Document: 462 U.S. 1017 103 S.Ct. 2817 77 L.Ed.2d 387 State of IDAHO, ex rel. John V. EVANS, Governor; Jim Jones, Attorney General; Jerry M. Conley, Director, Department Fish and Game, Plaintiffsv.States OREGON Washington No. 67, Orig. Argued March 23, 1983. Decided June Syllabus Since 1938, several dams have been constructed along the Columbia-Snake River system, severely reducing number anadromous fish that migrate between Pacific Ocean their spawning grounds in those rivers tributaries. Fishing is another factor depleting population. In 1976, this Court granted Idaho leave to file its complaint requesting an equitable apportionment against Oregon Washin ton system. A Special Master was appointed, after trial oral argument he entered report involved here, recommending action be dismissed without prejudice. filed exceptions report. Held: The Master's recommendation adopted, prejudice Idaho's right bring new proceedings whenever it shall appear being deprived share fish. Pp. 1024-1029. (a) doctrine applicable here. Although has roots water rights litigation, natural resource sufficiently similar make appropriate mechanism for resolving allocative disputes. neither dependent on nor bound by existing legal apportioned. Thus, fact no a pre-existing ownership does not prevent apportionment. 1024-1025. (b) Because based broad flexible concerns rather than precise entitlements, decree intended compensate prior wrongs. Instead, prospectively ensures obtains resource. may always mathematically or definite present future conditions, uncertainties about do provide basis declining fashion decree. erred extent found formulation workable impossible case. If suffers from injury alleges, there reason why could remedied 1025-1027. (c) However, seeking under Court's original jurisdiction must prove clear convincing evidence some real substantial damage. Master, finding demonstrated sufficient justify decree, properly his conditions focused most recent time period, 1975-1980, during which all various conservation programs were operation. demonstrate are now injuring overfishing they will so future. Moreover, proved mismanaged continue mismanage. 1027-1029. Action dismissed. Atty. Gen., Boise, Idaho, plaintiffs. Edward B. Mackie, Deputy Olympia, Wash., defendant Wash. Justice BLACKMUN delivered opinion Court. 1 invoking jurisdiction, seeks States Idaho. final merits recommends We before us 2 * somewhat repetitive writings 444 380, 100 616, 62 564 (1980), we feel worthwhile outline once again facts case rulings. dispute fish, one valuable resources system Northwest. That covers portions Wyoming, Washington, Oregon, British Columbia. From origin northwest Snake flows westerly across southern until reaches border. At point, river winds northward form border approximately 165 miles, then 30 miles. N xt, turns abruptly westward through eastern finally joining Columbia River. Columbia, rendezvous, southward Washington. After supplemented Snake, continues 270 miles Ocean. For distance, forms boundary Oregon. A. 3 Among species thrive fish—in case, chinook salmon steelhead trout—lead remarkable completely understood lives. These begin life upstream gravel bars respective Shortly hatching, emerge as fry forage around hatch areas food. They grow into fingerlings smolt; latter generally at least six inches long weigh more tenth pound. period young spend hatching varies with specie can last months well over year. 4 end smolts swim down toward Pacific.1 estuary linger order accustomed chemical cues water. Netboy, Salmon Steelhead Trout 44 (1980). It believed pick up river's scent twilight years return home. Tr. Oral Arg. 19. Even best only small fraction set out ever reach ocean. 5 Once ocean, adults, averaging 12 17 pounds. traveling precise, possibly genetically predetermined, routes. See supra, 46-49. ocean ventures, mature ascend river. travel groups called runs, distinguishable both All area, where spawn die. issue runs spring February May, summer July, trout August September. B 6 already arduous voyages these complicated construction eight Rivers.2 First, interdicting flow Lower Granite (constructed 1969), Little Goose (1968), Monumental (1967) dams. Ice Harbor dam (1961) sits astride just above confluence Four interrupt way Pacific: McNary (1953), Day Dalles (1957), dam, Bonneville (1938). 7 produce electrical power, divert large turbines devastating effect descending Pacific. Spillways permit detour turbines.3 also great obstacles adults. ladders covered steps—enable returning adults climb dams; addition, opportunity compiling statistics.4 Varying demand power increase mortality molts ascending rate ocean-bound averages 95%. Report 7. Their adult counterparts die 15% each dam. Only 25% 30% passing first Bonneville, succeed running gauntlet traverse Dam enter Ibid.5 8 Another population fishing, sometimes referred "harvesting." 1918, consent Congress, Act Apr. 8, ch. 47, 40 Stat. 515, formed Oregon-Washington Compact ensure uniformity state regulation sought entry compact occasions, but rebuffed. Under compact, divided lower commercial fishery zones: zones five cover mouth Dam; zone stretches below Snake. Each year, authorities estimate size determine length fishing season support. harvests any tributaries; do, however, sport locations. 9 Pursuant treaties ratified 1859, Indian tribes "the taking usual places." Sohappy v. Smith, 302 F.Supp. 899, 904 (Or.1969). 1977, lengthy litigation treaty rights,6 agreed Indians preserve solely fishing. limit amount permits numbers pass enough replenish runs. plan, escapement goals—the Bonneville—are run. When estimated run exceeds goal specified amount, surplus allocated non-Indian fishers Two recently withdrawn agreement, casting effectiveness doubt. 10 parties disagree causes, relevant since 1973 significantly lower. 46-51 (tables). permitted chinook; States, designated game harvested commercially. Harvests 1974 1977. 1973, three C 11 429 163, 97 544, 50 371. matter Honorable Jean S. Breitenstein, Senior Judge United Appeals Tenth Circuit. 431 952, 2671, 53 268 (1977). initially recommended suit failure join indispensable party, States. accepted, remanded trial. stated "must shoulder burden proving [non-Indian] fisheries [Oregon Washington] adversely unfairly affected arriving Idaho." Id., U.S., 392, S.Ct., 623. argument, issued merits. He prejudice, apparently two distinct reasons. suffered hands Second, even assuming such injury, apportion fairly among parties. report.7 II 13 As initial matter, correctly concluded dispute. see Kansas Colorado, 206 46, 98, 27 655, 667, 51 L.Ed. 956 (1907), disputes.8 lifetime. Much dispute, overfishes downstream deprives otherwise would receive. flowing resolved doctrine; accord different treatment controversy 14 Hughes Oklahoma, 441 322, 329-336, 99 1727, 1732-1736, 60 250 (1979), Conversely, although entitlements important factors formulating give circumstances broader considerations. Colorado New Mexico, --- ----, 539, 546, 74 348 (1982); id., 545-546 (O'CONNOR, J., concurring); Nebraska 325 589, 618, 65 1332, 1350, 89 1815 (1945); Connecticut Massachusetts, 282 660, 670-671, 286, 289-290, 75 602 (1931). 15 root same principle animates many Commerce Clause cases: own inhabitants located within borders. Philadelphia Jersey, 437 617, 627, 98 2531, 2537, 57 475 (1978); England Power Co. Hampshire, 455 331, 338, 102 1096, 1100, 71 188 330, 1733. Consistent principle, affirmative duty take reasonable steps conserve augment borders benefit other 546; Wyoming 259 419, 484, 42 552, 564, 66 999 (1922). though hatched waters, fair distribution 16 545-546; Rather, conditions. Uncertainties future, Reliance predictions necessary protect State. To impossible, disagree. Vessel Assn., 443 658, 663, 3055, 3063, 61 823 (1979) (regular habits possible forecast runs). proposed formula apportioning decree.9 relies jack reproductively precocious male year ahead members age group—passing predict following percentage originate Idaho.10 compu ation technical, issuance Evans 390, 622; 616-617, 1349-1350. Nothing record undermines assumption supporting relationship total particular if 18 found, our n. 13, 547, 13; 672, 290; Jersey York, 283 336, 344-345, 478, 480-481, 1104 reaching conclusion, determination should 25-26. therefore 1975 1980, 19 approve approach. that, due operation dams, depressed 1970. 26, 34. highly unlikely removed deadly reduced; live determinable future.11 disproportionate run,12 took 58.72% harvest 1980. 44. Equitable directed ameliorating harm preventing injuries complaining State, compensating injury. agree figures 20 did Columbia.13 produced concrete mismanagement, "[t]he shows repetition threatened [prior mismanagement]."14 32. mismanage carried demonstrating likelihood III 21 foregoing reasons, adopt dismiss 22 ordered. 23 O'CONNOR whom Justices BRENNAN STEVENS join, dissenting. 24 reasoned entitled "fair share" subject Without qua tifying share, rejected claim had fishery, 30-34, concluding instead acted good faith, 35, relief requested unworkable, ibid. refused consider pertaining earlier developments. 25-26, 27. 25 today overrules Master. I merit points raised am persuaded require remand further proceedings. Accordingly, dissent. 26 "Idaho fish." 25. No owns individual reduces possession, Pierson Post, Am.Dec. 264 (N.Y.1805), and, indeed, full-fledged "property" interests wildlife boundaries, see, e.g., Douglas Seacoast Products, Inc., 265, 284, 1740, 1751, 52 304 (1977); Missouri Holland, 252 416, 434, 382, 384, 64 641 (1920). Nonetheless, courts recognized interest dignity importance warrant certain protections. Union Oil Oppen, 501 F.2d 558 (CA9 1974); Louisiana Guste M/V Testbank, 524 1170 (E.D.La.1981); Weld Hornby, East 195 (K.B.1806); J. Gould, Law Waters §§ 186, 187 (1883); Kent, Commentaries 411 (5th ed. 1844); cf. 345, 480, (1931) (considering oyster beds water); Douglas, 267-268, 1742-1743 (REHNQUIST, concurring part dissenting part) (although conventional sense, "substantial proprietary interest"). 520 676 1975), cert. denied, 424 978, 96 1487, 47 750 (1976). Indeed, years, diminished longer satisfy fully demands fishermen, federal frequently find themselves confronted disputes management Faced problems, courts, including Court, hesitated recognize claimants possess protectible whether ultimately manage land reduce specimens possession full ownership. See, Game Dept. Puyallup Tribe, 414 44, 94 38 254 (1973); 529 570 1976) (per curiam); supra; 899 fray, prepared undertake admittedly difficult task assessing resolution protects each, for, held ago leading "[W]henever . agency laws territory question limitations becomes justiciable them, court upon settle equal establish justice them." 97-98, 667-668, (1907).1 28 Having reached correct conclusion Rivers, though, adopted procedures denied effectuate right. approval placed establishment 29 spite recognition loss understand how specifying nature entitlement.2 excluded consideration past probable focusing 1975-1980. 27.3 During negligible, so, view, similarly show injury" obtain exercise 320 383, 393, 176, 180, 88 116 (1943); 669, 289, Of course, recognizes, ante, 1027, required showing sustained basic problems flaw assumes concern absence harvestable surplus,4 vanishes. excludes explaining current determining what types all. problem approach requires little elaboration. absolutely seek maintain eventually requiring defendants refrain practices perpetuate Cf. (1982) (recognizing common supply); (1922) (same). allegations mismanagement lawsuit—in allegation made practice closing seasons became meet minimum escapement, Exceptions 65; Pretrial Order 7, Admitted Fact 30—if true, existence threat maintenance very paucity 1975-1980 relied denying suggests contention managed past. 31 Further, need situation compelling. Techniques available aid maintaining increasing runs.5 But devote projects designed free engage negate efforts. simply because shared equally promoting eventual restoration occur proper defendants. 32 my excluding defendants, Consideration illustrated indeed action. place untenable position. minimal when 31, 1975. 1974, 22,400 9,500 steelhead. 18-19. negligible half decade, 1970s, annual average 27,320 upriver chinook, 2,260 ummer 12,360 steelhead, compared 3,150 8,550 15, 17. Assuming rightfully returned This reflect pristine irretrievably lost nature. On contrary, 1970, 1020. figures, looking relief. approach, vindicate rights, wait regenerate—relying goodwill them. Then, available, hope survive belonging persist throughout complete litigation. hurdles resources. 33 preservation is, expressed proportion surplus. making determination, range flexibility, drawing guidance previous cases reconciling conflicting claims classic statement considerations governing interstate streams emphasizes breadth inquiry factors:6 34 "Apportionment calls informed judgment factors. Priority appropriation guiding principle. physical climatic consumptive use sections river, character flows, established uses, availability storage water, practical wasteful uses areas, damage benefits limitation imposed former—these merely illustrative, exhaustive catalogue. indicate delicate adjustment made." 1351, (1945). 35 545, 671, 289 (1931); R. Clark, Water Rights § 132.5(B) (1967). concerning adapted context. Nevertheless, general principles apply. direct including, limited to, incurred terms foregone allow given supra transit); contribution habitat spawning; survival development passage; investment mitigate losses enhance hatcheries transportation programs, 5, supra;7 relative values fishery—commercial sport—operated 673, 290 ("Drinking domestic purposes highest water."). 36 decide wrongfully depletion attributable grant suggested unworkable difficulties estimating one, Puyallup, "[O]nly expert degree net plus hook line perpetuation species." 48, 333. possible, Commercial Ass'n., 662-664, 3062-3063, difficulty providing never provided excuse shirking Constitution. 622, (1980); 1349. able relief, F.2d, 572-573; too overcome difficulties.8 induce cooperate devising plan accommodate management, here sued enforcement rights. 34-35 (discussing Five-Year Plan Smith ).9 IV 37 failed quantify unable entitling remedy. apply precedents appropriate, devise remedy protecting smolts, apparently, prefer swim. face upstream, open mouths, carry them downstream. Should come quiet spot, turn Three Idaho—the Brownlee 1958), Oxbow (1961), Hells Canyon (1967)—have closed off upper entirely piscean traffic. renders unusable much area. Most equipped screens away spillways. 1969, operating increased 24, causing smolt dramatically. There experimental tanks "bus" release 15; Final Merits 102-103 (Idaho's Exceptions). ladder, Army Corps Engineers observation windows counts records notes variety. count adjusted phenomenon "fall back": often counted swept back ladder strong currents. addition complexity count, fall causes nitrogen supersaturation, slightly giddy disoriented, serving mortality. Apparently, 1968, big killer" 16. effects high caused hatchery nurture millions Company finances hatcheries, pursuant condition Federal Energy Regulatory Commission granting company's application license construct 9; 3, supra. four District 50% destined Bonneville. 570, 572 1976); 685-689, 3074-3076, (approving allocation Indians). Ninth Circuit vacated bearing 573-574. agreement described text district own, responded participate review said: 667-668. employ setting goals settlement agreement. formula, 1) primary techniques using; 2) rates; 3) requirements years; 4) originated Idaho; 5) Idaho-origin fish; 6) allot (after subtracting fisheries) run; 7) shortfall next year's harvest. prediction surmount headed express view appropriateness formula. note apportions origin. Flexibility linchpin cases, decisions, allocation. 545-546. accepts, must, 388, 621, continued adverse impact 87. Its m st equally, 87, fashioning cognizable 1962 constituted 83% chinook. According 75% 40% trout, asserts 58% 48% 49-50. presume, entire waters. cannot While itself look reductions normal harvest, historical tables 13.5% 1967 45.5% 35.1% 90.7%. decrease periods, 192 caught de minimis number. 53-54 (tables 6, 8). reject entitlement underlying comparisons, assumption, portion increasing. incident occurred when, despite experts, overestimated failing phenomenon, underestimated reduced spawn. escapements goal. 31. fact, seems quite content goals; "manage managing years." 82. controversy, like waters streams, particularly jurisdiction. jurisdictio "conferred Constitution substitute diplomatic controversies sovereigns resort force," North Dakota Minnesota, 263 365, 372-373, 138, 139, 68 342 (1923). Clark (ed.), 132.2(A) Disputes migratory typically rise solutions. (1920) (treaty Canada birds). Such solutions international community sovereign whose temporarily shelters legitimate wildlife. interests, compacts processes. specify me represent poor judicial resources, inviting settling questions presented now. Comment, Smith: Eight Years Litigation Rights, 56 Or. L.Rev. 680, 693 (1977) court's declared "[u]nfortunately, guidelines 'fair share' consequently, argue Sohappy"). create record, practices, 101, evidence, effectively it. support decision, cited 620, (1945), stated, "[T]he deal today." ad explained, "[A]ll equities favor weighed date mooted," quoting 394, 181, (1943). "Conditions today" include "equities," which, elaborated below, past, present, realities. "Harvestable surplus" refers remain ordered Tribes exercised instance, supplement reproduction 9. Also, transported passage. 102-103; 1021, 3. Finally, efforts spawning, 8. regard, think quantification right, relying role explains position, "[Idaho's] run." 47. proposal base alone. glaring takes account burdens dividing larger number, exact value Response 14-15, 43-45; Reply Br. 7-9, fisheries. passage, benefit. Considerations division core 109, (1907); 545 (rejecting source automatically share). revenue used State—fishing fees opposed taxes—is somehow relevant. 30. broad, fail relevance consideration. dismissal calculations reflects undue skepticism statistics concerned. linear squares regression method "of predictions," 41, predictive value, properly. W. Hays, Statistics 10.4 (3d 1981). Courts rely sort calculation agencies charged perform. expired 1982, 11. actions tended 35. adequate party Plan, 10, expiration makes urgent.

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