Document: 474 U.S. 121 106 S.Ct. 455 88 L.Ed.2d 419 UNITED STATES, Petitionerv.RIVERSIDE BAYVIEW HOMES, INC., et al. No. 84-701. Argued Oct. 16, 1985. Decided Dec. 4, Syllabus The Clean Water Act prohibits any discharge of dredged or fill materials into "navigable waters"—defined as the "waters United States"—unless authorized by a permit issued Army Corps Engineers (Corps). Construing to cover all "freshwater wetlands" that are adjacent other covered waters, regulation defining such wetlands "those areas inundated saturated surface ground water at frequency and duration sufficient support, under normal circumstances do prevalence vegetation typically adapted for life in soil conditions." After respondent Riverside Bayview Homes, Inc. (hereafter respondent), began placing on its property near shores Lake St. Clair, Michigan, filed suit Federal District Court enjoin from filling without Corps' permission. Finding respondent's was characterized presence requiring conditions growth, source water, wetland body navigable held subject authority. Appeals reversed, construing exclude category wetlands—and hence States"—wetlands not flooding waters support growth aquatic vegetation. court took view authority implementing regulations must be narrowly construed avoid taking just compensation violation Fifth Amendment. Under this construction, it within jurisdiction, because semi-aquatic characteristics were result frequent nearby therefore free obtaining permit. Held: 1. erred concluding narrow reading regulatory jurisdiction over necessary problem. Neither imposition requirement itself nor denial necessarily constitutes taking. And Tucker is available provide takings may exercise wetlands. Pp. 126-129. 2. Court's findings clearly erroneous plainly bring thus States" defined question. 129-131. 3. language, policies, history compel finding has acted reasonably interpreting require permits material States." 131-139. 729 F.2d 391 (CA6 1984), reversed. WHITE, J., delivered opinion unanimous Court. Kathryn Anne Oberly, Washington, D.C., petitioner. Edgar B. Washburn, San Francisco, Cal., respondents. Justice WHITE 1 This case presents question whether (CWA), 33 U.S.C. § 1251 seq., together with certain promulgated Engineers, authorizes landowners obtain before discharging bodies their tributaries. 2 * relevant provisions originated Pollution Control Amendments 1972, 86 Stat. 816, have remained essentially unchanged since time. §§ 301 502 Act, 1311 1362, States"—is forbidden unless pursuant 404, 1344.1 initially only fact, 1975 interim final redefining "the include actually but also tributaries interstate tributaries, nonnavigable intrastate whose use misuse could affect commerce. 40 Fed.Reg. 31320 (1975). More importantly present purposes, waters. A wetland" an area "periodically inundated" "normally requires reproduction." CFR 209.120(d)(2)(h ) (1976). In 1977, refined definition eliminating reference periodic inundation making minor changes. 1977 read follows: 3 "The term 'wetlands' means those conditions. Wetlands generally swamps, marshes, bogs similar areas." 323.2(c) (1978). 4 1982, replaced substantively identical remain force today. See 323.2 (1985).2 5 Respondent owns 80 acres low-lying, marshy land Clair Macomb County, Michigan. 1976, place part preparations construction housing development. believing "adjacent States," States Eastern seeking permission Corps. 6 portion lying below 575.5 feet above sea level enjoined Civ. 77-70041 (Feb. 24, 1977) (App. Pet. Cert. 22a); (June 21, 1979) 32a). appealed, remanded consideration effect intervening amendments regulation. 615 1363 (1980). On remand, again (May 10, 1981) 42a). 7 Sixth Circuit (1984). adopted because, view, broader might private compensation. expressed doubt Congress, granting regulate waters," intended allow waters.3 court's regulation, semiaquatic 8 We granted certiorari consider proper interpretation scope both which called Circuit's ruling. 469 1206, 105 1166, 84 318 (1985). now reverse. II 9 demand primarily one statutory interpretation: we determine meaning applicable and, if so, waters" gives discharges wetland. connection, first Appeals' position statute 10 frequently suggested governmental land-use extreme amount "taking" affected property. See, e.g., Williamson County Regional Planning Comm'n v. Hamilton Bank, 473 172, 3108, 87 126 (1985); Penn Central Transportation Co. New York City, 438 104, 98 2646, 57 631 never precisely circumstances, see id., 123-128, S.Ct., 2658-61; our general approach summed up Agins Tiburon, 447 255, 260, 100 2138, 2141, 65 (1980), where stated application particular piece "if ordinance does substantially advance legitimate state interests . denies owner economically viable his land." Moreover, made quite clear mere assertion constitute Hodel Virginia Surface Mining & Reclamation Assn., 452 264, 293-297, 101 2352, 2369-71, 69 (1981). reasons obvious. person engaging her "take" sense: after all, very existence system implies granted, leaving landowner desired. even denied, there uses owner. Only when denied prevent "economically viable" can said occurred. 11 If neither taking, follows "necessary" "a serious problem." F.2d, 398.4 that, general, "[e]quitable relief alleged public use, duly law, brought against sovereign subsequent taking." Ruckelshaus Monsanto Co., 467 986, 1016, 104 2862, 2880, 81 815 (1984) (footnote omitted). maxim rests principle so long fact taken, action unconstitutional. supra, U.S., 194-195, 3120-3121. For same reason, possibility program some instances individual pieces no justification narrowing constructions curtail will event cases adoption avoidance constitutional difficulty, cf. Ashwander TVA, 297 288, 341-356, 56 466, 480-87, L.Ed. 688 (1936) (Brandeis, concurring); merely frustrates permissible applications regulation.5 Because 28 1491, presumptively supplies occur through operation federal statute, 1017, 2880 wetlands, fears did justify adopting more limited than terms otherwise support.6 III 12 Purged spurious overtones, issue easy one. extends 404 Wetlands, turn, lands "inundated (1985) (emphasis added). plain language refutes conclusion "frequent flooding" sine qua non Indeed, hardly saturation either provided 13 underscores absence inundation. current explicitly included "periodi[c] inundation." deleting "periodic inundation" finally promulgated, explained repudiating "as record period years." 42 37128 (1977). fashioning own improperly reintroduced what had excised.7 14 Without nonexistent flooding, covers here. found "characterized reproduction," App. 24a, water. There plausible suggestion these erroneous, they addition, located extended beyond boundary Black Creek, waterway. Again, erroneous. Together, establish Hence, (1985), valid used address, falls Act. IV A. 15 An agency's charged enforcing entitled deference reasonable conflict intent Congress. Chemical Manufacturers Assn. Natural Resources Defense Council, Inc., 470 116, 125, 1102, 1107-1108, 90 Chevron U.S.A. 837, 842-845, 2778, 2781-2783, 694 Accordingly, review reasonable, light legislative regularly flooded rivers, streams, hydrographic features conventionally identifiable "waters."8 16 purely linguistic level, appear unreasonable classify "lands," wet otherwise, "waters." Such simplistic response, however, justice problem faced 404(a) realities pollution combat. determining limits power choose point ends begins. Our common experience tells us often task: transition solid abrupt Rather, between open dry lie shallows, mudflats, bogs—in short, huge array wholly nevertheless fall far short being land. Where continuum find limit "waters" 17 Faced bounds authority, agency appropriately look underlying policies grants sources provides unambiguous guidance case, reasonableness 404(a). Section constituted comprehensive attempt "to restore maintain chemical, physical, biological integrity Nation's waters." CWA 101, 1251. objective incorporated broad, systemic goal maintaining improving quality: House Report legislation put it, word 'integrity' refers condition natural structure function ecosystems [are] maintained." H.R.Rep. 92-911, p. 76 (1972). Protection ecosystems, Congress recognized, demanded broad control pollution, "[w]ater moves hydrologic cycles essential pollutants controlled source." S.Rep. 92-414, 77 (1972), U.S.Code Cong. Admin.News pp. 3668, 3742. 18 keeping views, chose define broadly. Although 301(a), 404(a), 502(12), 1311(a), 1344(a), 1362(12), Act's makes "navigable" import. evidently repudiate been placed earlier statutes powers Commerce Clause least would deemed classical understanding term. S.Conf.Rep. 92-1236, 144 (1972); 118 Cong.Rec. 33756-33757 (1972) (statement Rep. Dingell). 19 Of course, thing recognize satisfy traditional tests navigability; another assert abandon notions "wetlands" well. Nonetheless, evident breadth congressional concern protection quality suggests interpret encompass defined. Following lead Environmental Agency, 38 10834 (1973), determined matter play key role protecting enhancing 20 activities cause cannot rely artificial lines focus form entire system. cycles, system, regardless ordinary high mark, mean tide line, 21 "For landward border proximity States, system." 22 say inseparably bound States—based EPA's technical expertise unreasonable. contemplated inherent difficulties precise regulable ecological judgment about relationship adequate basis legal 23 holds true permeation having concluded lakes, streams inundate example, still tend drain serve filter purify draining 320.4(b)(2)(vii) slow flow runoff erosion, 320.4(b)(2)(iv) (v). "serve significant functions, including food chain production, habitat, nesting, spawning, rearing resting sites species." 320.4(b)(2)(i). integral parts environment moisture creating matters unreasonable, conclude encompassing abuts waterway, required case.9 B 24 promulgation 1975, engendered opposition. controversy came head during Congress' major aimed achieving "interim improvements existing framework" 95-139, 1-2 end, shall explain, acquiesced administrative construction. 25 Critics attempted insert limitations legislation: bill reported out committee proposed redefinition (defined periodically contiguous waters). H.R. 3199, 95th Cong., 1st Sess., Senate Committee Environment Public Works, contrast, contained dealt perceived overregulation exempting (primarily agricultural) providing assumption duties federally approved programs. S.1952, 49(b) floor Senate, amendment limiting along set forth bill. 123 26710-26711 26 Chambers, debate proposals centered largely preservation. 10426-10432 (House debate); 26710-26729 (Senate debate). Proponents contended exceeded enacting 404. Opponents changes argued narrower purposes vast stretches crucial detrimental effects quality, generally. debate, particularly lengthy. House, ended narrowed "waters"; defeated old retained. Conference Senate's approach: efforts abandoned; ultimately passed, words Senator Baker, "retain[ed] exercised 1972 Act."10 27 significance treatment twofold. First, asserted specifically attention, rejected measures designed curb large unduly hampered chary attributing failure act, refusal overrule evidence attention supplant it. Bob Jones University 461 574, 599-601, 103 2017, 2032-34, 157 (1983); Rutherford, 442 544, 554, n. 99 2470, 2476, 61 68 (1979). Second, notable who restricted reach done removing altogether restricting amending only, backers left intact As explained: " 'Navigable waters' section includes wetlands." Thus, thought too recognized (1) then interpreted (2) concerns (3) whatever retain passage should extend retained jurisdiction. These views additional 29 Two enacted programs material, permitted supersede ebb tide, "including thereto." 404(g)(1), 1344(g)(1). Here, then, expressly wetlands.11 appropriation $6 million completion Department Interior "National Inventory" assist "in development Act." 208(i)(2), 1288(i)(2). enactment provision reflects recognition supports "implementing policy rather embarking frolic own." Red Lion Broadcasting FCC, 395 367, 375, 89 1794, 1799, 371 (1969). C 30 persuaded embodied class filled permit; seen, reason indicate. 31 Reversed. With respect transferred devised 404(g), added, 91 1600, 1344(g). Absent program, retains 323.2(a)(2) us. denying Government's petition rehearing, panel reiterated somewhat strongly belief "overbroad inconsistent 401. Even correct requirement, adopted—which showing classified tailored supposed difficulty. Whether given depend upon owner's ability productive use. bearing question, overbroad completely submerged Kaiser Aetna 444 164, 383, 62 332 likely flooded. excluding chunk definition, gross number entail; bears insufficiently seeks avoid. Security Industrial 459 70, 407, 74 235 (1982), contrary. substantial argument retroactive Bankruptcy Code every taking; solution difficulty apply prospectively. sensible appears observed, case: probably unwarranted. property, well ripe claim us, evaluating claim, introduced extent frustrate investment-backed expectations. event, lawsuit forum resolving dispute: indeed effectively taken course resist enforcement initiate Claims stating, rule temporary relent filled. yet resolved constitutionally mandated remedy "temporary takings," occasion deciding issue. seems rested frequent-flooding stating "under support" preamble "abnormal non-aquatic area." Apparently, soils emanating "abnormal" preamble. untenable explicit statements It nonsensical sentence them abnormal. Evidently, something else mind referred vegetation—namely, aberrational dry, upland areas. address express great importance adjoining But seriously undermine decision majority cases, ecosystem, stand. That significantly intertwined ecosystem waterways little moment, lacking environment—or outweighed values—the always simply issuing 320.4(b)(4) 39209 (1977); 39210 Sen. Wallop); 39196 Randolph); 38950 Murphy); 38994 Ambro). To sure, 404(g)(1) conclusively elsewhere (particularly 502(7), contains waters"); various pari materia, suggest "wetlands."

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