Document: 501 U.S. 221 111 S.Ct. 2281 115 L.Ed.2d 207 States of OKLAHOMA and Texas, Plaintiffsv.State NEW MEXICO. No. 109, Orig. Argued April 16, 1991. Decided June 17, Syllabus The Canadian River flows through New Mexico the Texas Panhandle before entering Oklahoma. Its waters are apportioned among these by Compact. Article IV(a) Compact gives free unrestricted use all "originating" in river's drainage basin above Conchas Dam—a structure that predates provides water to Tucumcari Project, a federal reclamation project—and IV(b) it below dam, limiting "conservation storage" for impounding those 200,000 acre-feet. In 1963, constructed Ute Dam Reservoir downstream from Dam. 1984, was enlarged, giving storage capacity 272,800 acre-feet, which has been reduced about 237,900 feet because silting. Oklahoma filed this litigation, contending IV(b)'s limitation is imposed on reservoir available conservation, so-called "desilting pool" portion not exempt allocated solely "sediment control." 1987, while case pending, river flooded, spilling over caught sufficient amount spill exceed When refused count purposes limitation, supplemental complaint, claiming if applies actual stored water, then or seeping back Project constitutes originating under IV(b). As relevant here, Special Master's Report recommended (1) imposes physical (Part VI Report); (2) but reaching mainstream dam as result spills releases seepage return flow subject VII); (3) issue whether what extent Reservoir's should be referred Commission negotiations possible resolution VIII); (4) recommendations approved, will have violation since returned Master determination any injury appropriate relief. exceptions. Held: 1. Oklahoma's exception recommendation Part overruled. Nothing Compact's face indicates clear intention base Mexico's when Texas' based water. Early drafts uniformly contemporaneous memoranda statements compact commissioners their staffs do explain why change "storage capacity" made final draft, although most probable terms were being used loosely interchangeably. Pp. 229-231. 2. Also overruled exceptions VII Report. errs arguing term unambiguous, there no restrictions impoundment waters, they Dam, State IV(a). Rather, correctly concluded drafters intended give only stored, used, diverted at There substantial evidence that, drafting Compact, agreed limits necessary had fully developed, future development would necessarily occur acre-feet rights satisfy needs dam. ambiguous can harmonized with drafters' apparent intent interpreted so released considered Thus, excess limit allowed States, rather than impounded Mexico. 231-240. 3. VIII sustained insofar argue Commission. legal basis refusing decide desilting pool counted towards dispute clearly exists case, claim properly presented. Arizona v. California, 373 546, 83 1468, 10 542. matter must remanded such further proceedings may merits. 240-241. Exceptions part part, remanded. 1 WHITE, J., delivered opinion Court, MARSHALL, BLACKMUN, STEVENS, SOUTER, JJ., joined, Parts I, II, IV REHNQUIST, C.J., O'CONNOR, SCALIA, KENNEDY, joined. an concurring dissenting 2 Marian Matthews, Santa Fe, N.M., defendant 3 Paul Elliott, Austin, Tex., plaintiff Texas. 4 R. Thomas Lay, City, Okl., 5 Justice WHITE Court. 6 This original action brought against Mexico, arises out interpretation various provisions (Compact), ratified Oklahoma, 1951 consented Congress Act May 1952, 66 Stat. 74. Each report submitted (Report) appointed 7 * River1 interstate rises along boundary between southeastern Colorado northeastern vicinity Raton, From its headwaters, south generally east 65 miles into Panhandle. After traversing panhandle, where eventually empties Arkansas River, tributary Mississippi. 8 late 1930s, authorized, Corps Engineers completed, construction approximately 30 northwest Tucumcari, also authorized project designed irrigate 42,000 acres land serve municipal industrial lands situated southeast served Canal diverts Reservoir. completed 1950. 9 1949, congressional delegation proposed authorize massive project, known Sanford proximity Sanford, purpose serving requirements 11 cities panhandle region. Legislation introduced House Representatives, bill authorizing negotiate equitably apportion River. legislation enter passed created. consisted one commissioner each representative. representative assistance engineering advisors, group collectively Engineering Advisory Committee. committee several proposals draft presented December 6, 1950, signed day members Commission.2 enacted 29, amendment delegation, specifically provided could commence until See 64 1124, 43 U.S.C. § 600c(b). That consent granted 74, creating Lake Meredith 1.4 million 1964. 165 located north Amarillo, During 1950's, selected site mile west Logan, 45 Construction 1963 initial 109,600 1982 began enlarge reservoir, 1984 enlargement store 246,617 remaining occupied silt. estimated additional silting, 241,700 1987 currently 16-17. early 1982, expressed concern violate n. 2, supra. All attempts resolve budding unsuccessful, large requires unanimous vote agree litigation followed, conservation 12 spring sizeable quantity 250,000 spilled first major 1941-1942, predated 60 percent Reservoir, filled capacity, 40 flowed down river. 23, 1988, contained 232,000 some 180,900 alleged flood earlier 1987. 47. 13 IV(b), complaint "waters originate . Dam" within meaning disputed contentions argued enters even anywhere else 14 We Master. 484 1023, 108 744, 98 758 (1988); 488 989, 109 550, 102 578 (1988). considering voluminous evidence, written submissions twice hearing extended oral argument issues, circulating comments, October 15, 1990, making following our decision case: 15 capacity. 16 Waters Basin limitation. 17 good faith resolution. referral without prejudice later invoke Court's jurisdiction cannot resolved year. 18 If foregoing 24-25. 19 Court articulate jurisdictional prerequisites procedural guidelines application litigation. Id., 26-34.3 20 ordered set briefing schedule, 498 ----, 110 2583, 264 (1990), heard States' now address turn. II 21 his apply actually stores purposes. conceded chargeable existing storage." Some excluded definition storage," sediment control. contends reservoirs view which, adopted, finding least completed. 22 conceded, we, suggested finds support plain language itself. defines pertinent "that water" "excludes reservoirs" other Art. II(d) (emphasis added). Likewise, refers "the waters" However, appear focus For example, V sets forth elaborate formula determining impound time; "Commission permit more " added); "furnish intervals designated accurate records quantities administration Compact" 23 nothing treat differently we see compelling justification doing so. fact, did exactly made, nor anything draw distinction limitations placed pointed out, "stored water," "storage," interchangeably staffs. 42-43. 24 obvious reason wanted restrict ability increase particularly light fact larger promote stated I capture conserve much River's possible, might otherwise dissipated therefore wasted. Furthermore, points sedimentation alone constantly reduce limit, forcing repeatedly either build new reservoirs. Either options extremely expensive persuasive bear burden. overrule III 25 excepted Report, well storage, dams argues does impose restriction "free counter word "originating," simply means "entering." Tr. Oral Arg. 29. view, end up seep "originate" he "stored, Dam." 59. 26 asserts plain, unambiguous include Conchas. But suggests. literal reading including tributaries arise Colorado, Vermejo purport foreclose arising State. implausible party 27 answer IV(a), right Conchas, mean says appeared reflected legislative history approving S.Rep. 1192, 82d Cong., 2d Sess, (1952). nevertheless claims found though admittedly source unsupported present literally read, retain having escaped grasp Texas; concedes go far, 28 ambiguity, dissent refuses recognize, fairly arguable virtue originated construed same way: spills, deemed effect conclusion came after examining detail negotiating Compact.4 29 reviewed considerable regarding consistent evidence.5 Although question doubt, Contrary assertions, developed. "[T]he negotiators recognized full already accordingly placing upon waters." Joint Statement Agreed Material Facts D. 34. strongly suggests believed ample Indeed, letter governor, Commissioner, John Bliss, projects feasible probably equal acre foot limit."6 Plaintiffs' Exh. 30, p. central settle respective water; plainly show parties Had thought needed, higher. Under circumstances, let substantially entered Nor believe supports negotiator either. 31 strengthened both Bureau Reclamation studying engineers advising during negotiations, included outflows estimates supply Texas.7 C.7, D.16. prevent enlarging flowing 6. correct, fail how refutes apparently never attempted economically infeasible, suggest contemplated seek future. Instead, noted above, operating assumption developed uses need uses. It follow entitlement point Any Dam.8 32 worth noting observation IV, accepted, deleterious impact hence "run Congressional conditioning funding execution subsequently Compact." 57. informed rely arriving Canadian. Yet version would, practical matter, ever building facilities, time principal inflow 33 satisfied. No otherwise. adequate allocation indeed generous. Since signing developments area require amounts consumptive According Master, slightly 1,000 sold 1963. 68. entitled anticipated take care construe amount, put 34 Accordingly, Report.9 35 report, remand certain pool,"10 allegedly serves control" II(d). except recommendation, record make issue, neither refer acknowledged him 99-100, declined attempt, via Commission, settlement. sustain 36 "Where themselves controversy them, determine inter sese, pass every essential determination. ." Kentucky Indiana, 281 163, 176-177, 50 275, 278, 74 L.Ed. 784 (1930). true "often [a] preference controversies 'mutual accommodation agreement' ", 564, 1479, 542 (1963) (quoting Kansas, 320 383, 392, 176, 180, 88 116 (1943), Nebraska Wyoming, 325 589, 616, 1332, 1350, 89 1815 (1945)), "does serious responsibility adjudicate cases actual, controversies" streams. U.S., S.Ct., 1479-80. doubt invoked jurisdiction, instead sending merits.11 37 challenge part.12 necessary. 38 So ordered. 39 Chief whom KENNEDY join, part. An compact, Constitution, Congress, nonetheless essentially contract signatory States. overruling objections varies freely agreed. power this, restricts concur opinion. 41 traverses three originates high country northern erected two provide irrigation farming city throughout region, Amarillo Lubbock. eastward across thence southeasterly almost entire joins Eufala few Fort Smith, Arkansas. 42 convened Canadian's manner hoped anticipating governs follows: "(a) shall 44 "(b) limited aggregate hundred thousand (200,000) acre-feet." App. 4a. company majority's Article, my provision says. By express terms, places Dam: first, enjoyment lower-basin restricted Mexico; second, allocate total waters. 46 thus distinguishes lower upper basin. enjoys latter. ordinary understanding "arise" "com[e] existence" location. Oxford English Dictionary 935-936 (2d ed. 1989). according These Unlike 47 Despite import concludes says, fashions different described. 'stored, Dam.' Ante, 232 59) original). emphasized reflect parties, imputes them. grants "all" reads "some": excluding winds 232-233. holds use—even 48 A parties. 482 124, 128, 107 2279, 2283-84, 96 105 (1987). elevates law United yet remains normal rules enforcement construction. "unless somehow unconstitutional, court order relief inconsistent terms." 462 554, 103 2558, 2565, 77 (1983). mandate 49 rewrite consequences faithfully applying provision. 230-232. taken word, lay Colorado. chase down, continue access passes Based drafted produce consequence Colorado's, Texas', abandons text casts off search "originating." 232. approach conjures impractical none exist. way notion (a participate Compact) forfeit Colorado's implicated all. small participated it. allocates belonging X. not, to, outside purported deal claims. 51 Similarly, dispels extend left state. [the] Texas," limitations. recapture errant reaches "in" failure reconcile violates rule statutory read together meaningful manner. Utah, Nevada California Stage Co., 199 414, 423, 69, 72-73, 251 (1905). 52 announced today, certainly done directly. not. "which restricted. reasonable content. 53 free-form exploration parties' agreement, reliance introduce ambiguity contrary precedents unfair substitute purpose. acted settled principles law. disallow recourse circumstances. jurisdictions, agreement expresses courts extrinsic vary terms. See, e.g., Mercury Investment Co. F.W. Woolworth 706 P.2d 523, 529 (Okla.1985); Hobbs Trailers J.T. Arnett Grain 560 S.W.2d 85, 87 (Tex.1977); Trujillo CS Cattle N.M. 705, 709-710, 790 502, 506-507 (1990). Even viewed statute, treatment improper. gave blessing so, codified 565-566, 1480, (1963), "[w]here exercised constitutional own notions 'equitable apportionment' apportionment chosen Congress." 54 look overflow find piece relied supportive position, persuasive. 55 place used. reasons, assumed needs. 236. "these circumstances," demonstrate 237. 56 preliminary view. directly addresses establishes derived perceived "Hill memorandum," authored Raymond Hill, Chairman Committee, approved meeting January 31, 1951, directed Creek minor stream works Texas." Plaintiff's 38, Senator Anderson signed, expressly spills. 28. contrast, direct whatsoever statement captured 57 assuming facts conclusion. observes reliable supplies Committee determined "above use—any deplete Project; emphasize better utilization supplies." assessment, face, usage specific raised overflows asserting Engineer Advisors contemplate Tucumcari. himself concluded, "The said Advisors' recur frequency magnitude have." 67 58 relies 1960 study estimating 102, pp. 64, 67, 70-71. too bearing IV. published nearly decade signed. Bureau's acknowledges occurred 1941 1942, assume occasional contribute Project's supply. favor another physically incapable capturing floods century. merely reality; alone. 59 Finally, putting aside dismissive expectations, today's makes little sense. protect force behave inefficiently using could, desired, behind dry beds 33-34; ante, 238. divert them locations. 242, 12. construction, therefore, diverting Dam; forces rightful costly, inefficient, wasteful engineering. unpredictable river: years dormant boiled keep wished modest facilities rest naturally today rewrites simple allocation. While rivers unpredictable, contracts involving be. frustrates expectations rewriting something decision. At named "by French traders hunters Canada who followed Spanish territory. Smith Fe pioneer trails went Valley." Encyclopaedia Britannica 789 (15th 1985). "Article comity; remove causes controversy; secure States; "As Compact: 'Canadian River' easterly direction includes North "(d) 'conservation storage' subsequent release domestic, municipal, uses, excludes control, production V. "Each furnish state attorneys general seeking responding request, certify negotiated attempt resort 32-33. anticipation authorization fall 1949. met February 1950 groundwork deliberations. meeting, technical data collected studied. On and, month later, Berkeley Johnson chairman commission. Hill advisor. official organizational held Advising Commissioners. Over next months, engineer advisors conducted studies data. October, second formal received committee's compact. principle formulas prepare prepared memorandum given Mexico" 50,000 Reservoir." Defendants' B, 3-4. November, strong desire month-long session begin November. working engineers, partial dated November 14. adopted Hill's regard able "to satisfactorily word" article dealing defined later. C, third 4-6, 5, revised advisers changes engineers' formulas. to" F, again morning "originating focal case. explanation last-minute revision. 11:15 a.m., revisions, 1:00 p.m., prompting comment speed "compact reached stage constituted record." 110, process somewhat less charitably, observing issues vividly Benjamin Franklin observed, 'haste waste.' 54. asked prepare, interpretive tool, providing detailed articles 140. document, described recent discussion Commissioner representatives positions allotment "Development Final Wording Compact," (the Memorandum"), Memorandum fourth 1951. negotiation interpret previously congressionally (1987), looked material required statute ambiguous. Green Bock Laundry Machine 490 504, 511, 1981, 1985-86, 104 557 (1989); Pierce Underwood, 487 552, 564-565, 2541, 2549-2550, 101 Blum Stenson, 465 886, 1541, 79 891 (1984). occasion compacts. 568, 14, 2567, (1983); 292 341, 359-360, 735, 742-743, 78 1298 (1934). entirely appropriate. agrees proper "negotiating words reasonably accordance context," Brief 8, 1, "delete language," ibid., "interpret" language. Essentially, disagrees Because interpreting principles. Bliss indicated rising (not ) feet." proves flooded But, like single much. First, compels argues. plausible understand text, infra, Second, indication transmitted officials governor legislature. Governor Mabry, mentions "little restriction" Bliss' Mechem very similar. 40. beyond cavil by, views "those engaged treaty embodied writing communicated government ratifying body," supra, 360, 742, ascertaining provisions. Reclamation, played significant role entitling 1954 "[e]xcept contribution [referring spills], obtained runoff site. 101, 50. 56, 58, coming memorandum, Commissioners permitted main tributaries, regulate Obviously, Project. traces arguments response exceptions, long improperly shifted burden proof Conchas" 26-28, merit lowest outlet elevation 3725 feet. Below elevation, natural gravity flow. customarily "dead depository water-borne reservoir. dead 20,700 half sediment. 1962, Interstate Stream agency, Game maintain minimum 3741.6 recreational unilaterally i.e., 3741.6, 49,900 acre-feet) overall control oppose designation contend toward decline invitation guidelines, existence, invoking jurisdiction. decree time, think best defer entry decree. respect event. respects, us substance report. His helpful. Third, paragraph diversions 112. provision, Earlier however, states "if Dam," id., 59, conclusion, stated, involve storage. event, anticipate

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