Document: 380 U.S. 1 85 S.Ct. 792 13 L.Ed.2d 616 Stewart L. UDALL, Secretary of the Interior, Petitioner,v.James K. TALLMAN et al. No. 34. Argued Oct. 22 and 26, 1964. Decided March 1, 1965. Rehearing Denied April See 989, 1325. Wayne G. Barnett, Washington, D.C., for petitioner. Charles F. Wheatley, Jr., respondents. Mr. Chief Justice WARREN delivered opinion Court. At issue in this case is effect Executive Order 8979 Public Land 487 upon Interior's authority to oil gas leases. 2 Between October 15, 1954, January 28, 1955, D. J. Griffin other persons—hereinafter collectively referred as lessees—filed applications leases on approximately 25,000 acres located Kenai National Moose Range Alaska. On August 14, 1958, respondents filed offers lease same lands. Section 17 Mineral Leasing Act 1920 provides, relevant part, that 'the person first making application who qualified hold a * shall be entitled such lands without competitive bidding. *' 41 Stat. 443 (1920), amended by 60 951 (1946), 30 U.S.C. § 226 (1958 ed.). The Bureau Management Department Interior determined lessees were persons had applied first, issued them tracts, effective September 1958. Respondents' reached processing 1959, rejected ground been leased prior applicants.1 3 From rejection their applications, appealed Director then both whom affirmed decision. 68 I.D. 256 (1961). Respondents brought an action nature mandamus, United States District Court Columbia, compel them. granted summary judgment favor dismissing complaint. Appeals Columbia Circuit reversed, holding 8979, order creating 1941, 487, 1948,2 withdrawn controversy from availability leasing under Act, remained closed until they reopened revised departmental regulation court therefore held while land was closed, ineffective, rendering nullities; respondents, after promulgation 1958 regulation, 116 U.S.App.D.C. 379, 324 F.2d 411 (1963). We certiorari, 376 961, 84 1123, 11 980. 4 conclude correctly refused writ accordingly reverse decision Appeals. Since promulgation, has consistently construed orders not bar leases; moreover, interpretation made repeated matter public record. While others have developed reliance Secretary's interpretation, do claim relied detriment contrary construction. may only one permitted language orders, but it quite clearly reasonable interpretation; courts must respect it. McLaren v. Fleischer, 477, 481, 577, 578, 65 L.Ed. 1052; Bowles Seminole Rock Co., 325 410, 413—414, 1215, 1217, 89 1700. I. 5 1920, 437, 181 seq. ed.), gave broad power within any known geological structure producing field. Although directed if tract, applicant, left discretion refuse at all given tract. ex rel. McLennan Wilbur, 283 414, 51 502, 75 1148. excluded its certain designated lands,3 did exclude wildlife refuge areas. 6 created 1941 Fed.Reg. 6471, which two million domain set aside 'as breeding moose.' provided '(n)one above-described excepting (a defined area) subject settlement, location, sale, or entry, disposition (except fish trap sites) public-land laws applicable Alaska *.' November 8, 1947, promulgated general dealing with issuance refuges. It simply subjected approved unit plan contain provision prohibiting drilling prospecting advance consent Secretary. 12 7334. 7 June 16, 1948, 3462: 8 '(T)he following-described areas (including most portion excepted 8979) are hereby temporarily sale classification examination, aid proposed legislation: 9 'This take precedence over, modify reservation December 10 Thus neither nor expressly withdrew leasing. In 1951, however, aside, uses inconsistent mineral leasing, minor portions covered 487: forms appropriation laws, including mining mineral-leasing *.'4 Had thought already his reference 1951 would superfluous. By intra-agency memorandum dated 31, 1953, advised Regional Administrators managers local offices 'a possible revision policy regulations' refuges being studied, '(p)ending completion study existing regulations, you will suspend pending refuges.' disputed, subsequent memoranda make clear, 1953 purport prevent either approval national office continued filing offers.5 During late 1954 early number individuals northern half Range; among these those lessees. Action suspended accordance directive, none question leasing.6 14 9, 1212, 20 6795, revoking entirety 487. After granting preferences, provided: 15 '6. Any described paragraphs 4(a), 4(b) 4(d) remaining unappropriated, become application, petition, selection, form generally authorized *. 16 '7. Commencing 10:00 a.m. 182nd day date order, unsurveyed paragraph 4(c) settled veterans credit service settlement generally, (Emphasis added.) much italicized language, does appear Department's actual practices. However, 1955—35 days before went into effect, years entered picture—Public 1212 delete references laws. 7904. 18 anticipated 1947 refugeleasing promulgated. 9009. more restrictive than old increased Fish Wildlife Service approve disapprove development listed Appendix A (not Kenai) which, because importance preservation rare species plant animal life, no permitted. B small part involved here) 'with reports might seriously impair destroy usefulness conservation purposes areas, complete detailed operating program area.' '(o)il issued' specified conditions requiring type conducted, adoption lessee Service. argue even assumed (as case) 1955 treated open probative evidence viewed time filed. think, he changing status B, rather merely imposing additional restrictions therein, done so terms express used regulation. He refer whole; name parts except Though specification supports inference drafted assumption remainder indirect implication—however confirms preexisting Range—would technique inappropriate effecting change Range's status. Moreover, President's 1952 delegation withdrawals '(a)ll submitted publication FEDERAL REGISTER.' 10355, 4831 (emphasis added). document labeled could legal constitute exercise power; meant power, likely manner delegation.7 19 When bills introduced Congress 1956 restrict refuges, House Committee Merchant Marine Fisheries Subcommittee Senate Interstate Foreign Commerce extensive hearings thereon. forbade 'dispose of' arose during whether apply representative asserted, contradiction, 'disposition' affected proposed. Hearings H.R. 5306, etc., 84th Cong., 2d Sess., p. 98. An amendment specifically restricting Neither committee reported favorably bills. report stating decided try, experimental period time, arrangement whereby each alienation relinquishment interest jurisdiction Committee, contemplated. H.R.Rep.No. pp. 12—13. This resolution suggests accepted view pre-existing grant Range, concerned way exercised discretion. Pursuant agreement, July 25, 1956, proposal 71,680 Range—located area encompassed 8979—for amicus curiae Richfield Oil Corporation others. contemplated Swanson River Unit operation, Management, Geological Survey Service, branches Interior. hearing spokesman Federation urged precluded Transcript Fisheries, Lease Portions 17, 19, 24—26. But see id., 35—36; letter, 24, Deputy Solicitor, Hon. E. Bartlett, Delegate Alaska, following 30. Committee's Chairman unanimously concluded detrimental values concurred leases.8 21 Following issued, exploratory well drilled discovered commercial quantities 1957. Rep. Gov. 88 (1957); Secy. Int. 356 104, 199, 258, (1958). soon became again congressional concern, when realizing although dry land, lacked beneath Alaskan inland navigable waters—asked water bottoms, add there bottoms boundaries.9 bill, saying: 'In present now where exist paying quantities, Peninsula previously described. If act, defined, holders upland forced compete adjacent lakes streams. felt result work disadvantage developers gone ahead S.Rep. 1720, 85th 5, U.S.Code Cong. Adm. News 2895. 23 bill subsequently enacted law. 72 322 (1958), 48 456 251 24 Meanwhile, over policies followed resolved adoption, another 227, 43 CFR 192.9. represented near-total victory conservationists. altogether prohibited unless necessary draining, refuges—with exceptions: dual purpose, As falling categories, reach agreements specifying 'shall leasing' decide provisions required Federal Register. further heretofore covering game ranges, coordination lands, continue completed,' new 'be tenth noted records.' 25 published Register 2, announcing agreement Range. 5883. decreed (essentially southern half) 'are activities incompatible management thereof purposes.' 26 'The balance Offers 192.9(d) acted adjudicated regulations. 27 '* (L)ease map records *.'10 28 Anchorage 4, later applications. 29 Soon implementing upon; next months, 294 621,234 response lessees) 1955. figures added (primarily area), appears total 331 696,680 Thus, commencement instant suit, substantially entire controversy;11 Solicitor General assures us assignees had, turn, expended tens millions dollars II. faced problem statutory construction, shows great deference statute officers agency charged administration. 'To sustain Commission's term, we need find construction arisen instance judicial proceedings.' Unemployment Comm's Territory Aragon, 329 143, 153, 67 245, 250, 91 136. also e.g., Gray Powell, 314 402, 62 326, 86 301; Universal Battery Co. States, 281 580, 583, 50 422, 74 1051. 'Particularly due administrative practice stake 'involves contemporaneous men responsibility setting machinery motion; efficiently smoothly yet untried new." Power Reactor Development International Union Electricians, 367 396, 408, 81 1529, 1535, 924. issue, order. 31 "Since involves necessarily look meaning words doubt. (T)he ultimate criterion becomes controlling weight plainly erroneous regulation." 32 case, limitation involved. President, delegated full withdraw revoke withdrawals. 9146, 3067; 9337, 5516; 4831. himself. 33 discussion I demonstrates, 34 'It argued facts rulings prove usage, establish validity. government practical affair, intended men. Both officers, lawmakers, citizens naturally adjust themselves longcontinued Department, presumption unauthorized acts allowed often crystallize regular practice. That reasoning circle, basis wise quieting rule that, determining existence usage itself,—even validity investigation.' Midwest 236 459, 472—473, 35 309, 313, 59 673. long respondents' record discussion. worked out pursuant thereto, though probably constituting 'legislative ratification' formal sense,12 serve demonstrate notoriety thereby defeat interpretation. Finally, almost developed, very expense, 480—481, 1052, held: 36 administration act department adopted latter view. They of, and, departure reconsidered corrected, adhered follow ever since. Many outstanding titles based can said support least admissible one. comes Congress, fairly susceptible different constructions, duty executing disturbed cogent reasons.' 37 If, therefore, unreasonable, bears Appeals.13 III. 38 39 'None 3, 1926, 'An provide fur farming, purposes', 44 821, U.S.C., title 48, secs. 360—361, 1927, protection, development, utilization establishing adequate system grazing livestock thereon', 1452, 471—471o 40 'Settlement,' 'location,' 'sale' 'entry' contemplating transfer question. construe 'or disposition' encompass dispositions like four enumerated, convey lead conveyance States—for example, 'grants' 'allotments.' Cf. Opinion 459 (1921).14 vest lessee. Boesche Udall, 373 472, 477—478, 83 1373, 1376, 491. term 'public-land laws' ordinarily statutes governing distinguished 'mining laws,' referring hard minerals 'mineral designate group oil. Compare Title Lands, Lands Mining.15 1926 1927 lends For relate title; infer specific addition leasing.16 reasonably influenced belief overriding discretionary tract whenever undercut withdrawal, inclusion withdrawal unnecessary. Haley Seaton, 108 257, 620 (1960). 42 Wilbur Barton, App.D.C. 11, 46 217 (1930), aff'd sub nom. 1148, misplaced. Involved contained Pickett 847 (1910), 141 President may, discretion, entry true squarely sufficient authorize affirmed, albeit alternative theory: permits. U.S., 419, 504. word history place context irrelevance here. Prior rights acquired minerals—by 'location.' One staked location prospected minerals; discovery, patent minerals. 1909, responding rapid reserve depletion Presidential authorization: 45 legislation affecting use petroleum deposits domain, California Wyoming) filing, disposal nonmineral Survey, Bull. 623, Doc. 868, 64th 1st 135 (1916); quoted, 467, S.Ct., 311. executive upheld 1915 meantime, request, sought remove doubts about legality him, 'settlement, entry.' 47 changed procedure acquiring lands: empowered permits required, event discovery permit, extract mineral, him right itself.17 on, longer technically Nonetheless, clear designed legitimize 1909 fact procedure—from 'location' 'leasing'—for acquisition afforded reason concluding cut back 1910. 14—15, F.2d, 220—221. Court's affirmance casts doubt reasonableness bar, away means rights. placement exception—'(except sites)'—a phrase admittedly relating tend against 8979. exception assure Alaskans, whose livelihood largely dependent salmon catch, continue—despite order—to traps. Organized Village Kake Egan, 369 60, 82 562, 573. reassurance functionally related surprise carelessly placed. 8857, 4287, Kodiak Refuge. think position justify court's overturning unreasonable. 49 entry,' 'other disposition.' Nor anything analogous exception. follows fortiori Reversed. DOUGLAS HARLAN took case. processed acceptable offer reached. 5883, simultaneously filed, drawing determine priorities 295.8 (1964). prevailed. between 1958; processing, respondent Coyle applied; nine excludes 'lands Appalachian Forest 1911 (36 961), incorporated cities, towns, villages parks monuments, Acts February naval oil-shale reserves, hereinafter *,' 437—438 amended, 950 751 29, 9044, 160 Civil Aeronautics Administration, 88.86 townsite purposes, 778 159, aggregating 4,280 acres, Army. memorandum, Director, Assistant Interior; 12, Area Administrator, (Alaska); 102 Cong.Rec. A6582. fiscal year ending 30, Governor stated: 'Residents major companies file send parties various Territory. Reserve awaiting what stipulations protection should inserted leases, issued.' 60—61 (1955); (1953). regarded regulations automatically vacating suspension order; immediate introduction field once withhold final Richard Todd al., 291, 298 worthless indication thereby, urge 'wildlife them.' 176 point one; Salt Plains Oklahoma. (543 30,000) 144, 9430. doubtful simple listing 'Salt Plains,' large 144. seeks capitalize applicants submitted, obtained unit. There explanations submission plan. First, 'might destroy' require programs Submission insuring area. Second, subordinates persuade consistent adopted. Insular Affairs Gordon Goodwin, attorney Corporation, testified: 'Well, pending, years, moose range, few there, made. But, shortly range never lifted So able business up limited extent.' 8054, 77. warned little available applicants: 'Most Department.' Press Release, Release forthcoming (August) indicated 'opening' choice wholly understandable instructions since Therefore, did, senses, 'open' revocation 116,878 acres. Ex parte Endo, 323 283, 303, n. 208, 243; 482—483, 491; cf. Peters Hobby, 349 331, 345, 790, 99 1129; Brooks Dewar, 313 354, 61 979, 1399. failure below attach proper significance seems attributable misinformed concerning brief stated '(n)o 1958' (p. 30), '(t)he activity outside Range' 40). taken Hoffman, Gas Domain, (1951). Reference fruitful. Amici list 173 Orders 1940 barring Brief Marathon amici curiae, 6A—7A. 146 1936 1959 permitting Respondents, 7a—10a. explain construing 'any Alaska' mean throughout country opined including, inter alia, Alaska) natural Appeals' (limiting country) beyond cavil 'reasonable' test applying. conclusion include renders lease,' initiating 1935, permit eliminated direct substituted. 21, 676—677, §§ 223,

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