Document ID: ./input/supremecourt_opinions/opinions/boundvolumes/529bv.pdf
Page Number: 824

529US3

Unit: $U57

[09-26-01 12:19:03] PAGES PGT: OPIN

Cite as: 529 U. S. 728 (2000)

749

Opinion of the Court

pipelines, the regulations shared title between the permit
holder and the United States “in proportion to the actual
amount of the respective contribution to the initial construc-
tion.”
Ibid. And for range improvements made pursuant
to permit, the pre-1995 regulations gave the permittee “title
to removable range improvements.” § 4120.3–3(b).

The 1995 regulations change the title rules for range im-
provements made pursuant to a cooperative agreement, but
not the rules for improvements made pursuant to permit.
For cooperative agreements, they specify that “title to per-
manent range improvements” (authorized in the future)
“such as fences, wells, and pipelines . . . shall be in the name
of the United States.” 43 CFR § 4120.3–2(b) (1995).

The ranchers argue that this change violates 43 U. S. C.

§ 315c, which says:

“No permit shall be issued which shall entitle the per-
mittee to the use of such [range] improvements con-
structed and owned by a prior occupant until the appli-
cant has paid to such prior occupant the reasonable
(Emphasis added.)
value of such improvements . . . .”

In their view, the word “owned” foresees ownership by a
“prior occupant” of at least some such improvements, a possi-
bility they say is denied by the new rule mandating blanket
Government ownership of permanent range improvements.
The Secretary responds that, since the statute gives him
the power to authorize range improvements pursuant to a
cooperative agreement—a greater power, § 315c—he also has
the power to set the terms of title ownership to such im-
provements—a lesser power—just like any landlord. See
R. Schoshinski, American Law of Landlord and Tenant § 5:31
(1980) (ownership of tenant improvements is a matter open
to negotiation with landlord); H. Bronson, A Treatise on the
Law of Fixtures § 40 (1904); 2 J. Taylor, A Treatise on the
American Law of Landlord and Tenant § 554, pp. 164–166
(1887). Under this reading, the subsequent statutory provi-