Document: 345 U.S. 153 73 S.Ct. 609 97 L.Ed. 918 UNITED STATES ex rel. CHAPMAN, Secretary of the Interior,v.FEDERAL POWER COMMISSION et al. VIRGINIA REA ASS'N v. FEDERAL Nos. 28, 29. Argued Oct. 22, 1952. Decided March 16, 1953. Mr. Gregory Hankin, Washington, D.C., for Oscar L. Chapman. Robert Whitehead, Lovingston, Va., Virginia Ass'n. Bradford Ross, respondent Federal Power Comm. T. Justin Moore, Richmond, Electric & Co. Messrs. Charles F. Rouse, Raleigh, N.C., David W. Robinson, J., Carolina Light Herbert B. Cohn, New York City, Appalachian Justice FRANKFURTER delivered opinion Court. 1 In these two cases, Interior and an association nonprofit rural electric cooperatives have challenged authority Commission to grant power company, VEPCO, a license construct hydroelectric generating station at Roanoke Rapids, North Carolina. They claim that Congress, by approving comprehensive plan set out in Flood Control Act 1944 improvement River Basin, has withdrawn all eleven sites proposed development plan, including from licensing jurisdiction reserved them public construction. The underlying premise, approved Congress presupposed federal included also underlies petitioners' other main contention here, Commission's concurrence constituted determination water resources should be undertaken United States itself. Such determination, they say, requires under § 7(b) Act, 41 Stat. 1067, as amended, 49 842, 16 U.S.C. 800(b), U.S.C.A. make investigations submit its findings together with appropriate recommendations any event bars applications private construction project. Petitioners unsuccessfully raised contentions, along attacks on not pressed before Court Appeals Fourth Circuit, which denied their petitions aside order granting VEPCO. Comm., 191 F.2d 796. We granted certiorari, 343 941, 72 1034, 96 1346. cases present questions importance involve conflict view between agencies Government having duties relation national resources. Determination issues may affect substantial number important potential power. Cf. Rules Sup.Ct. 38(5)(b), 28 2 Both here court below, standing raise been questioned. points his statutory duty act sole marketing agent developed projects required operation project; 5 directs him transmit dispose such manner calculated 'encourage most widespread use thereof lowest possible rates consumers consistent sound business principles'. 58 890, 825s, 825s. This provision, it is said, announces congressional policy guidance would disturbed company's plan; thus specific interest Secretary, addition more general relating conservation utilization Nation's resources, said adversely affected order. Association, cooperatives, asserts that, organization entitled, 'public bodies,' preference sales 5, low-cost Rapids site consequently kind instrumentality, or private, this committed. Respondents however, decisions entrusted Commission, Army, whom Corps Engineers performs functions making surveys constructing works, interests petitioners arise only after project constructed Army determined there excess distributed sold. 3 hold standing. Differences view, preclude single both petitioners. It further clarification complicated specialty jurisdiction, solution whose problems less circumstances individual situations, divergent grounds support cases. 4 Petitioners' contention, has, series enactments construed part evolving assumption over navigable waters, so placed beyond us consider some particularity steps plans unfolded. reduces itself agency delegated responsibility safeguarding revoked pro tanto action particular site. 1927, were authorized survey Rivers Harbors 44 1010, 1015, 'adopted authorized' enumerated 'works improvement' 'Surveys accordance with' H.R.Doc.No. 308, 69th Cong., 1st Sess. (1926). That document, milestone integrated planning had recommended large streams throughout country, River, 'either preparation alone connection enterprise, secure adequate data insure waterway developments enterprise fit into full stream.' 4. detailed was transmitted 1934; Chief stated navigation power, flood control irrigation 'is economically justifiable time,' 65, 74th (1935), concurred judgment investigating engineer '(t)here no justification expenditures either power.' Id., 53; cf. id., 14—15. 6 1936 enacted 1936, 1570, defining follows: 'It hereby recognized destructive floods upon rivers * constitute menace welfare; sense waters tributaries proper activity *; improve participate tributaries, watersheds thereof, flood-control purposes if benefits whomsoever accrue are estimated costs, lives social security people otherwise affected.' 33 701a, 701a. same War continue localities, 'Reservoirs Tar Rivers, Carolina.'1 7, 1596. provided 'the shall deemed entered mentioned until work adopted law'. 1592. 7 Following 1940, House Committee resolution requesting reappraisal previous reports determine 'whether improvements allied advisable time.' See 650, 78th 2d 12 (1944). A similar later Harbors, see ibid., result, submitted report became Basin issue. system dams reservoirs, eight authorization those projects, designated Buggs Island Philpott, 'as initial step.' 2. 8 rely strongly features outlined report, Commission. As moved up through hierarchy Engineers, comments made different responsible officers. interest, bases obviously contemplating financing. These figures accepted each forwarding officer. Further, submitting stated, 'To safeguard control, facilities constructed, operated, maintained direction supervision Engineers.' Ibid. Neither nor subordinates contained suggestion engineering reasons why recommendation might made, gave suggestion. clear context statement referred simply authorized, is, ones features, even words 'under supervision' precluded applicant; indeed, specifically licensee 'operate Department representative prescribe.' do think disconnected statements justify saying went plainly plan. There contrary indications itself; particularly pertinent light practice strong emphasis put aspects authorization. event, we clearly integral decisive question what isolated thereon imply but how fairly received read legislative works. 9 deserves mention site, although comprehended found desirable units, production District Engineer pointed early provide practically derived installations sites, 'eliminate 90% losses flood-damage aress Basin.' 88. At built multiple-purpose reservoirs low-water regulation, while nine one minor exception, projects. 10 customary, asked comment proposal; letter dated May 3, 1944, suggested technical changes substantially 'that prepared therefor district consisting 11 dam reservoir Philpott step presented bill consideration; already closed hearings, Senate Report amending include provision recommending 'approval Reservoirs S.Rep. No. 1030, 8. proposal accepted, contains corresponding provision. provides following works authorized'. Included omnibus listing following: 'The development' H.R.Doc. 650 approved' 'hereby cost $36,140,000.'2 13 language say withdrew ask word 'approved' reservation and, necessary implication, withdrawal authority. flat 'approval' indispensable constituent indeed effect, but, indicated above, find recommendation. 14 separate argument based proviso commonly inserted authorizations surveys,3 law.' From infer Government's entry occurs when adopts project, adoption occurred comprehending carries implication 'adoption' 'authorization' own force. Read concerning history regard, without more4 cannot taken, think, indicate case than finding matter built, standards ordered meaning conveying purpose expressing attitude. Concretely means basic systematic river basin. Decision locations serve, approximate size construction; because interrelationship many economic several basin, choice among alternatives imperative. chosen approves first place, directed appropriating function.5 Approval tells Commission—the executant policy—how exercise Basin. utility determining whether applicant adequately develop site.FN 3. e.g., quoted 158, 613, supra. 15 interpreting used, gain taken motion enactment statutes 'approving' 'authorizing' certain For itself, 'authorized' complete authorization; 'planning money' appropriated, 'Definite Project Report' Island, then funds appropriated. Equally illuminating procedure recently build exactly approximately time submitted, comparable Savannah Georgia, much like Like Clark Hill immediate authorization, thorization, H.R. Doc. 657, 6. demand increased, follow, Hartwell recommendation, 9—10, just called project.' 10. Section 894. Thus, background well precise terms provisions closely parallel Recently, Hartwell, next line, recommended, neither treated earlier final unnecessary automatic appropriations Hartwell. Rather, hearings held, Hearings Public Works 5472 (Title II), 81st 37—85 (May 1949), 1950, 64 171.6 point held Hart-well Smith Mountain, line 1944. involved Gaston ahead Mountain. reason given changing applications, application contemplated sites. While attach weight subsequent did note legislation informed pending Whether agreed allowed approved, fact prevent proceeding hear VEPCO application, learned year half handed down 17 Whatever proceedings afford, solid ground concluding entire basin definiteness finality warrant holding whole continuing exercising Congress. Extensive review need integration activities affecting waterways, see, Stimson, 929, 62d 3d 32—35 (1912), breadth response hardly establish role development. See, First Iowa Hydro-Elec. Co-op. 328 152, 180, 181, 66 906, 919, 90 1143, cited. brought consciousness during administration President Theodore Roosevelt, significant devising instead ad hoc difficulties dangers local pressures logrolling rise. Veto Messages Presidents Roosevelt Taft, 36 Cong.Rec. 3071 (Muscle Shoals, Ala., 1903); 42 4698 (Rainy 1908); 1350, 60th (James 1909); 899, (White 1912); S.Doc. 949, (Coosa 1912). soon wise creation commission powers Interstate Commerce field transportation. took usual come being, process step-by-step. Originally composed three Cabinet 1063. An burdened naturally inadequate instrument water-power policies. And so, 1930, reorganized expert body five fulltime commissioners. 46 797, 792, 792. expressed policies board administrative investigative permanent disinterested carry 1065, 839, 797; Rep.Pres. Water Resources Policy Comm'n 501 (1950). 18 principal always interest. 66th Express charge task deciding ought 1067 800(b). allowed, approval 'best adapted plan' 1068, 803(a), 803(a). can read, case, fullest realization used provisions. does reserve perhaps wished construction, so. 1353, 45 1012, 1062. 19 Of course intimate Nor propriety 'in harmony Re Co., 87 P.U.R.,N.S., 469, 483. decide To conclude done be, was, long-term development, contract, tenuous chain inferences, broad Particularly relevant regard estimate normal years. Examiner's 17, R., I, 109. aware commit permanently action. would, express time, conception way developed. For, short fifty years automatically becomes available compensation, makes operated publicly right then, steps, take 1071, 844, 807, 807. manifested inferring consonant scheme now 20 Our conclusion accord implications manifest reluctance enter navigational benefits. unclear term settled, major controversy arisen again authorizing declaration supra, 157, puts produce power; change Cf., 4126; 4127. sponsor answer question: '* repeatedly debate reservoir, dam, embraced unless primarily control. If incident, reclamation provided, cared bill.' 4199; 4202. declarations, strains belief reserves named chief authorized. 21 Subordinate arguments bearing partly issue license. details serve useful canvass here. Once recognizing, do, deprived entertain license, within limited scope open us, warranted. Judgment conflicting precisely exists determine, long cannot, exercised basis evidence devoid reason. 22 heart estimates, reason, argue, removal government-operated result loss decrease, amount profits, profits whole. But never criterion States, let considerations could demonstrate shown executed successfully arguable units centrally administered. contrary. 483; believe 'interest will fully protected promoted' issuance 472; showing 'at time' States. recognition possibility benefited government compensate 'headwater benefits' conferred.7 477—478. 23 Finally, merit recommend project.8 invoking 7(b). approve 'affecting' which, effect tell thought—to seven yet consideration, Government. simple location dams, characteristics Primary enforcement must remain Commission; disavows. 24 reasons, agree stand. bits pieces out, regarding licenses safeguards merits agency—the party—should our province. 25 Affirmed. 26 CLARK, concurring. 27 I majority negative. reaching interpretation Taken advised Corps' agreement 1949 failed disagreement period seems me decisive. cited licensed despite prior adopting plans.1 Plan, Acts using With background, colloquy Colonel Gee 1949, gains significance. VEPCO's regarded precluding licensing.2 affirm charged direct responsibilities. 29 DOUGLAS, CHIEF JUSTICE BLACK concur, dissenting. 30 belonging surrendered dissent. 31 domain. 32 (1) stream navigation, watershed generation 311 377, 426, 61 291, 85 243; State Oklahoma Guy Atkinson 313 508, 525, 1050, 1059, 1487. (2) inherent flow belongs page 424, 307, 243. 34 (3) property. title bed hands. compensable against Chicago, M., St. P. P.R. 312 592, 596—597, 543, 772, 1064; Commodore Park, 324 386, 390, 65 803, 89 1017. 35 familiar law emphasizes nature allows aggrandizement interests. domain forests parks. deals assets people. facts kept mind reading 887, 891.1 starting fair undertook remove domain, plain; meant good, exploit profit. 37 toward providing worthy post-war program.' works' certainly connote 38 'to prosecuted Engineers'. suggests undertakings. 39 'shall initiated expeditiously vigorously budgetary requirements'. Plainly concerned 'budgetary requirements' Government, requirements companies. 10, authorizes Reservoir River. 40 passed end World II, designed need. drawn backlog slack unemployment expected war's end. Congressman Whittington, House, objective, 4122: 'We recall depression 1. apprehensive another debacle war. difficult arm. disarm. Post-war problem. defending freedom life, fail stock problem face war over. profit experience 1920. 1930. adopted. Backlogs real backlogs. Many wasteful extravagant employment 1933. Haste speed hunger land. Unemployment widespread. repetition waste extravagance. promote welfare.' 43 highlights 10; discloses lodging program officials; occasion referring linking problems. 'following improvement', involves invented distinction 'general development'—a rational basis. number. Some described sub-headings 'projects' 'authorized,' 'plans plans' basins 'construction' 'authorized.' plain variety undertakings, merely being almost too setting as, if, conditions warranted permitted.2 dedication development.3 call works'? destined interests, place Engineers? left exploitation groups, gear budget Government? various mean thing—that sanction 47 sure, exploited orders. relative reference Its dependent links contrary, authorize suggesting 48 true character raid seen viewed farthest downstream Upstream (now funds) ultimate installed capacity 204,000 kw. controlled 2,500,000 acre-feet. powerhouse Reservoir. increases dependable hours peak month December 288 month. contributes 70,000,000 kw.-hr. on-peak energy, firm energy storage value $700,000 year.4 created taxpayers country. Though derives investment funds, appropriated groups benefit. master clear: auxiliary units—the unprofitable ones; plums—the ones. 50 unconscionable appropriation sanctioned assume utterly reckless faithful trustee, dedicated good 1938 'for flood-control' tributary located. 52 1223. text provisions, far relevant, 'Sec. benefit program, respective hereinafter subject forth therein: (Provisos omitted). 'Roanoke Document Numbered Seventy-eighth second session, Carolina, Virginia, $36,140,000.' 891 892, little force 2, apply Not general, improvement,' patently refers rather answers relies speaking prosecution War' permit. language, apart considerations, better approved. now, item bill. Rule XVI, Manual, S. 239, 77th 20; XXI, Representatives, 812, 384. Chairman Whittington Works: Chairman: . Is appropriation, appropriation? 'What difference plan? 'Colonel Gee: elements we.' 42. enacting 204, 170, 'Savannah 'There sum $50,000,000 1944.' 171. whatever conferred lost 10(f) 1070, 843, 803(f), charges paid licensee. parties dispute benefits, '(t)he payments headwater due degree accuracy actual conferred.' 478. correct ascertaining because, indicates, case. provides: 'Whenever, cause examinations, surveys, reports, plans, estimates necessary, development.' License issued County Placer, California, August 8, 1951. 2021, plant debris Fork, American pursuant Harbor 30, 1935, 1028, 1038, 50, Anthony Falls 31, 1951, 2056, Falls, Minnesota, 1937, 848, 34, 75th Two 1934 Kanawha Valley Projects 1175 1290, plants West 918, 928, 190, 70th 'Mr. Angell. lower devoted exclusively production? Gee. No, sir. status remaining Their bar company coming seeking now. sir.' Works, 5472, Tit. 144. reads 'That Provided, specifications, preliminary war, heretofore hereafter ready rapid inauguration construction: Provided further, existing critical situation respect materials, equipment, manpower longer exists, immediately cessation hostilities herein requirements: penstocks future Curtis, conferees, explained whereby Missouri (90 9284): engineers, are, therefore, eligible appropriations. Without had.' entitled weight. policy. submission considerations. example, 1(a) 701—1(a), 701—1(a). Even belies figure $250,000 (see P.U.R.N.S., 477—478) places $700,000. indubitably error.

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