Congress ch. 837, 26 371 (1890 Act). repealing "that 391. Six January 4, 1896, entered July 16, 1894, States." 28 107. 15 Bureau Management Department Viewing violation rights seeking also sought injunction interference alleged management rights. complaint, virtue owner turn, Powell's 1889. 624 F.Supp. 622 (1983). found withdrawal defeated Tenth Circuit (1985). certiorari, 479 881, 268, 93 245 (1986), reverse. II 16 contends party, land, always spoken "conveyance" statehood, decided Shively, limitation right "public purpos[e] hold[s] Court's view, arose Clause provides: 17 "The Power needful Rules Regulations respecting belonging ." Const., Art. IV, § 3, cl. 2. 18 plenary regulate assuredly acquire aid powers conferred Constitution. create granting entity, accomplish same means keep control. need decide today, because if claim, these facts. 19 arguably there Constitution defeating own use, title. Bank observed "early adhered" "for 199; 49-50, 566-567. Congress, will instances," faced conveyance, simply "unless 199. 20 intends necessity reserves purpose, remains control, still passes State, develop, use purposes. Arizona California, 373 546, 597-598, 83 1468, 1496-1497, 542 (1963). example, reservoir, let obtain Such unusual. (1981), permit take river though midst Reservation, wholly Reservation. 21 Given Assuming, effective overcome state reservation; III 22 conclude "reserved words lakes As recognized 566, "Congress of" Mann Tacoma Co., 153 273, 284, 820, 822, 714 (1894) (applying legislation respect does extend tide lands"); Illinois Central R. Co. Illinois, 146 387, 437, 110, 112, 36 (1892) (holding sovereignty applies, obtains borders sea"). little served see P. Gates, History Public Law Development 641 (1968), lakes. 23 reach available manifest proviso: 24 "Provided, That President his discretion proclamation open portion provision homestead laws." This proviso find inconceivable simple abandon long-held unyielding permitting interpreted first instance. rely solely Act. points specifically 1888] argues, 27 At examination, statements seem support argument. Annual Report (1891), transmitted individual sent examine "with reference capacity site," he "furnish specifications law, far covered overflowed bordering lands." 25. Furthermore, Eleventh reported segregation" "was lowlands up mean 29. context. A longer E. Baynard, Procedure 5.32, 174 (1986). "segregated" adoption surveyed between 1856 1878, established "meander line"—the high-water elevation—segregating settlement.* Record, Doc. F; Management, Manual Instructions Lands 3-115, (1973) ("All bodies elevation"). Reports best understood reporting which, Report, announcement "includ[ed] water" our increase statement taken included Similarly, Report's employee furnish "so [Utah Lake] lands," id., (emphasis supplied), consistent withdraw those i.e., "still 1.1, ("Most enduringly, defined laws") original). land" think doubtful informing record reflects concern Lake; then letter announcing discuss Instead, "further adjoining tendency Act] obstruct natural reservoir," 20, "speedy action" avoid Powell recommended Register within" local office Interior. demonstration best, scattered material presents unambiguous evidence Members actually pointing reserved: 30 "[R]eservoir law. 31 sum, ratifying ignoring precedents, conclude, " 'definitely plain' 1251 199). IV 32 intention. face, purport reserved. provides sale" "shall occupation"; makes mention See, e.g., 283 423, 451-452, 457, 51 522, 524-525, 527, 75 1154 (1931) construct dam irrigating lands). 33 Finally, noted above, "had settlement." instances" "international exigency," western action odds 34 declare Accordingly, statehood 35 Reversed. whom STEVENS join, dissenting. 37 presented unto Contrary I am confident new itself plainly expressed exercise Aug. 30, 371, 390-392 source power. ante, 200—201. (1894), stated: doubt (Emphasis added.) 39 development surely reason distinguish purpose. petitioner's position, distinction, readily constitutionally permissible conveyance. submerged retain status. 195—196. And later determines needed 40 Pursuant Oct. 505, 526-527 famed explorer, scientist, (USGS), set identify sites.1 By Ante, 19.2 thereafter USGS, formally Act.3 USGS 1888-1889, Part II—Irrigation, fiscal year ending "In April, Mr. Newell certain examinations 88; added). difficult imagine clearer Lake.4 director agency charged implementing unquestionably authorize His contemporaneous construction entitled considerable deference. Udall Tallman, 380 85 792, 801, 616 (1965). argument advanced majority position 203-204, singularly unpersuasive basis rejecting USGS's interpretation. 41 including bed, Any about scope put rest ratification. like manner date location thereof." "broad Act," 208, irrelevant since pertinent statute, limited scope, USGS. 42 Subsequent 1889-1890, H.R.Exec.Doc. 51st Cong., 2d Sess., pt. (1890), report, elaborated work described unassailable clarity: 43 addition reconnaissance facilities headwaters Sevier River streams, careful survey survey, run level transit around lake, determining area damming back flood water. description physical features head Hydrography, suffice here study account excessive evaporation enormous surface, large economical reservoir. hand, advisable point above average height, yet sufficient show forces raise abnormal proportions backing great fringing marshes east south. being, ground line. segregation, shown Pl. XCV given following lists, 183-184; 28-29 44 followed designation enumeration sections, half-sections, quarter-sections, concluding: "Total segregated, 125,440 acres." 184-189; 29-38. indisputably it.5 45 months receiving affirmed Mar. 1891, 17, 1101, provided, inter alia, Acts restricted contain much maintenance reservoirs." 1891 reflected extent reservations, declined disturb status Feb. 26, 1897, 599, U.S.C. 664, canals, rules prescribed once again reservations themselves. majority's skewed interpretation statutes administrative appears unsupportable assumption ratification developed lowered beneath shoreline reduce surface minimize amount lost evaporation. F.H. Senate Special Committee Irrigation Reclamation Arid August hearing examination Lake: 47 "At thought get water, full functions drawing down shore lines, raising them. area. proportion out." S.Rep. 928, 1st 61 (1890).6 48 anticipate proposed, exposed presumably develop saw fit. incompatible flooding, impounded inundating settlements potentially subjecting claims compensation. 49 pay compensation nonfederal constructed dams, dikes, works. relies (1963), proposition "even purposes." 202. But concerned Colorado forests recreational wildlife areas, structures lands. Water earlier (1931), event." 208. one expressly "improving navigation regulating flow river" navigational servitude. 455-456, 526-527. purposes: "Since authority build valid Constitutional improve occasion specified without payment question, claims. refusal acknowledge effectuate quite strange. 50 "terms [lake]," "definitely declared" 1251. dissent. dissent misconstrues regard 1878. Post, 214, Our meander line "boundary" citizens, settled who occupied receded. resolution issues complex, depending measure specific survey. J, (Department Memorandum discussing exposure contained patents 1888); Poynter Chipman, 442, 690 (1893) (case involving Lake); Knudsen Omanson, 124, 250 (same); Hinckley Peay, 21, 60 1012 (1900) (same). matters. simpler one—that accordingly, familiar many leading proponent essentially science irrigation. Darrah, 299-314 (1951). Region More Detailed Account 73, 45th Sess. (1878), seminal evolution policy. 645 (1968). Senate, request, Rec. 2428-2429 (1888), appropriation "investigate practicability constructing region States," related May proposed appropriations bill incorporated, changes here, H.R. Exec. pp. 8-14 (1890). fact "did 206—207. true word "bed" brief letter, denoted Lake." impending necessitated expeditious action, forever unnecessary supervision Monday December year, showing detail how [money appropriated reservoirs] expended, used actual engineer field locating reservoires [sic] itemized expenditures appropriation." clear, alights phrase phrase, according majority, "lands 206. interpretive approach inconsistent recent Amoco Production Gambell, 480 531, 549, 1396, 1406, 94 (1987), where "reject[ed] assertion 'public lands,' itself, precise meaning, definitional section context statute." lands" 633, 1335, (1970), just efforts interpret otherwise, 204-207, unpersuasive. Its 1878 based affidavit states completed except three small segments approximating total ten shoreland 1910," F, 1973 explains agency's current practice elevation. documents deduce line, relationship legal significance None matters apparent Among complexities ignored analysis fluctuating "mean" annual mean: "Practically inland pass through cycle changes, extremes reliable indication elevation water's various stages, generally marked soil. "Mean margin greater year." 3-116, 94-95 (1973). Mean Manual, variation year. states: "When progresses it. Lane 274 Fed. 290 ( [5th Cir.] 1921)." 94. Twelfth II-Irrigation, 52d 335 (1892), varied greatly years, extreme range country feet." lies shallow basin, fluctuation results substantial area, advancing retreating strip width." 336. 1884 drought period, receded exposing dry 336-337. Nothing documented run, advised lake," 206, lay correct, information less obvious. newly "of value dwelling shores arable pasture fully utilized. addressed 19, Lands. Chairman Committee, Senator Stewart, engaged exchange Master City: "Mr. Wilcken. [T]hey [Utah] store County. going rapidly 1884; crowded moment commenced thereby causing rise, cry. Chairman. Within last apart; disposition crowd settle up? Of course, entered; perfected titles know." unfortunately rejects obvious meaning fraught uncertainty, assume so. opportunity disavows rights, 205, n., unfortunate unsolicited spawns litigation concerning Report. reiterated shoreline: [T]he efficiency increased reduced half present extent; doing scarcity, reaches instead evaporation, retained cover one-half come precipitation cause proportional takes place, thrown smaller able escape slowly encroach surrounding "Thus, maximum scarcity better small, care floods, happen intervals five has, what highest consideration contour feet low-water 1879." 339.

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