Document: 447 U.S. 352 100 S.Ct. 2232 65 L.Ed.2d 184 John M. BRYANT et al., Petitioners,v.Ben YELLEN al. State of CALIFORNIA Petitioners, v. Ben IMPERIAL IRRIGATION DISTRICT Nos. 79-421, 79-425, and 79-435. Argued March 25, 1980. Decided June 16, Rehearing Denied Aug. 11, See 448 911, 101 26. Syllabus The principal question in this action is whether the general rule under federal reclamation laws limiting irrigation water deliveries from projects to 160 acres single ownership applies certain private lands Imperial Valley, Cal., being irrigated with Colorado River through system constructed pursuant Boulder Canyon Project Act (Project Act). When became effective 1929, a large acreage was already by delivered Irrigation District (District) privately owned system. Under 1932 implementing contract, United States agreed pay for new Act, which implemented ratified seven-State Compact (Compact) allocating river's waters, provides § 6 that project works shall be used "irrigation domestic uses satisfaction present perfected rights pursuance of" Compact, 14 law "shall govern construction, operation, management herein authorized, except as otherwise provided." Section 46 Omnibus Adjustment 1926 (1926 Act), law, forbids delivery any irrigable land held one owner excess acres. In contracting building system, represented did not impose limitations on had vested or officially adhered position until repudiating it 1964. refused accept Government's position, States, 1967, instituted instant Court proceedings declaratory judgment excess-acreage limitation all District, they been 1929. Meanwhile, original involving determination how state-allocated waters should divided, recognized significant power Secretary Interior (Secretary) requirement he satisfy rights, defined such those acquired accordance state 1929 actual diversion specific quantity its application area land. Arizona California, 373 546, 83 1468, 10 542; 376 340, 84 755, 11 757. And supplemental decree, 439 419, 99 995, 58 627, adjudged have right specified diversions mainstream necessary irrigate number acres, whichever less. ruled against Government and, when chose appeal, denied motion intervene purpose appeal filed respondents, group Valley residents who desired purchase might become available at prices below market value if were applicable. Appeals reversed, holding appealing intervenors standing Art. III 160-acre applied Valley. Held : 1. Since unlikely owners would sell current absent applicability 46, whereas likely less than applied, properly concluded respondents sufficient stake outcome controversy afford them Court's decision, even though could certainty establish able Pp. 366-368. 2. Contrary Appeals' conclusion, precludes cannot consistently alleged ground individual landowners, merely members class whose benefit trust, no particular proportion District's water. Such theory fails take adequate account implementation opinion decrees an unavoidable Secretary's satisfying "present rights" must law. Prior ever since, exercising trustee, farmer beneficiaries without regard amount ownership, matter only entitle deliver farms regardless size, but also equitably whom obligated 368-374. 3. There nothing Act's legislative history cast doubt foregoing construction suggest Congress intended 14, bringing into play, interfere having bound recognize. Moreover, contemporary parties contract apply presently irrigated, contemporaneous view supports legislation, repudiated 374-378. 4. Further questions approximately 14,000 addition live dispute remains light "perfected holding, considered initially courts below. 378-379. 559 F.2d 509, 595 524 525, reversed part, vacated remanded. Northcutt Ely, Washington, D. C., Charles W. Bender, Los Angeles, petitioners. Sol. Gen. Wade H. McCree, Jr., Arthur Brunwasser, San Francisco, respondents. Mr. Justice WHITE Court. 1 45 Stat. 1057, 43 U.S.C. 617 seq. brought distribution Pursuant dam canal connecting District. laws, limited ownership. however, required observe time effective. course 1964 prior sued claiming contained found 322 F.Supp. (SD Cal. 1971), sustained 509 (CA9 1977). We now reverse respect has adjudicated date, which, 1964, Department foreclosed limitations. vacated. 2 * located south Salton Sea southeastern California. It lies sea level, arid desert natural state. 1901, began using diverted River, marks border between California Arizona. Until least 1940, means completely financed. On effective, District1 diverting, transporting, delivering 424,145 very productive farmland Valley.2 neither nor arrangements existence there restriction landholder own irrigate. 3 several years thereafter, carried Alamo Canal, left river north Mexico then traversed Mexican territory some 50 miles before turning northward This entirely financed owned, comprised 1,700 main lateral canals, serving divert 4 culmination efforts seven Basin control flooding, regulate supplies predictable basis, allocate among Upper Lower each basin, connect pass Mexico.3 1922, executed Basins, other things providing VIII "[p]resent beneficial use System are unimpaired compact."4 passed 1928 Compact; formula Arizona, Nevada, 542 (1963); authorized harnessing more efficient utilization unruly River. Project, consisting Hoover Dam Black storage facilities behind it, served implement division Compact. completed 1935.5 5 provided Canyon, canal, All-American replace Canal traverse States. A authorized. went provide charge made potable Coachella Valley.6 4(a) conditioned effectiveness ratification signatory States.7 4(b), well requiring contractual provision repayment costs Dam, money appropriated works, make revenues "by otherwise" insure payment "expenses maintenance said appurtenant structures manner law." points upon. Contracts permanent service person entitled stored 7 critical importance these cases, mandated used: "First, regulation, improvement navigation, flood control; second, Article compact; third, power." 9 opening entry public tracts greater size provisions 8 deemed "which "reclamation law" referred 12 17, 1902 (Reclamation 32 388, Acts amendatory thereof thereto. One statutes Reclamation 44 (part 2) 649, 423e, forbade acres,8 execute recordable contracts sale receive entered December 1, 1932, Canal. undertook cost include within itself lands.9 various it. provision. River—some distance upriver existing point diversion—and Use 1942 Valley.10 31 unless court final obtained confirming authorization validity contract.11 action, Hewes All Persons, No. 15460, Superior Court, County, July 1933, respects. App. Pet. Cert. 79-435, pp. 120a-154a. connection proceedings, Secretary, Ray Lyman Wilbur, February 24, submitted letter dealing applicable Among things, stated: "Upon careful consideration reached does cultivated right. These lands, right, mentioned. evidently inserted storage, use, furnished areas."12 trial case expressly eligibility ownership.13 An dismissed judgment. party action. 13 Wilbur expressing subject remained official 196414 adopted Solicitor apparent settled allocated begun 1952 settle fundamental related issues, including ascertainment preservation both Act. After litigation, handed down 3, 1963. 542. Although heart controversy, purposes primary aspect recognition given ensuing decrees. 15 provided, most authority "a intense reduced their effective." U.S., 584, S.Ct., 1490. 9, 757, as: 16 "[A] exercised definite municipal industrial . ." Id., 341, 756. 17 Present "existing date Act." Ibid. decree future eventually forthcoming, 627 (1979), 18 "in annual quantities exceed (i) 2,600,000 acre-feet (ii) supply consumptive uses, less, priority 1901." 429, 1000. 19 As indicated, interpretation sought revised renegotiated Department's 1967 permitted landowners defendants representing certified owning acres.15 Government, reasons "the lying District" F.Supp., 27. recommended General decided, after reviewing case, prosecuted behalf States.16 consequence, residents, leave participate amici applicable, attempted motion. denial, F.2d, 543-544, proceeded hold Constitution; Persons conclusive limitation; clear import Valley; administrative practice over bar 20 Because we granted petitions writs certiorari 444 978, 479, 62 405 (1979). II 21 preliminary matter, agree enter suit forwent adverse decision press behalf. Respondents, farmworkers, reside essence claim farmlands believed be, land.17 Appeals, although recognizing sell, highly improbable prefer withdraw agriculture order avoid 46. circumstances, Arlington Heights Metropolitan Housing Dev. Corp., 429 252, 97 555, 450 (1977), applicable.18 22 proper our cases. 800 decision. 23 unable, 1929.19 governed laws; limitation, "constructing, operating, maintaining" appear erroneously think, preclusion 24 Concededly, excuse his obligation (1963). nevertheless because trust. Individual farmers, said, Applying denying sold require reallocation eligible reduce rights. 25 find disposition defense unpersuasive. supra, 1490, "one limitations" great significance Accordingly, initial protected care: land.20 rehearing en banc, decreed 2.6 million 1901. thus determined that, actually see failed litigation. 26 first place, bears emphasizing originating independent direction proceed admonition 586-588, 1490-1491.21 clearly respect, displaced consulted determining content characteristics decree.22 27 may true, farm trust But doing so since. suggestion, otherwise, interposition duty, privilege exercise manner. Nor suggested duty disability imposed rightfully farmers Indeed, water.23 28 important effect serious changes nature away size. quite sure intend misunderstand substantive meaning decree. 29 breach district obey dictates relying Ivanhoe Irrig. Dist. Parties 53 Cal.2d 692, 712, Cal.Rptr. 317, 329, 350 P.2d 69, 81 (1960). issue here involved furnish, specifically satisfied. Here, Act; interpreted free irrigating passage To go far toward emasculating substance, substantially duties to, of, farmer-beneficiaries District.24 30 recalled definition, upon proof terminate basis decreed. sold, contradiction terms say, did, requires persons refuse sell.25 consequently similar laws.26 IV spans years, raises minds about Act.27 Our attention called relevant materials indicating preserve 6, invoke works. version House express lands; Senate substituted bill, contain despite objections bill amended limit chain events recognize.28 If anything, inference contrary. say rely strongly construing Statements opponents failure enact amendments, weight, reliable indications congressional intention. Ernst & Hochfelder, 425 185, 204, n. 96 1375, 1386, 47 668 (1976); Red Lion Broadcasting Co. FCC, 395 367, 381-382, 89 1794, 1801-1802, 371 (1969). do anything hearings, Committee Reports floor debates suggesting substantial way error. can little irrigated. stated early negotiations raised cultivation right.29 reason forward especially since language drafts indicated eliminated negotiations. going concern time, continued another years. fair assumption receiving unquestioned fact never operative 1929.30 V 33 further consideration. stipulated outset If, additional remain disposed arguments petitioners reversing addressed sustained, exempt result seemingly embraced.31 parties, separately status acres; record invite us deal lower court. know, example, still consists adjudication. Even remains, helpful instance deems advisable, adjudicate freed misapprehensions 34 date. vacated, remanded consistent opinion.32 35 So ordered. corporation board directors, usually elected voters district. empowered distribute administer inhabitants levy assessments expenses. agricultural products overall, increased $4 1909 $200 1965. flooding. 1905, broke banks flooded Development Co., major force financial assistance Southern Pacific tracks threatened floodwaters. railroad, taking security controlling interest returned channel ultimately security, transferring interests mutual companies 1922-1923 solely responsible diversion, transportation, Difficulties arose hence partly sovereignty. remarked, "end intolerable situation, secures sole running many Mexico. S.Rep.No. 592, 70th Cong., 1st Sess., (1928). apparently resulted two decades reliance impaired allocation. Delph Carpenter, draftsmen testified hearings precursor follows: "During deliberations Commission Santa Fe, days' work, sketch outline progress released press, stating what happened proposed treaty. representatives immediately responsive. They came presented claims vigor. "In claim, coming people upward half valuable land, compact drawn last session proceedings." Hearings S.Res. 320 Reclamation, 68th 2d pt. p. 678 (1925). genesis described length 552-562, 1473-1478, across Sea. Unlike together users 8's tying together, sufficiently revealed intent part: "No completion form approved districts organized constructing, maintaining during constructing repaid necessary, event forty notice hereinafter execution confirmed competent jurisdiction." 1942, provision, expanded boundaries 271,588 unpatented lands. declared 1952. By care, exceptions, transferred title Repayment charges commenced 1955. $25 million, repayable 40 installments, interest. payments net derived electrical energy generated hydro-electrical $15 million. May 15, ch. 190, 42 541, 511, section binding part jurisdiction, pending appellate laid." "execution" judicially confirmed. addition, preconditions contracts. Approval governing body voting election purpose. submit validation proceedings. discussed text, satisfied 177a, 71 I.D. 496, 530 (1964). Wilbur's Five days later, Assistant Commissioner Chief Counsel Bureau Porter Dent, issued likewise 179a, I.D., 531. Finding Fact pertinent will affected concerned." 144a. Conclusion Law XI "neither thereto maximum ownership." 149a. pointed out, suggestion anyone based "thorough review Departmental policy," "during incumbencies six successor Secretaries four Presidential administrations." Cal.1971). response inquiry Federal Land Bank replied negative. 1944, Warne Subcommittee ," Subcommittee's record. H.R. 3961 Commerce, 78th 4, 599, 764-765 (1944). 1945, rules 533. opinion, disagreed purport overrule 1948, Krug, veterans' organization, affirming adherence ruling. 253a-254a. 1952, negotiations, effected insist included abandoned. 1958, reaffirmed letter. 255a-260a. General, concurrence Department, answered Special Master irrelevant footnote disagreement position. 260a-263a. Also expressed same Brief Amicus Curiae McCracken, O.T. 1957, 122 37, 9. 496. aggregate 233,000 12. memorandum file prepared him followed 38 overturn longstanding "not strike [the General] good administration, government." 126 Cong.Rec. 3281 (1980). He taken not, view, successful. His second prophetic. Excess offered price fixed "on bona fide appraisal reference "cancel attaching land" different price. added values. purchasers stand reap gains resale, absence detailed information respondents' resources defeat standing. improvements installation drainage systems, enhanced value, potential windfall possess incentive offering sale—to recoup improvements—rather withdrawing uses. While prospect profits attract "shared equal measure citizens," Warth Seldin, 422 490, 499, 95 2197, 2205, 343 (1975), desire farming. subsequent rehearing, 525 rejected argument one-half longer fix "until fully paid carry portion breakup works." Ever enactment 1902, generally project. helps open settlement modest means, insures wide benefits projects, guards possibility speculators earn increase resulting 357 275, 292, 78 1174, 1184, 1313 (1958). retained successive culminating Master's definition. accepted objection definition reach appropriative Report Master, O.T.1960, Orig., 307-309 (hereinafter Report). generally, considerably narrowed 438 645, 98 2985, 57 1018 (1978), latter description itself. source obviously 289, 1182; 668-669, 21, 671-673, 678, 31, 2997-2998, 2999-3000, 3002 31. 597, 624-625, 306 824, 840 (1957), rev'd sub nom. legally enforceable Erwin Gage 226 Cal.App.2d 189, 194-195, 37 901, 903-904 (1964); South Pasadena Water 152 579, 588, 93 P. 494 (1908). continue delivery, apportion distributed ratably landowner share total Code Ann. 22250 (West 1956). Supreme originally deny contravene 22250, work denial due process protection laws. Following Central remand, exceeding violating 69 However, court's overriding imposing debars remarked where exempted peculiar always exemption enactment." explained, trouble concluding expression inapplicable observed intention applying disturbed erection reservoir." 309. 1946 "to nonexcess, agreeing dispose excess." Interior, Landownership Survey Projects (1946). urges specifies priorities entitlement merit. fourth attempt Congressman Swing Senator Johnson cause move undertaking. Their bills introduced 67th Congress. set bills, successful, 1927, Congressional 18, 1928, President's signature year. Respondents out repay hold, urged, subsidy landholders. Rather, justify landholdings sold. struck balance put recited "controlling floods, improving navigation regulating flow exclusively 617. nearly identical recitals Project. acreages national advanced Project: "1) inclusion annexation, dated 250,000 "2) Added capacity servicing 11,000 Indian "3) Flood preserving Laguna protecting Yuma "4) silt government's problem handling "5) need build soil bargain "6) enabled reclaim Valley." 19. aware project, special program designed purposes, Mexico, regional development." 22. S. 728, S.Rep. Sess. (1928), possible around rim valley." 8. "The conserved purposes. Looked somewhat narrow way, represents cooperative enterprise district, serves County embracing limits 200,000 possessing possibilities development fertile valley. Neither alone river. Acting conjunction, feasible." 21. 5773, H.R.Rep. 918, identified ending "intolerable situation" existed Valley: "This valley runs 60 furnish substitute elevation possible, mostly public, area." Reclamation. almost later Dent said: "Early connected regarding extent canal. I am advised, been, is, believe, mentioned." 220a. 1945 took exception Solicitor's totally ignored Coachella. prevail, event, Krug declined depart Furthermore, negotiated revision respects, effort repudiation virtue either them. gave cursory 6. cases considering "rights, privileges immunities reserved," conclude: "For 'satisfaction rights' read insulating limitation. plain Canal." 511. conclusion inadequate conception Petitioners contend contrary 1738, give full faith credit usage urge embraced repudiate. argue apart structure negate Finally, subsequently note, further,

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