Document: 440 U.S. 668 99 S.Ct. 1403 59 L.Ed.2d 677 LEO SHEEP COMPANY et al., Petitioners,v.UNITED STATES al. No. 77-1686. Argued Jan. 15, 16, 1979. Decided March 27, Syllabus. The Union Pacific Act of 1862 granted public land to the Railroad for each mile track that it laid, and this was done under a system whereby surrounding railroad right-of-way divided into "checkerboard" blocks, with odd-numbered lots being even-numbered reserved Government. Petitioners, railroad's successors in fee certain Wyoming lying vicinity reservoir area used by fishing hunting, brought an action quiet title against United States after Government had cleared road across Leo Sheep Co.'s afford access area. District Court petitioners' motion summary judgment, but Appeals reversed, holding when Congress Railroad, implicitly easement pass over sections order reach held Held: does not have implied build land. Pp. 678-688. (a) tenuous relevance common-law doctrine necessity Government's asserted right here is insufficient overcome inference prompted omission any reference such right. 679-682. (b) Nor canon construction that, grants federal lands are at issue, doubts "are resolved Government, it," Andrus v. Charlestone Stone Products Co., 436 604, 617, 98 2002, 2010, 56 570, support position, since be so construed as defeat intent legislature," Denver & Rio Grande R. 150 1, 14, 14 11, 37 L.Ed. 975. 682-683. (c) Unlawful Inclosures Public Lands 1885 significance case, unwillingness entertain without compensation cannot considered violation Act, having been recognized Camfield States, 167 518, 17 864, 42 260, obstruction individually fenced Act. 683-687. 570 F.2d 881, reversed. Clyde O. Martz, Denver, Colo., petitioners. Sara S. Beale, Detroit, Mich., respondents. Mr. Justice REHNQUIST delivered opinion Court. 1 This one those rare cases evoking episodes country's history if forgotten, remembered dry facts adventure. Admittedly issue mundane: Whether has originally 1862—a grant part governmental scheme subsidize transcontinental railroad. But posed backdrop fascinating chapter our history. As noted another case involving "courts, construing statute, may propriety recur times passed; frequently necessary, ascertain reason well meaning particular provisions it." 91 72, 79, 23 224 (1875). In spirit we relate events underlying passage 1862. 2 * early 19th century—from Louisiana Purchase 1803 Gadsden 1853—saw acquisition territory now regard American West.1 During years, however, remained largely untapped resource, settlers on eastern seaboard did keep pace rapidly expanding western frontier. A vaguely delineated forbiddingly referred "Great Desert" can found more than map published before 1850, embracing much States' west Missouri River. late 1860, example, entire population State Nebraska less 30,000 persons, which represented person every five square miles within State. 3 With discovery gold Sutter's Mill California 1848, rush began sharp increase settlement West. Those East visions instant wealth, confronted unenviable choice among arduous 4-month overland trek, risking yellow fever 35-day voyage via Isthmus Panama, better around Cape Horn. They obviously yearned alternative, interest focused 4 idea predated rush. From time Asa Whitney proposed relatively practical plan its 1844, had, words century's leading historians era, "engaged eager attention promoters politicians until dozens schemes were air."2 building unalloyed product free-enterprise system. There indeed inspiration men like Thomas Durant Leland Stanford perspiration generation immigrants, animating all desire Federal West settled. intensified need provide logistical link heat Civil War. That venture too risky expensive private capital alone evident years fruitless exhortation; investors would move tangible inducement.3 5 mid-19th century there serious disagreement forms inducement could take. Story, his Commentaries Constitution, described extant school thought argued "internal improvements," railroads, enumerated constitutional powers Congress.4 Under theory, direct subsidy constitutionally suspect—an uneasiness aggravated President Andrew Jackson's 1830 veto bill appropriating funds construct from Maysville Lexington Kentucky.5 6 response "gray" area, source political controversy, land-grant scheme. laid.6 Land railway blocks. Odd-numbered Pacific; result, usually surrounded land, vice versa. historical explanation peculiar disposition apparently attempt disarm improvement" opponents establishing "demonstrable" benefits. historian notes describing 1827 intended facilitate between Columbus Sandusky, Ohio: 7 "Though awkwardly stated, fully developed 1827, beginning practice followed most future instances granting specific internal improvements: donating alternate or half strip along line project reserving other sale. . later donations price doubled argued, Congressional Globe shows ad infinitum, giving away thereby making possible road, canal, railroad, government recover received whole." P. Gates, History Law Development 345-346 (1968).7 8 1850 technique first explicitly employed subsidization Illinois delegation Congress, included Stephen A. Douglas, secured enactment aid Central Railroad.8 connecting lines south nearly three million acres rights way through Illinois, Mississippi, Alabama, end 1854 main Chicago Cairo, Ill., put operation. Before constructed, gone begging minimum price; few completion, disposed selling prices far above offered 9 improvements" theory only obstacle 1853 appropriated moneys authorized Secretary War Jefferson Davis undertake surveys various routes badly split sectional appropriate location route—so Senator suggested northern, central, southern route, branches East.9 proposal, break impasse. 10 necessary impetus provided Senators Representatives seceded no longer present therefore overtones dispute disappeared. Although major engagements during River coast covered two minor doubtless made some impression upon able transport readily materials military purposes. 11 Accounts do generally include Battle Picacho Pass, because Edwin Corle, author Gila, "[i]t called nothing skirmish today."10 It fought northwest Tucson, Ariz., April 1862, small contingent Confederate cavalry commanded Captain Sherod Hunter troops Colonel James H. Carleton consisting infantry, cavalry, artillery components known "California Volunteers." battle draw, forces losing outnumbered Confederates suffering killed captured. Following battle, abandoned they previously occupied, Carleton's entered city May 20, 12 Glorieta Pass similarly endured anonymity. Also La Apache Canyon, lies upper valley Pecos River, foothills Sangre de Cristo range Rocky Mountains near Sante Fe, N. M. Here spring regiment Colorado volunteers, moved forced marches Ft. Union, turned back led Brigadier General Henry Sibley which, encounter, marched triumphantly northward up Valley Bliss. result New Mexico saved Sibley's fell easterly direction Texas advance column Californians.11 13 These gave immediacy comments Congressman Edwards Hampshire debate bill: "If preserved, successfully combat difficulties us, crush out rebellion lawful authority restoration, becomes statesmanlike prudence sagacity, look carefully future, guard considerations threaten dismemberment country hereafter." Cong.Globe, 37th Cong., 2d Sess., 1703 (1862). 15 often war spurs technological development, enacted Perhaps coincidentally, Homestead passed same month. 16 specified route 100th meridian, site Platte cities Kearney North Platte, Neb., California. original terminals located points River; fact Omaha terminal built according plan.12 either side track. When Pacific's subscription drive investment proved failure, extending checkerboard 20 Private still sluggish, begin July 1865, months cessation hostilities.13 Thus race laying eastward Sacramento, went laid. culminated driving golden spike Promontory, Utah, 10, 1869. II 18 modern legacy these grants. Co. Palm Livestock Railroad's oddnumbered Carbon County, Wyo. lie east Seminoe Reservoir, hunting. Because configuration, physically impossible enter Reservoir sector physical intrusion immediately preceding litigation, complaints owners denying their requiring payment fees. After negotiation failed, dirt local county both domain also erected signs inviting use reservoir. 19 Petitioners initiated pursuant 28 U.S.C. § 2409a States. reversed appeal Tenth Circuit. 881. latter court concluded affects property Western certiorari, 439 817, 78, 58 108, reverse. claim express reservation authorize property. Section sets reservations grant. "sold, reserved, otherwise States," homestead claims. Stat. 492. Mineral excepted operation Ibid. Given existence explicit exceptions, past refused add list divining "implicit" congressional intent. Missouri, K. T. Kansas 97 491, 497, 24 1095 (1878), Field clear: "It gift rights, except specifically mentioned ." although clear terms claims established prior overrode grant; conflicting arising given effect. To lack itself, argues implicit "settled rules law" 1885. 21 Where landowner conveys individual portion retains rest, presumed common law grantor retained rights-of-way "easements necessity."14 problems reliance notion case. First all, whatever might have, recreational area.15 More importantly, actually matter power eminent domain. Jurisdictions seen easements alternative ways effect result. For recognizes landlocked estates. provides instead procedure owner condemned behalf servient estate.16 similar reasons state courts "easement necessity" available sovereign.17 22 applicability is, therefore, somewhat strained, ultimately little significance. pertinent inquiry listed grant, find sufficient problem thought; least likely negotiation, reciprocity considerations, obvious devices ameliorating disputes.18 So intent, unwilling imply rights-of-way, substantial impact implication 100 ago, absence stronger makes here. us decide basis familiar (1978). long ago declined apply full vigor Acts. observed: "The solution [ownership] questions [involving grants] depends, course, acts grants; receive will carry however difficult give language instruments conveyance. must condition passed, purpose declared face, read parts them together." Winona St. Peter Barney, 113 618, 625, 606, 609, 1109 (1885). 25 harmonized longstanding rule enunciated recently Andrus, supra, 15-16, 975 (1893) said: 26 undoubtedly, urged plaintiffs error, well-settled strictly grantees, legislature, withhold what expressly fair implication. 27 ". act, operating general law, manifesting clearly intention secure advantages, subserve interests welfare means benefits valuable, offers individuals corporations accomplish great enterprises works quasi character immense undeveloped domain, legislation stands different footing merely should hands liberal favor purposes enacted." Thus, invocation reiterated position 29 controversy. "range wars," legendary struggle cattlemen farmers last century. Cattlemen Kansas, Nebraska, Dakota Territory settlers, grazed herds freely acquiescence.19 maintain dominion ranges, pre-emption laws gain control water sources lands. monopoly sources, ownership yield effective thousands grassland. Another exclusionary illegal fencing pattern By placing fences borders checkerboard, fence Reports Interior indicated vast areas grazing pre-empted patterns.20 1885.21 30 states "[a]ll inclosures constructed inclosure color acquired good faith unlawful." 321, 43 1061. further provides: 31 "No person, force, threats, intimidation, inclosing, unlawful means, shall prevent obstruct, combine confederate others peaceably entering residence tract subject entry obstruct free transit lands: Provided, section affect who upon, improved, occupied said claiming thereto, faith." 322, 1063. 32 prohibitions somehow refusal acquiesce property, conclusion supported Court's 260 (1897). We find, seeks. involved enclose 20,000 exclusive associates. analyzed perspective nuisance exercise police power. 33 nothing, suggest fact, affirmed grantee's completely own 34 "So proprietor confines enclosure complain, he entitled complete enjoyment it, regardless detriment neighbor; when, guise enclosing builds useless purpose, plainly guilty unwarrantable appropriation belongs large." Id., 528, S.Ct., 868. 35 Obviously, fenced, obstructed. Yet light see how certainly true confront today concern made. day open range—barbed wire presence felt—and type incursions interference litigation serve motive spite.22 believed development came, occur parallel fashion adjoining process subdivision, organization polity, ordinary pressures commercial social intercourse work itself roads.23 expresses sentiments. quoted conceding perimeter lot, opined "since separate become desirable settled, roads section." testament sense virtually unprecedented, 117 made, rare. 36 Nonetheless, litigious ones anticipate plight. Generations patents issued claimed before.24 discussed discussion colored assumption purchased.25 traditionally special certainty predictability where titles concerned, upset settled expectations accommodate ill-defined thoroughfares compensation.26 judgment Circuit accordingly Reversed. 38 WHITE took consideration decision Except noted, draws C. Ames, Pioneering (1969); Athearn, Country (1971); Howard, Great Iron Trail (1962); J. McMaster, People Lincoln's Administration (1927); Nevins, Ordeal (1947); White, Railway (1895). supra n. 82. exhortation came visionaries On floor House, Hart Benton compared Egypt extolled wealth shared 22-23. William Seward York, man timidity, proclaimed "that ought built; I think scientifically demonstrated feasible, three, four, offer facilities security object." 35th 1st 1584 (1858). book An Overland Journey, Horace Greeley equally enthusiastic. He calculate economic feasibility estimating potential revenue, based value current shipments California, passenger fares obtained, cost transporting maintaining army providing mail services. Greeley, Journey 310-316 (C. Duncan ed. 1964). despite enthusiasm appreciated effort beyond alone. amount vast; enterprise formidable; returns remote uncertain." "[W]hat assurance association citizens devoted energies rivaled destroyed route?" 324. Constitution 166-172 (5th 1891). See 579-585 (1859) (Sen. Johnson). Richardson, Compilation Messages Papers Presidents 1789-1897, pp. 483-493 (1896). 489. transportation gained momentum administration John Quincy Adams, share Madison's Monroe's about constitutionality involvement activities. Checkerboard achieved currency canal era. Apparently Wabash Erie Canal Indiana. 341-356 (1968). Sept. 466. not, 1833, permitted 7, 357. Whitney's proposal contemplated terminus shore Lake Michigan, northern Oregon. Gwin Southern sympathizer, running Memphis Smith Albuquerque Los Angeles. eschewing extreme routes, advocated "a central national highway"—beginning Louis. 82-83. E. Gila 232 (1951). Hall, Campaign (1960); W. Whitford, Volunteers (1971). lauded courage, optimism. One commander reported responded demand surrender: "We fight surrender afterwards!" G. Harris, Tale Men Who Knew Not Fear (1935). meridian rail raise crops irrigation. Omaha, 300 east, receives average inches rainfall per year, while Sidney, line, year. represented, travelers boundary amorphous Desert." "In general, content postulate institutions, orientations, habits maintained form reaching West, whereas many important not. second place, ignorant incurious natural conditions determine life differentiate sections, orientations." Introduction Bernard DeVoto Stegner, Beyond Hundredth Meridian xviii-xix (1954). Construction begun then Credit Mobilier, limited-liability company essentially owned Pacific. investors, Oakes wealthy England shovel maker, investor Mobilier Member Congress. contracted portions 1866 several large corporations. Allegations improper bribery Members House appointment investigatory committee 1872 1873 looked affairs Mobilier. investigations revealed improprieties recommended Ames expelled investigation touched career President. Leech Brown, Garfield Orbit resolution condemning policy subsidies railroads. 42d 1585 (1872); Northern 315 262, 273-274, 62 529, 533-534, 86 836 (1942). Of reaction decade conduct associated influence interpretation today. Powell, Real Property ¶ 410 recent application doctrine, Hollywyle Assn., Inc. Hollister, 164 Conn. 389, 324 A.2d 247 (1973). very unlikely intrusion, reasonably failure render useless. precisely define scope necessity. commentator relied notes: "As name implies, situations usefulness stake. resultant embodies best essential land's use. Changes dominant parcel's exert some, influence, determining easements." 416, 34-203 34-204 (footnotes omitted). See, e. g., Higbee Fishing Club Atlantic City Electric 78 N.J.Eq. 434, 79 326 (1911) (footpath, roadway, proper estate clubhouse parties grant). Wyo.Stat. §§ 24-9-101 24-9-104 (1977); Snell Ruppert, 541 P.2d 1042, 1046 (Wyo.1975) (statute "offers relief shut-in covers whole matter"; "[i]f statute matter, abrogation necessarily implied"). also, Quinn Holly, 244 Miss. 808, 146 So.2d 357 (1962). related Part opinion, surprising "private" statutes prevalent Black Bros., 116 Tex. 615, 629-630, 297 S.W. 213, 218-219 Pearne Coal Creek Min. Mfg. 90 Tenn. 619, 627-628, 402, 404 (1891). intimations commonly understood road. Representative Cradlebaugh Nevada amendment became prospect valuable minerals adequate owner. defeated. spoke Sargent stated: gentleman proposes allow man, whether mineral silver, loose method injuries inflicted. Now, sir, turn thus commits utterly insolvent, pay dollar, compensated tearing down dwellings, rooting orchards, destroying crops?" 1910 debates earlier [the Government] go take paid Simmons Rhode Island, lamented consideration. 579 (1859). permit railroads obtain behest. Simmons' confused, evince prevailing Clawson B. Held, 57-58, 84-85 (1957). H.R.Rep. 1325, 48th Sess. (1884). letter cattle companies each. heightened foreign owned. 2. amended, 1061 seq. Buford Houtz, 133 320, 305, 618 (1890), reached 24, infra. expectation fostered Each block mile—640 acres. homesteading, 160 maximum allowable 392. required sell dispose completion period homesteading pre-emption. subdivision perceived, degree, inevitable. concerning Cass Michigan outlined dynamics underlie grants: new owns proportion it. surveyed, thrown market, emigration invited. Tract sold, villages towns up, improvements 31st 846 (1850). distinguishes supra. appellants group ranchers seeking, inter alia, injunction sheep graze lots. denied requested contrary century-old custom. influenced ranchers' alternative. "Upon whole, equity sought undertakes deprive defendants run feed grasses them, while, pretence owning themselves privilege." U.S., 332, 309. neither custom nor supports 1887 enact extent taking individuals, "the compensation." Report Fiscal Year Ending June 30, 1887, p. (1887); 1888, xvii (1888). Garfield, 211 70, 76, 31, 32, 53 92 (1908); Silver Mining Elgin Smelting 118 196, 207-208, 1177, 1183-1184, (1886); Lessee Irwin Doolittle's Bryan, How. (55 U.S.) 563, 567, 543 (1853).

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