Document: 426 U.S. 128 96 S.Ct. 2062 48 L.Ed.2d 523 Francis Leo CAPPAERT et al., Petitioners,v.UNITED STATES al. NEVADA ex rel. Roland D. WESTERGARD, State Engineer, Petitioner, v. UNITED Nos. 74-1107, 74-1304. Argued Jan. 12, 1976. Decided June 7, Syllabus Devil's Hole, a deep cavern on federal land in Nevada containing an underground pool inhabited by unique species of desert fish, was reserved as national monument 1952 Presidential Proclamation issued under the American Antiquities Preservation Act, which authorizes President to proclaim monuments, Inter alia, "objects historic or scientific interest" situated land. In 1968 Cappaerts, petitioners No. who own nearby ranch, began pumping groundwater coming from same source water thereby reducing level Hole and endangering its fish. Subsequently, Cappaerts applied Engineer for permits change use several their wells. Although United States not made party that proceeding, National Park Service filed protest, seeking either denial application postponement decision until it could be determined whether Cappaerts' wells should limited prevent lowering Hole. The overruled protest granted permits. then suit District Court limit permanently enjoined would lower below certain necessary preserve holding establishing monument, appurtenant, unappropriated waters purpose reservation, including preservation rights antedated those estopped injunctive relief against exchanged with Cappaerts. Appeals affirmed. Held: As when acquired reservation appurtenant sufficient maintain value implement Proclamation. Pp. 138-147. (a) When Federal Government reserves public domain, implication accomplish purposes here expressed intention reserve water. 138-141. (b) reserving being pool, appropriately tailored injunction minimal need, curtailing only extent adequate protect pool's natural habitat fish sought preserved. P. 141. (c) Act authorized since such rare inhabitants are within meaning Act. 141-142. (d) Since implied-reservation-of-water doctrine is based necessity can subsequent diversion, diversion surface groundwater. 142-143. (e) Desert Land 1877, provides patentees acquire title through patent must nonnavigable accordance state law, does apply land, FPC Oregon, 349 435, 75 832, 99 L.Ed. 1215, determination governed law but derives thus fact rather than navigable irrelevant. 143-146. (f) That permit administrative did bar States, res judicata collateral estoppel, litigating water-rights claim court. privity assert any claims proceeding; issue raised decided proceedings. 146-147. 508 F.2d 313, Samuel S. Lionel, Las Vegas, Nev., Cappaert George V. Allison petitioner Westergard. Raymond Randolph, respondents [Amicus Curiae Information page 130 intentionally omitted] Mr. Chief Justice BURGER delivered opinion Court. 1 question presented this litigation 2 limestone Nevada. Approximately 50 feet opening 65 long, 10 wide, at least 200 deep, although actual depth unknown. remnant prehistoric Death Valley Lake System owned Treaty Guadalupe Hidalgo 1848, 9 Stat. 922. By January 17, 1952, Truman withdrew domain 40-acre tract surrounding making detached component Monument. 2961, 3 CFR 147 (1949-1953 Comp.).1 34 225, 16 U.S.C. § 431, declare monuments interest upon lands controlled . .." notes set aside "for unusual features scenic, scientific, educational therein contained." also near contains "remarkable pool." Additional preambulary statements explain why added Monument: 4 "WHEREAS said subsurface chain lakes Pleistocene times formed System, among caverns solution area distinctly striated limestone, while owing formation part fault action; 5 geologic evidence subterranean integral hydrographic history region further confirmed presence peculiar race zoologists have demonstrated found nowhere else world, evolved after gradual drying up isolated population original ancestral stock common entire region; 6 outstanding importance given special protection, protection best afforded forty-acre 7 supervised, managed, directed Service, Department Interior. fenced off, access allowed byhe Service. 8 12,000-acre ranch 4,000 acres used growing Bermuda grass, alfalfa, wheat, barley; 1,700 1,800 head cattle grazed. represents investment more $7 million; employs 80 people annual payroll $340,000. 21/2 miles Hole; they were first appropriate comes basin aquifer After do March October, summer decrease. 1962 has been measured reference copper washer installed one walls hole Geological Survey. Until 1968, level, seasonable variations, had stable 1.2 marker. 1969 2.3 washer; 1970, 3.17 feet; 1971, 3.48 and, 1972, 3.93 feet. lowest levels, large portion rock shelf above However, 3.0 marker higher, most water, enabling algae grow it. This turn enables (Cyprinodon diabolis, commonly known pupfish), referred Truman's Proclamation, spawn spring. becomes exposed, spawning decreased, ability quantities extinction. 11 April 1970 pursuant Nev.Rev.Stat. 533.325 (1973), Westergard, proceeding never served, employees learned notice published law. 533.360. An official private firm. interested persons permit; may considered hearing. 533.365. A hearing conducted December 16, field solicitor Interior appeared behalf He documentary testimonial evidence, informing because declining commissioned study determine hydrologically connected if so, pumped safely requested denied postponed studies completed. 12 declined postpone decision. At conclusion he stated there no recorded right respect testimony indicated unreasonably table adversely affect existing rights, economic development interest. his oral ruling "the applications subject will rights." Natnal appeal. See 533.450 (1973). 13 August 1971 invoking 28 1345,2 limit, except domestic purposes, six specific locations complaint alleged Monument, requirements reservation. perfected date asserted lowered threatening survival irreparable harm follow enjoined. On 2, amended complaint, adding two other specified list 14 answered, admitting draw underlying sources supplying denying UniteStates. enjoining intervened defendant affirmative defenses. 15 5, 1973, Court, Judge Roger Foley, entered preliminary limiting designated so return Detailed findings appointed Special Master establish limits monitor heavily wells, court regulated stabilize neither artificial nor transplanting feasible alternative species. "there grave danger pupfish destroyed, resulting injury States." 375 F.Supp., 456, 460 (1974). held reservation; included estopped, required granting injunction. 9, 1974, conclusions substantially unchanged final decree lowers 3.0-foot level. F.Supp. 456 17 Ninth Circuit affirmed, 313 (1974),3 thorough Senior Gus J. Solomon, sitting designation, well "(t) fundamental assure suffer changes condition time ." Id., 318. successors asserting exchanging answer contentions intervenor Nevada, bound laws domain," 320, need take steps perfect State; concurrent jurisdiction courts resolve claim; procedures resolution States' 18 We certiorari consider scope implied-reservation-of- doctrine. 422 1041, 95 2654, 45 692 (1975). affirm. 19 * Reserved-Water-Rights Doctrine 20 long withdraws purpose, Government, implication, needed doing acquires vests superior future appropriators. Reservation empowered Commerce Clause, Art. I, 8, regulation streams, Property IV, 3, lands. applies Indian reservations enclaves, encompassing streams. Colorado River Water Cons. Dist. 424 800, 805, 1236, 1240, 47 483 (1976); Eagle County, 401 520, 522-523, 91 998, 1000-1001, 278, 280-281 (1971); Arizona California, 373 546, 601, 83 1468, 1498, 542, 578 (1963); 1215 (1955); Powers, 305 527, 59 344, 330 (1939); Winters 207 564, 207, 52 340 (1908). 21 argues cases federally articulate equitable calling balancing competing interests. examination shows analyze terms test. For example, supra, mention upstream landowners sustaining barring diversions "Statement Case" users homesteaders invested dams divert irrigate unimportant reservation.4 22 determining implicit intended available Intent inferred previously created. See, E. g., U.S., 599-601, S.Ct., 1497-1498, L.Ed.2d, 577-578; 576, 211, L.Ed., 346. Both we agree.5 Proclation discussed four five preambles recited "pool protection." body contemplated meaningful remains; explicit, implied.6 23 Also explicit authority Director manage Monument "as provided act Congress entitled 'An purposes,' approved 25, 1916 (39 535; §§ 1-3) "fundamental parks, reservations" "to conserve scenery objects wild life provide enjoyment thsame manner means leave them unimpaired generations." 39 535, 1. 24 implied-reservation-of-water-rights doctrine, however, amount fulfill more. 600-601, 578-579. Here pool. interest." "a world" preserved, consistent preamble noting follows describing unique; read entirety. Thus, correctly determined, permitted drop impair injunction, very appropriately, implementing objectives 25 Petitioners both argue even intent give Under according petitioners, archeologic sites. language "historic landmarks, stctures, Government" limited. generally Cameron 252 450, 455-456, 40 410, 411, 64 659, 661 (1920). II Groundwater 26 No implied implied-reservation Here, depleted because, showed, "(g)roundwater physically interrelated parts hydrologic cycle." C. Corker, Law, Management Administration, Commission Legal Study 6, p. xxiv (1971). causing heavy pumping. Supra ; see Policies Future Final Report 233 It appears itself recognize potential interrelationship between prior appropriation both. 533.010 Et seq., 534.020, 534.080, 534.090 F. Trelease, Law Resource Use Environmental Protection 457-552 (2d ed. 1974); Meyers & A. Tarlock, 553-634 hold groundwater.7 III 27 They contend 377, 43 321, predecessors8 severed subjecting California Oregon Power Co. Beaver Portland Cement Co., 295 142, 162, 55 725, 730, 79 1356, 1363 (1935); Morreale, Federal-State Conflicts Over Western Waters Decade Attempted "Clarifying Legislation," Rutgers L.Rev. 423, 432 (1966).9 448, 840, 1226 (1955), land.10 since, unaware case longer homesteading. homesteading 1955 irrelevant 1877 still received patents mean now all inapplicable, 29 decided, bills introduced some uses doctrines, none enacted into recent bill, 28, 92d Cong., 1st Sess., reintroduced number 93d 4, 1973. Supra. 30 dependent adjudicated courts; 1345 adjudicate States.11 807-809, 1240-1242, 491-493. McCarran Amendment, 66 560, 666, repeal rights. 808-809, 1242, 493. Nor, suggests, Amendment substantive statute, requiring "perfect forum like owners." Brief 37. waives sovereign immunity joined state-court general rights' adjudication. 808, 1241-1242, 492 policy evinced may, case, require forums. 817-820, 1246-1248, 498-499. IV Res Judicata 31 Finally, suit, argued barred estoppel bases proceeding. reject contention, timely properly raised. note proceeding;12 Blonder-Tongue Labs, Inc. University Illinois Foundation, 402 320-326, 1434, 1438-1441, 788, 794-798 water-rights-claims, seek hydrological effects completed.13 attempt significant party. Engineer's explicitly "subject rights"; thus, raisedn proceedings before Engineer. 323, 1439, 796. Cf. Utah Const. Min. 384 394, 422, 86 1545, 1560, 642, 660 (1966). 32 hold, therefore, 2961. Accordingly, judgment 33 Affirmed. paragraphs withdrawing recite: "NOW, THEREFORE, HARRY TRUMAN, America, virtue vested me section 1906, 225 (16 431), that, provisions 13, 1933, 139 447), valid following-described hereby unit thereof: "MOUNT DIABLO MERIDIAN, T. S., R. E., sec. 36, SW 1/4 SE 1/4. "Warning expressly unauthorized appropriate, injure, destroy, remove feature addition locate settle thereof." Title follows: "Except otherwise Congress, district shall civil actions, suits commenced agency officer thereof sue Congress." appeal Appeals, response motion modify pump 3.7 marker, 3.3 asking, effect, overrule 542 (1963), 278 (1971), enclaves balance "competing equities." 15. equities test, disturbed. predecessors vested. Part comprising patented early 1890. None conveyed pass Patentees "bona fide appropriation," 1356 (1935). created beneficial use. 533.030, Jones Adams, Nev. 78, 442 (1885). appropriation, beneficially establishes continued diverted. (1976). Sax, Planning Policy Cases Materials, 218-224 (1968). Neither appropriated 1952. Some exchange Taylor Grazing 1934, 1272, 315g(b). mile "all privileges, immunities appurtenances Subject accrued mining, agriculture, manufacturing purposes. (Emphasis supplied). years exchange. forbids "appropriate, feature" "feature" pumping, "appropriating" "removing" violation effect applying prohibit 4,500 square supplies First, emphasized Second, relate proof greater distance significantly "will Hole." 25. There research hydrologist substantial away "(o)ver period perhaps decades (would have) small effect." App., 79. July 26, 1866, c. 262, 251, 1870, 217. Those Acts custom protected. n. relied contrary. Gerlach Live Stock 339 70 955, 94 1231 (1950); Ickes Fox, 300 82, 57 412, 81 525 (1937); Dority New Mexico Bliss, 341 924, 71 798, (1951). involve involved Nebraska Wyoming, 325 589, 1332, 89 1815 (1945), Reclamation 1902, 388, directs Secretary "proceed conformity (state) laws" irrigated, basis, measure right." noted acted said: "We intimate different procedure might followed these made." 615, 1349, 1830. authorized, discussion dictum supremacy 49 863, 791a-825r (1952 ed., Supp. II) over To electrical needs project, too authorize rely parties collaterally attacked determination. While application, attorney go forward granted; let's make mistake thinking moot, not." App. 307.

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