Document: 373 U.S. 546 83 S.Ct. 1468 10 L.Ed.2d 542 STATE OF ARIZONA, Plaintiff,v.STATE CALIFORNIA et al. No. 8, Original. Reargued Nov. 13 and 14, 1962. Decided June 3, 1963. [Syllabus from pages 546-549 intentionally omitted] Mark Wilmer, Phoenix, Ariz., for complainant. Northcutt Ely, Washington, D.C., defendant State of California. R. P. Parry, Twin Falls, Idaho, intervener Nevada. Sol. Gen. Archibald Cox United States. Mr. Justice Black delivered the opinion Court. 1 In 1952 Arizona invoked original jurisdiction this Court1 by filing a complaint against California seven its public agencies.2 Later, Nevada, New Mexico, Utah, States were added as parties either voluntarily or on motion.3 The basic controversy in case is over how much water each has legal right to use out waters Colorado River tributaries. After preliminary pleadings, we referred George I. Haight, Esquire, upon his death 1955 Simon H. Rifkind, Special Master take evidence, find facts, state conclusions law, recommend decree, all 'subject consideration, revision, approval Court.'4 conducted trial lasting 1956, August 28, 1958, during which 340 witnesses heard orally deposition, thousands exhibits received, 25,000 transcript filled. Following many motions, arguments, briefs, 433-page volume reported findings, conclusions, recommended received Court January 16, 1961.5 been extensively briefed here argued twice, first time about 16 hours, second, six. As see case, question State's share tributaries turns meaning scope Boulder Canyon Project Act passed Congress 1928.6 That can be better understood when set background—the gravity Southwest's problems; inability local groups individual deal with these enormous continued failure agree conserve divide waters; ultimate action at request creating great system dams works nationally built, controlled, operated purpose conserving distributing water. 2 itself rises mountains flows generally southwesterly direction 1,300 miles through Colorado, along Arizona-Nevada Arizona-California boundaries, after it passes into Mexico empties Mexican Gulf On way sea receives tributary Wyoming, Arizona. river flow natural basin almost surrounded large mountain ranges drain 242,000 square miles, an area 900 long north south 300 500 wide east west—practically one-twelfth continental excluding Alaska. Much so arid that is, always been, largely dependent managed System make productive inhabitable. refers archaeological evidence 2,000 years ago ancient Hohokam tribe built maintained irrigation canals near what now Arizona, American Indians practicing region white men explored it. second half nineteenth century group people interested California's Imperial Valley conceived plans divert mainstream give life growth parched barren soil valley. most feasible route was corporation formed canal dug partly Difficulties arose because subject sovereignty both countries generated hopes country some day there would wholly within States, all-American canal.7 3 During latter part twentieth centuries, Southwest seek new ways satisfy their needs, increasing rapidly settlers moved fast-developing region. But none more less primitive diversions made conserved enough meet growing needs basin. too erratic, places canyons deep, engineering economic hurdles small farmers, larger groups, even build storage dams, construct canals, install expensive necessary dependable year-round supply. Nor droughts basin's only problem; spring floods due melting snows seasonal storms recurring menace, especially disastrous where, provided supply, threat flood remained least serious before. Another troublesome problem erosion land deposit silt fouled waters, choked works, damaged good farmland crops. 4 It not surprising pressing necessity transform erratic often destructive controlled supply desperately needed began talked recognized far than purely could solved farmer-by-farmer, group-by-group, state-by-state basis, desirable kind solution might have been. inadequacy Report All-American Canal Board Department Interior July 22, 1919, detailed widespread benefits expected construction reservoir Valley.8 Some months later, May 18, 1920, bill offered Congressman Kinkaid Nebraska directing Secretary study report Valley.9 Fall-Davis Report,10 submitted compliance Act, declaring, '(T)he control development resources are peculiarly national problems * *'11 then went reasons why so, concluding statement job big Federal Government do it.12 Quite naturally, therefore, government project but also dam Canyon.13 5 prospect undertake store apparently welcome one brought strong fears northern additional available projects gobbled up perpetuity faster lower areas, particularly California, before upper appropriate they believed fair share. These without foundation, since law prior appropriation prevailed Western States.14 Under who appropriates puts beneficial thereby acquires vested continue quantity claimants junior him point time.15 'First time, right' short hand expression principle. 1922, four Report, Wyoming v. 259 419, 42 552, 66 L.Ed. 999, held doctrine given interstate effect.16 This decision intensified Upper Basin get water.17 view phenomenal growth, had particular reason fear appropriating using would, under application doctrine, 'first time' therefore right.' such limited northernmost apprehensive rapid declaration appropriative claims deprive them just proposed project. seemed keep agreeing any division waters. Hoping prevent 'conflicts' 'expensive litigation' hold tremendous extensive federal river,18 requested 19, 1921, giving consent negotiate enter compact 'equitable apportionment River.'19 6 Pursuant congressional authority, appointed Commissioners who, negotiating year, reached agreement Santa Fe, November 24, 1922. agreement, known Compact,20 failed fulfill hope themselves able accomplish Compact adopt compromise suggestion Commerce Herbert Hoover, specially designated representative.21 divides entire two parts, Lower Basin, separated Lee Ferry. (A map showing basins other points interest printed Appendix facing p. 602.) Article III (a) apportions 7,500,000 acre-feet water22 year System, defined II 'the America.' addition, (b) gives increase consumptive use23 million per annum.' (c) provides future rights shall supplied surplus above aggregate quantities specified (b), if deficiency borne equally basins. (d) requires deplete Ferry below 75,000,000 consecutive years. (f) (g) provide further 'Colorado System' October 1, While allocations quieted rivalries between Basins, major differences continued. Failure determine left Nevada protection menace herself lion's allotted Basin. Moreover, her Gila, intensely resented Compact's inclusion allocation scheme bitterly hostile having tributaries, again forced contribute burden. Largely reasons, alone, basins, refused ratify Compact.24 7 Seeking means permit ratification Governors those met Denver 1925 1927. result meetings suggested, among average annual delivery required Compact—7,500,000 acre-feet—Nevada 300,000 acre-feet, 3,000,000, 4,200,000, unapportioned reapportionment 1963, shared Each exclusive boundaries same empty main stream,' except excess 1,000,000 circumstances diminution treaty Mexico. proposal foundered 4,600,000 instead 4,200,00025 complete exemption burden.26 8 Between 1922 1927 Philip Swing Senator Hiram Johnson, three attempts Swing-Johnson bills enacted, authorizing canyon section canal.27 carried Report's recommendations treated national, local. Arizona's Senators Congressmen, still insisting definite guaranty mainstream, fought proposals own 9 Finally, fourth Houses became December 21, 1928, 45 Stat. 1057. authorized construct, operate, maintain order floods, improve navigation, regulate river's flow, distribute reclamation uses, generate electrical power.28 defeated measures, significant respects strikingly different. earlier no method whatever apportioning finally did method, and, it, chosen statutory intended put end long-standing dispute To protect should refuse Compact,29 § 4(a) that, fewer ratified six months, effect unless including legislature, agreed 'irrevocably unconditionally express covenant' limit consumption 'four hundred thousand apportioned paragraph compact, plus one-half said compact.' showed continuing desire settle 2,800,000 Compact. permitted allow Gila River, free obligation, position taken beginning. Sections 8(b) provisions sale stored 'under general regulations he may prescribe, contract thereof upon, domestic uses *.' Section contracts 'for permanent service' provided, 'No person entitled aforesaid herein stated.' Secretary's dividing them, approved 1929, date contracts, any, hereof Congress.' effective 25, Presidential Proclamation,30 legislature accepted limitation 4,400,000 acre-feet31 Act. Neither nor ever entered §§ 8(b). Dam Interior, purporting act authority various users 5,362,000 Lake Mead. 11 found Compact, appropriation, equitable apportionment—by absence statute resolves according equities—do issues case. concluded allocate 8(b), 4(a), 5, effected which, Master, event shortage making impossible burden must proportion allocated 4.4/7.5 2.8/7.5 .3/7.5 regard appropriation. 12 support few exceptions analysis, Master's report. leave created comprehensive however, believes formula established fact thinks invalidated requiring deduct Mead reduce lake. disagreement Report. She argues like deals mainstream. mean flowing charged apportionments computing greater likelihood surplus, gets one-half. argument neither allocates allocation. Rather takes judicial full traditional western does shortage. circumstances, she says, argues, protecting uses. 14 Our entertain suit challenged well Art. III, 2, Constitution actions parties. exercising jurisdiction, mindful Court's expressed preference where possible, controversies 'mutual accommodation agreement.'32 Those cases others33 clear, responsibility adjudicate actual existing streams recent phase despite repeated efforts unable settle. Resolution determination apportionment, powers conferred Interior. Unless presented adjudicated, conflicting will continue, now, raise doubts extent situation exercise our jurisdiction. 15 ALLOCATION WATER AMONG THE STATES AND DISTRIBUTION TO USERS. We concluded, stated, passing create Basin's leaving decided Nevada; surplus. Prior tri-state incorporate terms. subsequent approval, different Division not, depend States' gave adequate division. power providing contract. 17 A. Relevancy Judicial Apportionment Compact.—We true used decide States.34 apportionment. allocating Where exercised constitutional courts substitute notions apportionment' Congress. Nothing purports affect distribution State. 'Hoover Compromise.' 18 'Participants (in negotiations) stated negotiations broken Hoover's proposal: Commission basin, internal share.'35 19 And did. However, referring several places, relevant extent. begain with, explicitly approves fixes respected. Further, terms contained For example, adopts definition 'domestic,'36 satisfaction 'present perfected rights' Compact.37 Obviously, terms, though originally formulated incorporated applicable Act's declares construction, operation, maintenance Compact.38 references quite adoption Such references, unlike explicit show upset, alter, congressionally divisions They Therefore, look specifically resolve disputes involved questions here. contracts. determination, alone. 20 B. Mainstream Apportionment.—The cannot knowing wanted apportioned. view, reject, water, 4,400,000, agree, included divided remain Assuming acrefeet 2,000,000 less.39 21 rests limits 'of III(a), annum 'from System,' 'that portion america.' 22 need reach question, dealt place, states limitation, reality 'water River', System.' importantly, debates leading passage clearly language meant refer only. Inclusion feeling obligation deliver impose. came important tributary, logically included, alone effectively river.40 minor exceptions, counter years, culminating consistently only, reserving use. 23 basis took place effort work acceptable proposals,41 suggested remaining 3,600,000 rejected equal suggesting figures getting 7,500,000. trying bring together, asked demands compromise: 4,200,000.42 come Governors, Lees Ferry, Compact.' Governors' suggestions, reserved proposal, clear exempted obligation.43 whole or, compact.'44 offers, suggestions responses tributaries—ever allocations; rather, say, 24 With accord, mounting impetus solution. A containing House 1928 objections Representatives Utah.45 When Senate, amended committee unallocated, excess, and/or *.'46 floor, Phipps amendment go Compact; Legislature become effective.47 Hayden already reducing 4,200,000 (the proposal), obligation,48 Senate rejected.49 Bratton noting 400,000 kept apart, immediately split difference, compact,' surplus.50 passed,51 floor 'by compact.'52 25 Statements throughout allocating, expressly acknowledged starting debate specific arizona, spokesman Hayden, 'a discussion.'53 observe Committee sought Denver.54 Nevada's Pittman 'put amount demanded governors Denver,' separating figure Committee's figure.55 All leaders debate—Johnson, Bratton, King, Phipps, Pittman—expressed common understanding key issue difference acre-feet,56 precisely Denver. Were sustain actually willing 26 strongly indicated analysis There interpretation exhaust Utah knew, interests surely protected believe belonging five representatives sat quietly acquiesced attempt include 27 considering claim beginning discussions led claimed sole economy depended.57 supported close reduced virtually trickle hot summers Colorado. tributaries—or tributary—were excluded making. response correct stating seen fit addition Gila.58 Johnson '(i)t stream, recall, discussed,' arguments favor receiving rather going her.59 bear erroneously estimated 3,500,000 acre-feet.60 Pittman, conference, likewise being River.'61 similarly distinguished tributaries.62 debates, extending period undoubtedly contain statements inferences conflict drawn, persuaded legislative history 28 C. Distribution Scheme. history, convince us 29 First, history. hearings Arentz impatient delay project, told 6, 'there say 'You balance States."63 bill,64 scheme. December, pressure mounted swiftly amendments workable session convened fifth bill,65 nine days later Senate,66 concurred Senate's action,67 twenty-first President signed bill.68 provision, committee, limiting acre-feet,69 4,200,000.70 next day, 7, senior vigorously matter delay. He said, 30 'What difficulty? practically nothing increased impounded behind dam; all. Of let down gotten together acre-feet. got together.'71 31 Mexico's splitting acre-feet.72 tenth, reflecting prevailing sense urgency decisive action, emphasized simply States: 32 'The exchanged views, negotiated, endeavored until so. affects Union well. 33 'Without undertaking my views subject, I think we, disinterested friendly agency, pass combined judgment, justly equitably controversy. view. belief somewhere fix amount, allowed bar preclude measure dealing 15,000,000 involving Government.'73 34 very 11, crucial adopted,74 twelfth pointed settled Arizona: 35 'One (dispute) vote—that follows demand conceded, everybody agrees, remainder settles controversy.'75 36 intimately familiar problem,76 summed fixed 'practically allocated' water: 37 determined How? use, rest admitted insignificant quantity, leaves stands mentioned amounts get. 38 'As understand amendment, to-day River.'77 39 explain plan 40 'Why river? happens duty matter, reason.'78 41 Not closing machinery plainly purpose, contingencies occur. alternative scheme, invited identical lines Act: division, sure, objects out, proceed, apportion 'construct, incidental capacity twenty *' 'controlling improving navigation regulating lands *,' generating power. replace undependable, regular, release Having undertaken Congress, save strict emphasize obtained declared, supremacy while 5' compact. 43 provisions, persuasive carry makes normally includes choose whom made. grants contract, placed it.79 respect version appropriators.'80 restriction, preserved survive. stricken requirement every user 5.81 Significantly, phrase provision indicating substituted fetter discretion, done unequivocal recognizing 6. 44 sufficient colloquy Montana's Walsh whose bind laws. Walsh, thoroughly versed previously appropriation,82 follow Government's impounding 'I stores superior appropriations store.' Johnson's City Los Angeles, filed reply Walsh's whether 'dispose sees fit.' said,'Yes; bill.' 'everything plan, design' 'dependent contracting obtain benefit possible 'utterly ignore' Angeles' appropriations.83 discussion, users. arguing appropriations, corrected him, pointing qualified saying 'after all, city Angeles contract.' conflicted, naturally applicants, desires potable purposes another irrigation, around, preference.'84 vigorous opponents bill, Representative Douglas Utah's Colton, criticized 'absolute control' disposition waters.85 46 delegated overlooks channeled standards particular, bound necessarily 3,100,000 access River. position, conceivable exceed course, thought proper advance adopting into, followed guidelines limitations reservoir: 47 'First, regulation, improvement control; present pursuance VIII compact; third, power.' 48 revenue ensure recovery expenses 50 construction. 4(b). directed 'permanent service.' 5. permittees, licensees, contractees 8(a), upset encroach Basins. management otherwise provides. 14. One rights, intense importance effective. And, granted well-established executive department, responsible review.86 49 Notwithstanding ownership, vast broad away permitting states: 'Nothing construed interfering borders policies enact laws deem control, 51 supplement, govern Reclamation affecting 'relating *.'87 decision, earlier, contrary conclusion, choosing settling sections law. 52 priorities laid disposed Ivanhoe Irr. Dist. McCracken, 357 275, 78 ,S.Ct. 1174, 1313 (1958), reaffirmed Fresno 372 627, 996 (1963). override prohibiting single landowner 160 acres. said: 53 read merely comply when, operation becomes acquire therein. acquisition confused projects. supra, 325 page 615, 65 1349: 'We suggest regulation inconsistent system.' compels conditions imposed State.' Id., 291—292, 1183—1184. 54 Since disposing cannot, Ivanhoe, 55 require navigable generation, objects,88 sustained promote welfare reclamation, improvements.89 preserves 'now' have, passed. passed, develop river.90 Government, here, orderly room laws.91 preserving saving nullify 5.92 allows things river, rights.93 What occasion arises. users, place.94 56 Before numbered millions flowed haltingly freely, resulting floods. caused proved immense solutions costly together. settlement, health stake, responded pleas aid. harnessing bountiful cities, expanding industries, dry deserts livable productive. 57 ambitious Nation, assumed supervision complex works. Behind thus run waste wreak destruction. regulated systematic promoted spectacular Today, operates network useful Hoover Dam, Davis Parker Headgate Rock Palo Verde Laguna Morelos lesser project's want certain used. vast, interlocking machinery—a dozen delivering home, agricultural, industrial spread miles—could function efficiently unitary management, formulate supervise coordinated account diverse, communities Recognizing this, charge entrusted power, principally direct, manage, coordinate operation. Subjecting varying, possibly inconsistent, commands legislatures frustrate efficient thwart realization bestow. satisfied II. 58 PROVISIONS IN SECRETARY'S CONTRACTS. 59 Diversions Mead.—The diverted respective apportionments. 275-mile stretch Mead95 conclusion based reasoning physical 60 deciding deliveries Mead, for, held, disagree, holding powerless doing dealing, begins damsite, allocation, arrived easily demonstrated. If can, have. 61 Contract.—Nevada excepted Paragraph II(B) (7) 'mainstream pursuant water.' directly contemplates subcontracts Commission, disagrees, contending properly construe otherwise, suggests, (with Secretary) Acceptance contention undermine plain transfer part, contractual diluted manner. reject contention. III. 62 APPORTIONMENT CONTRACTS TIME SHORTAGE. 63 300,000, valid remains declining findings expected, nevertheless proportion: 4.4/7.5; 2.8/7.5; .3/7.5. pro rata sharing shortages seems face,96 considered judgment demonstrate contrary. Certainly formula. considerable shortages. methods devise reasonable own. choice, primarily his, ours. conclude best 64 remembered functions generation electric Requiring prorate strip choice satisfactory impair him. accept principles, guidance, binding stream harnessed, conserved, stored, distributed agency None shortage, proration lay stress priority customs, factors helpful reaching informed harmony Nation. intervene Secretary, deviates follow, At anticipated review. international stream. enlarge wishes. does, hands operate prohibited IV. ARIZONA-NEW MEXICO GILA CONTROVERSY. regulatory principles hearing issue, settlement Part IV(A)(B)(C)(D) decree. No accordingly us. Except discussed V, V. 67 CLAIMS UNITED STATES. 68 proceedings, asserted Indian Reservations, National Forests, Recreational Wildlife Areas claims, declined others, relating approve adjudication, decree decide. discuss behalf Reservations. 69 Reservations River.97 Reservation, located largest. 1865,98 Executive Order.99 Other reservations Orders ranging dates 1870 1907.100 irrigate irrigable portions lands. around 135,000 acres land. Here, reservation State; Orders; intend reserve Reservations; measured reasonably foreseeable living number acres; finally, 70 last answered. resolving An Reservation sometimes manage affairs, convinced treat State, since, governed statutes reservations. 71 federally Pollard's Lessee Hagan, How. 212, 565 (1845), Shively Bowlby, 152 548, 331 (1894). others them101 rise underlying territory acquired trust title automatically admission Union. shores beneath Clause IV, Constitution. doubt clauses property. 72 event, Order. 100 ago, ago. reservations, land, Numerous projects, uniformly universally makers, surveyors, public. shrift late invalid apart Executive.102 73 challenges grounds: first, lack establishing them; awarded contentions. Most arid. had, overstatement Nation unaware desert kind—hot, scorching sands—and essential animals hunted crops raised. delegate Territory statement: 74 'Irrigating prosperity Indians. Without production, life; ask you agricultural implements enable dig irrigating watered fields irrigated, enjoy existence. You subsistence robbery starved food.' Cong. Globe, 38th Cong., 2d Sess. 1321 (1865). 75 implied creation Winters 207 564, 207, 340, 1908. persuade intending livable. arguments. 576, 211: 76 arid, valueless. yet, contended, deliberately government. ceded were, true, arid; urged, cession valueless, 'civilized thereon.' yet realize implications, retention force cession.' 77 fairly useless. recently 1939 Powers, 305 527, 344, 330. created. means, reserved. ruled practicably acreage hand, contends Indians' 'reasonably needs,' fact, How guessed. acreage. acreages reasonable. 79 disagree disputed Fort Mohave Reservation. unnecessary Should arise refusal area, time. 80 principle establishments Recreation Forests. requirements Area, Havasu Refuge, Refuge Forest. 81 consumption, wasted salvage wildlife preserves. Whatever intrinsic merits claim, command returns river. 82 note course VI. DECREE. 84 disagreed ruled. append opinion, parties, wish, submit September form effect, failing prepare Term 85 ordered. 86 CHIEF JUSTICE consideration 87 (For HARLAN, joined DOUGLAS STEWART, 603, 1499.) 88 dissenting DOUGLAS, 1511.) APPENDIX 89 STEWART join, part. 90 dissent holds apportion, times discretion select 'reasonable method' wishes determining (In I—but DOUGLAS—agree join misgivings regarding Reservations.) 91 water-rights cases, modified fortiori, 92 INTRODUCTION. 93 respecting powers, official absolute unrestrained standards, fate substantial segment restraint review are, shown, illusory. Today's result, venture dumbfounded legislation construes, farther minds deeply felt convictions. 94 professes extraordinary delegation fully shown below, pp. 615—621, infra, design resembling extracts Rather, measure, clause condition inserted insistence insure disturb Indeed, third form, principal proponents, Delph Carpenter 95 persons receive relations California.'1 (Emphasis added.) 96 Swing, coauthor explaining Rules Committee: 97 says 5) hereby authorized, Whose water? say. community someone hereafter right, bill; Government. one, adopted (now 14), violence score.'2 98 concedes, indeed face predecessors, 'no Basin.' Ante, 560. concession, think, aspect controversy, ultimately bill.3 Yet discovered ends delegating awesome 'water' destiny attribute startling metamorphosis? fundamental change approach contains (1) conditioning effectiveness seven-state alternatively six-state (2) permission 99 manifest heavily relies, vests grant anyone; ratification, i.e., ceiling, appropriations. source elsewhere. delegates (Mr. Johnson) following proponent, Nevada: 'Mr. JOHNSON. '(W)hat 101 PITTMAN. Exactly, not. 102 Very well, then. 103 104 then.' Cong.Rec. 472. 105 surprised learn Congress' truth throats 106 Even brief summary, casts gravest abolishing effecting will, believe, incorrectness score reveal difficulties inherent uncontrolled conclusions. 107 BACKGROUND BOULDER CANYON PROJECT ACT. 108 disputes. Kansas 206 46, 655, 956. Its acceptability never questioned. Priority determinant enunciated States,4 respected seventh.5 depends appropriator repeatedly declared indispensable West.6 109 backdrop firm dedication critical recognize partial; narrow. inappropriate; inveighed such. this: Interstate priority, unlimited considerations, threatened quick development. doctrines avoid extreme harsh eliminate litigation. 110 perfectly guaranteed immune requirements; interfere Basin.7 something safeguard water.8 Similarly, feared document, appropriate, Basin.9 111 problem, limited. ceiling priorities. Solution narrow abrogation 112 Still another, profoundly significant, factor pervasive hostility westerners rights. Colorado's Carpenter, man testified termed insidious calculated policy fostered Departments Justice, prerogatives supersede Wyoming's Kendrick, deemed oppressive, destructive, deplorable.10 King objection Senate. 10262. legislate pre-emption storm spokesmen benefited insisted compact.11 hardly opponent objected modify infringing sovereignty. 470—471. 113 deep-seated dictation simple (and constitutionally unobjectionable) employed cumbersome authorization negotiation eight bodies thereafter. appear cost delaying overdue conditioned property Attempts Conference called summer 1927—nearly bill.12 114 resigned legislating words suitable water; prescribed write, then, perpetually naming maximum used.' 7250. unwilling directly. exported contract.13 replaced via awkward device precedent all; tale water—the direct abortively mooted 115 bears recapitulation. greatly respected, accepted. Second, applied ones, well-tried principles; imposing Third, exhibited reluctance legislation, deep mistrust intervention profound sovereignty, influential members. defeat chose acted indirectly consumption. 116 inconceivable sweeping exercise—a avid partisans hesitate administrator—be unbridled administrative officer, light complaints registered 'bureaucratic' 'oppressive' interference officer headed.14 utterly incredible concern 117 AUTHORITY SECRETARY UNDER SECTION 118 empowers forbids displaces shortages, 119 award withhold independently reflects intention. financial charges delivery, early bills, 1926 Work project.15 4(b) begin revenues assured contracts.16 120 Thus tool, serve enforcing ratification. urging operating enjoyment dam's provide.17 inserting solely tying enforcement power.18 intent confer withhold. tends stability service. short, disregard inter-basin section; designed enforce limitation.19 121 1926, 'Contracts service appropriators.'20 Proponents altered apply require, permit, service.21 appropriators' deleted.22 concludes bit deletion rejection intention; number, frequent redundant. Here change. dropped added. stood required, appropriators, initiating perfecting deleted longer accord plan. stretching accurate signifies 122 relies exchange Montana. 168. thing comprehensively analyzed relationship First appropriated it; '(i)f contract'; 'as fit'; 'doubt(ed) much' appropriations; 'possibly' ignore shifting dialogue scarcely authoritative, useful, aid statute. 123 warrant reliance Colton Douglas. Objections seldom guides See Schwegmann Bros. Calvert Distillers Corp., 341 384, 394—395, 745, 750—751, 1035, A.L.R.2d 1119. instance consistent views.23 124 significance bill's supporters, confirm Secretary.24 author Hayden's assertion emphatic denial: laws.' Hearings, 32. explained dispose acquiring 604-605, supra. defending witness' reinforced declaring too. Hearings Irrigation H.R. 5773, 70th 1st 57—58. notwithstanding 'still use.' 9781. proponent requirement, California.'25 sponsor 'specifically protects citizens 4292. (prior limitation) use.26 relative resolved accordance normal use.27 125 weight supporting destroy bill. repealed thereafter.28 conviction permissive virtue unamended 126 BEARING OTHER 127 observed. notes, indicate although burdens noted, 606-607, apportionment; authorizes themselves. 128 '* beyond go.' 385. 129 purposes, negative implication drafted relieve below.29 asserted; 1929 ignored awarding subjects benefits, arising accruing States,' conclusion. Legislative silent precedence, entering insuring permanence 5.30 indication evidences awarded, ought destroyed agreement. 130 completely inference displace Enough statute's buttress question. matter. 8(a) 'appropriators' Project, taking steps 'to initiate perfect water' dam, evidence.31 390, U.S.C. 383, directs carrying duties proceed territorial 'shall landowner, appropriator, in, to, thereof.' 131 Both destruction shares water.32 463, 557, untouched Irrig. 291, 1183, 1313, dictum applies 389, 431—that acres—prevails 8.33 conclusion: 132 '(w)ithout coverage delicate federal-state field U.S., 292, 1184. 133 reference today. background answer. 134 LACK STANDARDS DEFINING LIMITS POWER. 135 holds, 4(a). surprise 136 prejudice contentions (5) exist 137 quantum intentional inadvertent, made, perhaps litigation: States? decided; initial make. 138 yardsticks follow? rights,' approximately 3,000,000 annually. This, assuming California: (plus surplus) described 139 outer limits? defining nothing.34 words, gift 1,500,000 pleases preventing fulfillment commitments. 140 raises, least, doubts. Schechter Poultry Corp. 295 495, 837, 1570, A.L.R. 947; Panama Refining Co. Ryan, 293 388, 241, 446; cf. Youngstown Sheet & Tube Sawyer, 343 579, 587—589, 863, 866—867, 1153, 1378. serves primary vital separation Constitution.35 insures decisions society body people. prevents becoming judge challenged. 141 instructive illustration points. political highest order. pressures doubtless disturbing contemplate. Furthermore, decides do, actions, know actions. 142 lead invalid. conviction, firmly grounded matters developed 143 respectfully 144 dissenting. 145 haunted irrelevancies. leads indirectly. seeks determines 146 irrelevancy 1/2% drainage 90% return. 589, 1332, 1815, problem. litigation concerning irrelevant justiciable involves concerns satisfied—a differently 147 mood suggests multipurpose controls unique feature 148 regime systems West. Heretofore regimes posited theory allotment coming fed dams. 149 written lawmaking; scholar knows judges interstitially, paraphrase Cardozo. Selected Writings (1947 Hall ed.), 160. marked baldest modern spin philosophy fabric derogation legislature. HARLAN shows, bureaucracy wanted, grant, recognize. rulings heretofore nonnavigable (Ickes Fox, 82, 94—96, 412, 416—417, 525) ones. 612, 1348, 1815. storer distinctly carrier distributor Ickes Supra, 95, 417. 614, 150 separate distinct reservoirs, ditches canals. appurtenant owner appropriator. diversion 151 governing See, e.g., 440. wrote decided, 470, 559. Yet, S.Rep.No. 654, 69th 26—27, displacing seizin Anglo-American Instead, devoted HARLAN's tool. 153 spite priorities, fiat. Now worthy Democrat Republican, be. 154 today, confusion dream granting life-and-death dispensation administered 155 Court, vehicle turning unresolved accomplishes distorting 156 concerned, viz., insofar enforces imposes 157 approved) Gila; justify turn 'proposals counterproposals years,' discover effectuate. compact' 'any compact.'1 restricts essence 158 add III(b) 159 speaks clearly, III(a) respectively, term II(a) tributaries.2 moreover, word 592, Sess., reporting indicates, implies restricted 'enthroning (id., 16), embraces II(a). 5,400,000 source, unfounded. Out excluded. 161 record, Limitation guide play done. should, 162 8,000,000 whole. By available. 'unapportioned 8,500,000 'in perpetuity' highly contingent. 'unapportioned' foregoing assumption, 500,000 (either remote word),3 total 4,650,000 annually (4,400,000 250,000). albeit contingent, Basins 16,000,000 (7,500,000 III(b)) equitable. 163 reading annum) 'shorthand' According belong exclusively Thus, 'excess surplus' assert 'surplus' year. if, annum, 6,000,000 (500,000 acre-feet) system. notwithstanding. 164 practical (California's) measuring rod, really respect, majority achieves misreading show, mainly tristate 165 achieve constitutionally, achieved ways—by proposition (apart contingency here) Compact.4 ratified, claim.5 166 overall accounting annum' respectively,' annum. III(c) owed II(g). Tributary diminish presumed manifestly unfair 167 operative compact'; XI waived. describes 'uses indeed, underpinning 168 precise compact.'6 169 So mainspring flow. taken. 170 repeat, mean, covered Compact.7 171 compensate 292 341, 350—351, 735, 739, 1298. hers, 358, 742. 172 looks ways, favorable future—a noticed occasions. objective shows (a made) visualized tributaries' Fears injure hurt unimpaired, 283 423, 462, 522, 529, 1154, holds. imperiled 173 finalized Chairman Reclamation, identified unmistakably adding III' 'show 459. roll call. 473. 335. place: 174 'MR. HAYDEN. inquire arrives amendment? 175 PHIPPS. difficult me arrive con debated conclusive mind. instance, entirely watershed 176 Senator's amendment. 177 advanced offset try 178 argument, eliminating does. 179 consider itself, ties 180 My that. 181 Yes; estimates engineers—one happen recall La Rue—notwithstanding return California; whereas past supplying Valley. 182 'It enactment years; eliminated consideration. counted (Italics 183 'ties (below Mead) 'counted computations 184 chairman opposition ends. 750—751: authoritative legislation. sponsors doubt.' 185 Ashurst bitter minority S. Rep. pt. 2. 'sedulously proposes sever jugular vein' 3), warranted equity, justice, morals' 4), reckless relentless assault Arizona.' 38. imagined confine 'authorizes comprises 1/2 cent contributes constant Mexico.' 186 Like Commitee, speak 187 OPINION MR. DOUGLAS. 188 part: 189 'This hereunder begun moneys expended connection structures initiated hereunder, pertinent hereof, proclamation fail waive obligatory signatory thereto, conditions, six-State further, irrevocably covenant (diversions river) exist, 190 perpetuity, (3) (4) enters allowance mutually (6) tri-State particulars 191 proclaimed that: 192 agrees 'Boulder Act' act,' 'a' article 193 194 '(a) exist. 195 '(b) (a), 196 '(c) If, comity, America paragraphs (b); prove insufficient whenever (d). 197 '(d) cause depleted ten reckoned progressive series succeeding Power extend Controversies *. 'In Cases Party, supreme Jurisdiction.' U.S.Const., 1251(a)(1). Three instituted 1154 (1931); 1298 (1934); 298 558, 848, 1331 (1936). 174, 666, 1371 (1935). District, Coachella County Water Metropolitan District Southern San Diego, Diego. 344 919, 385, 708 (1953) (intervention States); 347 985, 1121 (1954) Nevada); 350 114, 188, (1955) (joinder Mexico). orders 986, (1954), 812, 43, 728 (1955). 364 940, 457 (1961). 1057 (1928), 617—617t. '(The Canal) intolerable situation, secures running S.Rep. (1928). (1919), 23—33. members engineers experience problems. 600 (1920). S.Doc.No.142, 67th (1922). 1. were: '1. international. '2. interstate. '3. '4. areas character. '5. magnitude solution.' Ibid. 21. prevails Wiel, Rights (3d ed., 1911); Hutchins, Problems Law West 30—31 (1942) (U.S. Dept. Agriculture Misc.Pub.No.418). important. Cal.Jur.2d Waters 257—264 (1959). Hinderlider Plata Cherry Creek Ditch Co., 304 92, 98, 803, 805, 1202 (1938); 459, (1931). continues E.g., 617—618, 1350 1351, 1815 (1945). 'Delph E. Commissioner summarized produced follows: "The alternative, retard maximum. unfortunate state, freedom injury upper.' final atmosphere decision.' H.R.Doc.No.717, 80th (1948). H.R.Rep.No.191, (1921). 324 Documents Use Control International Streams (1956). acre-foot enought cover acre foot 'Beneficial use' flows, (nonwasteful) purpose. 1944, 5773 402—405 30—31. 11449, (1922); 2903, 727, 68th (1923); 9826, 3331, (1926). nullified. herself. Total 3000 (1929). Cal.Stat.1929, c. Kansas, 320 392, 176, 180, 1116 (1943); 616, 1349, 125, 838 (1902); Jersey York, 336, 478, 1104 999 H.R.Doc. 717, "Domestic' 'domestic' used, things, 'satisfaction Said 13(b) (c). Also, 120,500 border, seasons evaporates 9454 supra 402. Sess.; 9989—9990 162. 384. voted exempt 603 459 inferred 77. proposal. 172—173. 386. (King), (Johnson, Bratton), 382 (Hayden, Phipps), 385 (Bratton), 386 (Pittman). representative: am vote acre-feet.' 382. (1927), reprinted 31; (1928) (Arizona's Denver). 467—468 id., 463—464, 465. 237. 466—467. 469. 232. 463 (Shortridge); 465 (King). 50. 9990 603. 837—838. 277, 333. 387. 467. exemple, Pittman's active role floor: 'When assembled 1927, (MR. PITTMAN), continuation earnest conferences office situation.' 172. 468—469. 471. added, wish subsidiary confirming that.' observed liberty contract' 'give (appropriators) fit,' answered 'certainly.' 6251 9826 97, 115. Bean Morris, 221 485, 703, 821 (1911). relied Van Devanter 466, damaging claims. doubted likely, talking minutes protected. 167. Present text, law: offered, Then, courts.' But, debate, remark knowledgeable understands 'order priority' recognized, 167, 9623, 9648, 9649 recognize, 1119 (1951), proponents opponents' criticisms. 525 (1937); Best Humboldt Placer Mining 371 334, 379, (1963); Boesche Udall, 472, 1373. (this Act) thereunder, sections, conformity laws, (herein) 383. Gerlach Live Stock 339 725, 738, 955, 962, 1231, 633 (1950). Iowa Hydro-Elec. Coop. Comm'n, 328 152, 171, 906, 915, 1143 (1946). Chandler-Dunbar 229 53, 62—72, 667, 671—675, 1063 (1913); Willow 499, 761, 1101, Ct.Cl. 797 1115 (1945); Coop., (1945), unappropriated North Platte rested 175—176, 916—917, (1946), 'saved' 1726, City, inapplicability City's location decisions. 'There impound canyon.' 4413 (1927). Proration adjust country's Chemehuevi, Cocopah, Yuma, Mohave. March 1865, 541, 1873, 1874, 15, 1876. Order 1915. Relating 6—7 (1912); 5—6 9, 1884 (Yuma), 1890 (Fort Mohave), February 1911 27, 1917 (Cocopah). orders, 12—13, 63—64 Chemehuevi 1907, pending approval. 332 30, 1658, 1663—1664, 1889 (1947); Holt Bank, 270 49, 54—55, 197, 198—199, Midwest Oil 236 469 475, 309, 311—314, 973 (1915); (1908). 163. 116. appears H.R.Rep.No.1657, 29—34. noted conform Clough Wing, Ariz. 371, 453; Colorado: Coffin Left Hand Colo. 443; Jones Adams, Nev. 78, 442; Mexico: Albuquerque Land Gutierrez, N.M. 177, 357; Utah: Stowell 215, 290; Wyoming: Moyer Preston, Wyo. 308, 845. Osgood El Dorado Deep Gravel Cal. 571. 443, 446—447, 449—450; 225, 290, 291; Willey Decker, 496, 515—524, 210, 215—218. 'Irrigation,' court, ' strangled riparian principle.' Twaddle Winters, 88, 106, 280, 284, 289. Ward Bannister, attorney '(t)he fund appropriate.' remarks 388. 4; 34—37. S.Res.No.320, 663 675. oppression strangling development, experiences taught department overriding oppressing communities. attention (A)ny governmental bureau ultimately, insiduous (sic) methods, dominion once abhorrent resentment sounds call arms self-defense. 663, 665, 671, 673. 146—157. KING: 'If Sacramento Montana, powerful mine; please, regardless suspended, inchoate, perfected,' deny takes.' 169. Carl Hayden; denied statement, concerned thing. PHIPPS: voluntary permanently putting method; proceedings interminable.' 4515. HAYDEN: settled. Either Supreme denies States.' 75, 76. COLTON: Service up.' 414. LEATHERWOOD: '(T)here agencies branch Government; force.' 31. WARD BANNISTER: base (T)he invalidate rule promulgated Congressional permission, helpless.' n. 195. 4763; S.Rep.No.592, 10, accompanying text. 46. S.1868, 6251, recommending 'provides 8. notes Contracts contrast 5(c), conflicts applications, applications permits licenses.' 12. breath seemingly dire prediction 'Arizona party time.' 9648. busily opposing ground apparent exception unanimity supporters Smith's House: 'All assume anything prejudicial nature 11. Carpenter's following: 'Except stated' discharged bed, conduit, prevented independent unincumbered inter sese, equate below. irrigation.' 4412. difficulty, arise, irrigation. Aside filings compared referred. applicant pursued developing manner diverting anticipate difficulty Interior.' 3064—3065; 191, 193, 214—215. 116, 117. lagged agree. 204. quoted ante, 585, borders. strained emasculates sacrifices intrastate altar supremacy. 619—620, 996, exercises eminent domain, interests, compensation made.' 630, 998. presented: domain. Nor, submit, standards. Certainly, enumeration assistance helping competing discussion Comment, Stat.L.Rev. 372. Limitation, forth Appendix, 643. 645—646, meaningless literally. unapportioned' defines III(c). From premise reasoned literally construed, III(b). rest, forever contemplated III(f), waters' hopeless ill-founded. limitation; signatories vis-a -vis other. harmonious whole, compelled 459—460. (which do), States) proclamation. Proclamation dated 1929. 3000; 4, Act—s 12, 13, 19. interfered 'except agreement.' 'all 357, 741, 1298, incorporates Compact: III(b)-But purport 'such' compact."

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