Document: 462 U.S. 554 103 S.Ct. 2558 77 L.Ed.2d 1 State of TEXAS, Plaintiffv.State NEW MEXICO. No. 65, Orig. Argued March 30, 1983. Decided June 17, Syllabus The Pecos River Compact was entered into by Texas and New Mexico (and approved Congress) to govern allocation the waters River, which rises in flows Texas. Article III(a) requires that "not deplete man's activities flow at Mexico-Texas state line below an amount will give a quantity water equivalent available under 1947 condition." establishes Commission (Commission)—consisting one Commissioner from each nonvoting representative United States—and empowers it make all findings fact necessary administer Compact. two voting Commissioners were unable agree when dispute arose between States concerning methods for determining annual shortfalls state-line with regard Texas' right receive as much would have received consumption conditions prevailing 1947. filed this action against (the intervened protect its claims on river), alleging had breached obligations seeking decree commanding deliver accordance This Court appointed Special Master, who ultimately report involved here, parties various exceptions thereto. Held: 1. Exceptions Government Master's recommendation either or some other third party be given vote empowered participate deliberations are sustained. Once congressional consent is interstate compact required Clause, transformed law States, unless unconstitutional, no court may order relief inconsistent express terms. Here, provides shall not vote, matters before Commission. cannot rewrite so provide third, tie-breaking vote. Moreover, Court's equitable powers never been exercised appoint quasi-administrative officials control division day-to-day basis. Pp. 564-566. 2. Mexico's exception alternative continue suit presently postured overruled, accepted. There merit contention do nothing more than review Commission's official actions, case should dismissed if found there actions taken arbitrary capricious. original jurisdiction resolve controversies extends enforce another declare rights compact. fundamental structural considerations th militate theory, since questions decided first instance, could indefinitely prevent authoritative solely exercising veto Nor Compact's terms constitute sole arbiter disputes over III obligations. authorized representatives compacting reached agreement Commission, behest absent extraordinary cause precise mandate Congress. 566-571. 3. approval motion adopt so-called "Double Mass Analysis" method shortfall has occurred overruled. until adopts feasible method, "inflow-outflow method" used measure shortfalls. close enough what described Report Engineering Advisory Committee" acceptable use compliance While leaves free Analysis," apply absence action. 571-574. sustained part overruled part. R. Lambeth Townsend, Austin, Tex., plaintiff. Charlotte Uram, Santa Fe, N.M., defendant. Justice BRENNAN delivered opinion Court. For second time we consider Master case. submitted September 10, 1982 (1982 Report). We sustain both concur, overrule exceptions, return final decision basic issue dispute—whether imposed 2 * north-central southerly direction joins Rio Grande near Langtry, Texas.1 It principal river eastern Mexico, draining roughly one-fifth State, major tributary Grande. 3 Due large many natural difficulties,2 barely supports level development century. If restricted, especially groundwater pumping Roswell, might reach years. As things stand, receives any year varies number factors besides beneficial Mexico. These include, primarily, precipitation Basin preceding several years, evaporation McMillan Alamogordo Reservoirs, nonbeneficial salt cedars riverbed vegetation. 4 After 20 years false starts,3 1945 commenced negotiations allocate Basin. A formed, consisting three Commissioners, representing States. In January 1948, engineering advisory committee lengthy (1947 Study), central portion set routing studies describing six "conditions" Pecos, consisted actual beginning 1947.4 Each embodied 41-column table accounting known inflows outflows during 1905 1946.5 also drafted "Manual Inflow-Outflow Methods Measuring Changes Stream-Flow Depletion" (Inflow-Outflow Manual), contained charts tables, derived data Study, how expect particular period levels precipitation, 5 On basis Study Manual, successfully negotiated signed commissioners December 3, thereafter ratified legislatures and—as Clause Constitution6—approved 63 Stat. 159 (1949). Manual incorporated Senate Document 109, 81st Cong., 1st Sess. (1949) (S.Doc. 109), they unquestionably provided upon Congress compact, see S.Rep. 409, 6 crucial substantive provision Art. III(a): "New term "1947 condition" expressly defined "that situation Committee." II(g). turn, include "basic data, processes, analyses utilized preparing report," II(f), "deplete activities" "beneficial consumptive uses within Basin," but exclude diminutions due "encroachment cedars" "deterioration channel stream," II(e). 7 established permanent body, less same form V(a). Accordingly, take only concurrence Commissioners. broad V(d)(5)-(10), well "[e]ngage supplies River" "[c]ollect, analyze, correlate, preserve, stream flows, storage, diversions, salvage, tributaries," V(d)(3), (4).7 8 fifteen functioned contemplated met regularly, passed resolutions, undertook importance those Pecos. apparent harmony characterized however, seems largely result tacit defer disagreement problem serious magnitude. became clear soon after went effect and, importantly, tables did describe almost every following adoption Compact, significantly predicted obvious change along "man's activities." 9 initial response authorize, 1957, ambitious "Review Basic Data," essentially retrace steps committee's accurate description Review Data presented 1960; duplicated using different periods time, revised records, assumptions, hydrological mathematical procedures. took later, directed proceed draft new adopted figures study showing cumulative 1950-1961 approximately 53,000 acre-feet.8 10 last respect all-important question condition."9 Disputes deferred avoided past now surfaced. They came head special meeting July 1970, stated his position that, calculated according 1.1 million acre-feet 1950-1969, "incomplete replete errors," determination departures assumptions method. Thereafter, staffs prepared reports 1971 1974 condition," relying Data. Attempts mediate positions failed, lack B 11 1974, invoked III, § 2, cl. Constitution 28 U.S.C. 1251. Its bill complaint alleged "by countenancing permitting depletions extent 1950 through 1972 departure Texas-New Line excess 1,200,000 condition . ." sought own preserved Arts. XI-XII granted leave file complaint, 421 927, 95 1652, 44 84 (1975), 423 942, 96 351, 46 274 (1975). 12 1979, made report, he recommended reject phrase mean artificial S.Doc. however erroneous been. Instead, concluded "[t]he produced man-made resulting stage .," required. 1979 41. full. 446 540, 100 2911, 64 485 (1980). 13 Over evidence corrections produce condition, thus Report, resolution these issues require "exercise administrative delegated [Pecos Commission]" "such exercise power beyond judicial function." 27. Recognizing unlikely act unanimous continued impasse favored upstream recommended: 14 "[T]he equity adequate remedy. reasonable procedure, justified ordering third-party, designated decisively agreement. tie-breaker final, subject appropriate Upon selection tie-breaker, ordered long-standing controversy." Id., 26. 15 At rejected pending motions, dismissal altogether, simpler deliveries. II 16 Both key recommendation—that deliberations. their exceptions. 17 Under conclude such without However, once given, "congressional transforms States." Cuyler v. Adams, 449 433, 438, 101 703, 706, 66 641 (1981); Pennsylvania Wheeling & Belmont Bridge Co., How. 518, 566, L.Ed. 249 (1852). One consequence metamorphosis consented somehow Yet precisely recommended. clearly delimits role Commissioner. Although must present quorum serves presiding officer, although advisors consistently participated fully work committees subcommittees, V(a) specifies "the Commission." No To tiebreaking regular business alter fundamentally structure 18 vest federal responsibility streams. See Arizona California, 373 546, 564-567, 83 1468, 1479-1481, 542 (1963). Other compacts, contemporaneously allow compact-created commissions, arbitration commission disputes. E.g., Upper Colorado 31, 35-37 (1949); Arkansas 145, 149-151 Yellowstone 65 663, 665-666 (1951). lacks features it. 19 Without doubt, likelihood matter. light States' experience, amending mutually resolving paralyzing impasses gave rise suit. Nevertheless, failure issue, important, does render void, nor justification altering decree. acted vote.10 say whether unanimity achieved stood ready endorse State's other's. stands, solution amenable resolution, further negotiation not. infra, 569-571. Texas, support recommendation, argues reformation powers. Indeed, specifically requested "to diversion, storage Mexico"; scope mandate, functional Master. not, identified single instance where similar relief.11 refused indefinite appointments basis, even involved. Vermont York, 417 270, 94 2248, 41 61 (1974); Wisconsin Illinois, 289 710, 711, 53 671, 677, 1283 (1933). Continuing supervision decrees test limits proper functions, thought wise undertake project. supra, U.S., 277, S.Ct., 2252. 21 alternative, recommends "continuance postured." 28. excepts insofar embodies certain conception dispute. contends deferential model agency, find Thus, view, maintained quantification shortfall, implied acceptance which, argues, entailed.12 According "This authority de novo assume Motion Recommend Final Decree, Feb. 19, 1982. disagree. 22 doubt Const. 1; 1251(a)(1), properly framed apportion e.g., Kansas Colorado, 185 125, 552, 559, 838 (1902), prior apportionment, Wyoming 298 573, 56 912, 80 1339 (1936).13 Virginia West Virginia, 206 290, 317-319, 27 732, 740-741, 51 1068 (1907); cf. ex rel. Dyer Sims, 341 22, 71 557, 561, 713 (1951) (jurisdiction interpret writ certiorari); Green Biddle, Wheat. 1, 91, 547 (1823). 564, our interpreting "Where constitutional waters, courts substitute notions 'equitable apportionment' apportionment chosen Congress." 565-566, 1480-1481. proves, mere existence foreclose possibility wi l 23 decision, therefore, itself address seek Supreme Court, contemplates independent authority.14 Fundamental considerations, theory. First, effective deny altogether except extreme flood conditions, invariably benefit.15 interpretation, powerless grant claim 24 intended exclusive forum then withdraw. But Our streams acting concert accomplish complementary. Frankfurter Landis, Constitution—A Interstate Adjustments, 34 Yale L.J. 685, 705-708 (1925). invoke important context framed; indeed, threat litigation undoubtedly contribute willingness enter difficult conceive trade away promise could, practical purposes, avoid will.16 explicit indications bargain made, construe preclude vindicating rights. Cf. Wheat., 547.17 25 Considerations outside theory untenable. decisions actually Commission—presumably votes That function decide recent interpreted 1251(a) providing us substantial discretion case-by-case judgments necessity jurisdiction. Maryland Louisiana, 451 725, 743, 2114, 2127, 68 576 Ohio Wyandotte Chemical 401 493, 499, 91 1005, 1010, 256 (1971). eye promoting most functioning overall system. ibid. congressionally powers, recourse thoughts hardly "necessary protection," Massachusetts Missouri, 308 18, 60 39, 43, (1939).18 Absent cause, 1251 provides. 26 Therefore, accept framed. IV Texas—apparently invitation—to calls occurred. 21. recommendation. exception. again, turn provisions VI provides: 29 "The principles Compact: 30 " 31 "(c) Unless devised inflow-outflow Committee, to: "(i) Determine 32 otherwise, Mexico." 33 "a method," fairly comes enforcing illustration method,19 permit administration begin, correlation curve critical Dam line. Appendix. Plotted horizontal axis overlapping three-year averages sums four "index inflows"—the actual, measured Reservoir, unmeasured estimates "flood inflows," n. sub-reaches vertical measures corresponding "outflow" points smooth "fairly accurately cover[s] entire range expected supply far affected meteorological factors" Study. 149. 35 point litigation, outflow condition. parties' drawing curve, like old them involve inflows" historic values deduced curve. 21, infra. represents bold effort simplify process reducing index one, directly measurable value—the Dam. essence, inflow (if impossible) measure. so, plotting furnish benchmark post-Compact compared determine receiving Compact.20 36 simplification desirable, balance always bear physical relationship outflow. state, dries up long line, crosses passes dam, flood. reference adequacy can determined taking account intent framers information possible rather inflow, reflects inflows. indicates develop curves smaller river, provided. 150-151. sharply approach go about measuring adopt, V 37 Pre-Trial Order dated October 1977, resolved. settled 485. 563. remains fourth: "[H]as fulfilled her Compact?" 6. necessar ly involves subsidiary questions. definition 563, difference received? period, Commission; 1962 present, adjudicating specific raised Data, Manual. briefed positions, already heard extensive questions.21 Second, Mexico"? 38 Time again counselled engaged "is likely wisely solved co-operative conference mutual concession vitally interested proceedings constituted." York Jersey, 296, 313, 492, 937 (1921); 277-278, 2252-2253; Minnesota Wisconsin, 252 273, 283, 40 319, 558 (1920); Washington Oregon, 214 205, 218, 631, 633, 969 (1909). believe bona fide differences views entitled justify expense obtain controversy. With observation, unresolved Order, manner consistent opinion. 39 ordered. Appendix Opinion Inflow-outflow relationships, [1,000 units] Index Outflow IndexOutflow 42 relationshipinflow 140....... 77.250. 151....400. 267 150....... 83.260. 159....450. 307 160....... 89.270. 166....500. 352 170....... 96.280. 174....550. 402 180.......102.290. 182....600. 454 190.......109.300. 189....650. 506 200.......115.310. 197....750. 615 210.......129.320. 205....800. 671 220.......129.330. 212....850. 728 230.......136.340. 220....900. 786 240.......143.350. 228 43 calculations, (from theoretical studies) 45 Routed Differences Accumulated 47 All Omitting 1942-44 1919-21.557.8 412.3 410.1 +2.2 1920-22.370.3 259.9 243.8 +16.1 +18.3 1921-23.392.3 259.6 261.0 -1.4 +16.9 1922-24.268.4 156.3 164.9 -8.6 +8.3 1923-25.300.1 178.0 189.1 -11.1 -2.8 1924-26.318.7 200.6 204.0 -3.4 -6.2 1925-27.325.9 203.9 209.1 -5.2 -11.4 1926-28.307.2 187.5 194.8 -7.3 -18.7 1927-29.250.2 150.2 151.2 -1.0 -19.7 1928-30.275.0 168.8 170.0 -1.2 -20.7 1929-31.294.4 189.2 185.1 +4.1 -16.8 1930-32.377.2 251.7 249.2 +2.5 -14.3 1931-33.342.2 236.0 221.8 +14.2 -.1 1932-34.292.0 191.9 183.4 +8.5 +8.4 1933-35.223.6 136.0 131.5 +4.5 +12.9 1934-36.227.4 127.8 134.2 -6.4 +6.5 1935-37.367.1 243.5 241.3 +8.7 1936-38.388.5 253.1 258.0 -4.9 +3.8 1937-39.392.2 256.3 161.0 -4.7 -.9 1938-40.269.0 151.1 165.3 -14.2 -15.1 1939-41.267.1 639.8 634.2 +5.6 -9.5 1940-42.859.7 732.3 739.2 -6.9 -16.4 1941-43.859.3 746.2 738.8 +6.4 -10.1 -10.0 48 1942-44.337.4 246.2 217.9 +28.3 ..... 1943-45.224.9 139.0 132.4 +6.6 +24.9 1944-46.201.2 121.0 115.8 +5.2 +30.1 +1.8 From north south, Rosa, Reservoir above (or Sumner) Fort Sumner traverses relatively desolate region State. Acme Artesia, area around fed large, slowly flowing aquifer. Below deltas lakes formed now-deteriorated Avalon Dams, Carlsbad Red Bluff straddles regulate dry completely weeks reaches Much flash floods, carrying great quantities topsoil progressively destroy reservoirs, silting, river's quite saline. non-flood "base" supplied aquifers empty operation aquifiers little understood. depleted wells Roswell area, suggestion times heavy reverse underground aquifer, river. Brief Condition, Aug. 1978, 34. addition, steady brine enters Malaga Bend, ten miles border, severely impairing quality low. Salt cedars, consume amounts water, proliferate silt deposits heads reservoirs. 1925, regulating legislatures, Governor vetoed bill. early 1930's, delegation succeeded holding funding construction agreed ensure originating 1935. 1935 Secretary Interior, Senators irrigation districts concerned, formally legislature legislature. did, restrict 1937, restoring base studied represented combinations historical facts hypothetical existence, dams projects built 1905. 9-11 109). material assumed 1947, additional projects. column showed depletion pumps reach, cedars. Some entries ta les inferred more-or-less easily observed data—e.g., gages, diversions Others, salt-cedar reservoir, estimated, albeit degree reliability. entries—e.g., columns "channel losses"—required deal speculation, residual categories "balance books." 41-42; (1960) (stipulated exhibit no. 8) (Review Data). "No shall, Consent Congress, foreign Power Const., I, Further relevant discussed 13, 17. figure used. later indicated adjustments contemplated. meet 1967 November 1968, identities persons changed. (first immediately ratified) Advisor (also chairman author Manual) died. latter force negotiations) retired. late hands people personal connection work. concrete eradication salinity alleviation, Bend. Furthermore, coordinated numerous gages equipment studies. occasion past, device appointing masters cases common, gone factual controversy Iowa 147 239, 55 (1893), declined commission's opportunity challenge them, 151 238, 333, 145 (1894). have, willing perform ministerial tasks. Jersey 347 995, 1002-1004, 74 842, 845-846, 98 1127 (1954). note approved, argument suggest dismiss 40-41, 44. least implication, advances rejected. object portions others. Objections Brief, Dec. 1979. exists though obviously poor 575-576. V(f) "Findings conclusive court, agency tribunal, prima facie found." language ambiguous earlier version V(f)—one proposed Mexico—sheds light: tribunal called Compact." Minutes Meeting Sept. 28, 1943, (proposed XII, ¶ 4). Since duties enforced signatory reflected assumption discussion record; efforts drafting expert brought significant resolved, Meeting, Nov. 8-13, 61, reprinted 101. text, need whether, standing alone, history dispositive. 46, 117, 655, 675, 956 (1907). 701 (1925) ("[O]ne answer clear: feed starve, possessed States."); Bannister, Rights Streams Arid West, Harv.L.Rev. 960, 979-980 (1923) (describing practice international law). Note XIV withdraw owners lands Kentucky sued tenant recover lands. relied statutes him good defense action, responded invalid violations "all private rights, interests [Kentucky] laws [the separation Virginia], remain valid secure [Kentucky], existing [Virginia]." 547. An made—similar case—that resolved agreement, ordinarily title land. because defeat other's citizens occupants land enrich themselves simply refusing too monstrous entertained. best feelings nature revolt leads it." Illinois Milwaukee, 406 93, 92 1385, 1387, 712 (1972) (original dispute). invocation seriousness casus belli sovereign. North Dakota Minnesota, 263 365, 372-374, 138, 139, 342 (1923); Missouri 200 496, 519-521, 268, 269-270, 50 572 (1906). When able act, means interests. burdensome prevents attending appellate docket, seem slight. appended describes follows: basin gaging stations basin. impossible inflow. termed sum developed Any changes occur affect previously developed. example, point, outfl w change: outflow." deserves emphasis neither projected versions anything deliveries activities," qualification obligation best, helpful identifying originate. generally document "Texas 'Workability' Statement," 1981, identifies nine "[q]uestions computation." 4-5. Not water. considered 4(b) Pre-trial formulation appropriate. 29, 5-7; 10-11.

Category: 8