Document: 387 U.S. 428 87 S.Ct. 1712 18 L.Ed.2d 869 Stewart L. UDALL, Secretary of the Interior, Petitioner,v.FEDERAL POWER COMM'N et al. WASHINGTON PUBLIC SUPPLY SYSTEM, Petitioner, v. FEDERAL Nos. 463 and 462. Argued April 11 12, 1967. Decided June 5, [Syllabus from pages 428-429 intentionally omitted] Louis F. Claiborne, Northcutt Ely, Washington, D.C., for petitioners. Richard Solomon Hugh Smith, respondents. Mr. Justice DOUGLAS delivered opinion Court. 1 The Federal Power Commission has awarded Pacific Northwest Company (a joint venture four private power companies) a license to construct hydroelectric project at High Mountain Sheep, site on Snake River, mile upstream its confluence with Salmon. 31 F.P.C. 247, 1051. Court Appeals approved action, 123 U.S.App.D.C. 209, 358 F.2d 840; we granted petitions certiorari. 385 926, 927, 286, 17 209. 2 primary question in cases involves an interpretation § 7(b) Water Act 1920, as amended by Act, 49 Stat. 842, 16 U.S.C. 800(b), which provides: 3 'Whenever, judgment Commission, development any water resources public purposes should be undertaken United States itself, shall not approve application affecting such development, but cause made examinations, surveys, reports, plans, estimates cost proposed it may find necessary, submit findings Congress recommendations appropriate concerning development.' 4 turns whether requires showing that licensing private, state, or municipal agency1 is satisfactory alternative federal development. We put way because present record largely silent relative merits nonfederal What transpired follows: 5 Both Washington Public Supply System, allegedly 'municipality' under 4(e) 7(a) Act,2 filed applications licenses mutually exclusive sites; they were consolidated hearing. Before hearing solicited views Interior. urged postponement either while means protecting salmon other fisheries studied. That was March 15, 1961. But hearings went forward 28, 1962, after before Examiner closed, he rendered his decision, wrote urging recommend consideration construction Sheep. reopened allow Secretary's letter incorporated invited parties file supplemental briefs response it. On October 8, recommending receive license. He disposed issue ground there 'is no evidence this will provide greater flood control, benefits, fish passage, navigation recreation; substantial contrary.' 6 asked leave intervene exceptions Examiner's decision.3 allowed intervention 'limited filing Presiding decision participation oral argument might subsequently ordered.' 7 participated argument. February 1964, affirmed saying agreed him 'that supports reason why superior,' observing '(w)hile have extensive material us position presented support position.' F.P.C., 275. 8 It say found 'nothing indicate' dam (flood etc.) would served adequately added, 'We agree (or single operator) normally superior ability co-ordinate operations HMS affected projects river. upon can determine scope seriousness matter context river system already number different operators existing co-ordination system, i.e., Pool.' Id., 276—277. 9 petitioned rehearing, asking opened permit supply evidentiary deficiencies. A reopening record, granted; shortly reaffirmed original modifications here. 10 never been explored record. applicants introduced addressed question; denied opportunity do so though timely. course briefed argued; yet factual inquiry undertaken. Section says itself,' applications. Yet rulings reopen precluded having informed commands. indicate merits. know Snake-Columbia waterway between Sheep ocean, eight dams built another authorized. These are projects; if built, auspices looms large. Timed releases stored affect navigability; production downstream when level too low generators operated maximum capacity; irrigation; protect runs hot insufficiently oxygenated. versus control conceivably make vast difference functioning complex.4 12 Beyond constructed. 13 As dated November 21, 1960, pleading deferment stated: 14 'In carrying out Department's responsibility protection conservation vital anadromous fishery resource light fact available result ratification Columbia River treaty Canada needed time devoted further efforts resolve problems presently posed these applications, believe unnecessary some years come undertake area. 15 'You assured Fish Wildlife Service Department continue, renewed emphasis, engineering research studies must done passage provided projects.' Since remanded refer aspect cases. 10(a) Act5 provides 'the adopted' 'as best adapted comprehensive plan improving developing * beneficial uses, including recreational purposes'. (Emphasis added.) objective 'recreational purposes' more than reservoir created one possible practical viewpoint. There lower ninth authoried ; right fearing additional destroy spawning grounds (salmon steelhead) seriously impair function, entirely light. importance steelhead our outdoor life well commerce6 great certainly comes their destruction necessitate halt so-called 'improvement' 'development' waterways. western waters notorious7 cannot through authorized ultimate demise. 19 need speculate what 1920 purpose been. For 1965 Anadromous 79 1125, §§ 757a—757f (1964 ed., Supp. II), case pari materia Act. greatly concerned depletion 'from developments causes.' See also H.R.Rep. No. 1007, 89th Cong., 1st Sess., pp. 2—5; S.Rep. 860, Sess.; Code Congressional Administrative News, 1965, p. 3837; Fish, Hearings Subcommittee Fisheries Conservation House Committee Merchant Marine Fisheries, 133; 88th 2d 11. rapid Nation's led enact authorizes federal-state cooperation conservation, enhancement prevent various causes In passing aware population partially lies resources. directed Interior 'to conduct determines regarding management stream body resources.' 2. 20 Holmes once 'A amenity, treasure.'8 State New Jersey York, 283 336, 342, 51 478, 479, 75 L.Ed. 1104. dictum relevant here amended, take into only power, navigation, And, noted, mandate study programs fish. Thus apart aen ded, special Congress, gives standing appear, intervene, introduce program, participate fully administrative proceedings. 21 Fishing obviously use commercial implications legislative history indicates. sure, did wholly neglect phase problem. report adverted problem, stating 'highly controversial' 'clearly resolved record.' most important hazard' both migrants migrants. Upstream handled quite effectively ladders. those traveling go turbines; mortality high. Moreover, Chinook 'basically appear adapt conditions reservoir.' 260. ecology behind dam. full effect known. get glimmering Commission's report. said: 22 exhibits peculiar thermal structure. During winter homogeneous regard temperature, season advances horizontal stratification results colder sinking lower. Salmon water, possible, probable, Nez Perce two rivers separate layers drawn off times. Presumably reaching ladders If quality attracting proper streams, many experts believe, source confusion delay. Also predicted tendency shown arm flow up vice versa. Again faced complicated problem finding way. 23 'The velocity very compared free flowing even cmp ared McNary Columbia. follow carried current, velocities offer obstacle 24 shows during summer months oxygen content levels fall amounts dangerously insufficient salmon. decrease appears due decomposed dead organisms (plankton) upper water. indicates require approximately five parts per million, 250—350 foot August less three million.' 261. 25 noted remain 'loss accumulation dissolved salts' lost perpetrators species.' statistics loss turbines. told Bureau Commercial greatest migration occurs night turbine loads lower.9 disastrous.10 reported unless alternatives designed, collection juvenile above transportation below it, witness inquest industry 'recreational' asset Nation. 26 adverse effects fish, facilities 'unproved,' 'conservation fullest sense calls deferral advantage taken Canadian storage Libby (Dam).' admitted 'high reservoirs major obstacles fish,' optimistic efficacy high dams,' concluded forlorn statement that, hope continue insist licensee building presumably everything within limits reasonable expense preserve runs. now understandably assume partly successful real damage probably runs.' 262. 27 Equally wildlife. areas wildlife sanctuaries, inhabited elk, deer, partridge, variety small game used ducks, geese, mourning doves migration. 'adverse (HMS) could (not) mitigated.' Letter 1960 (Joint App. 133) corrected December 7, (J.A. 137). 'Several thousand acres mule deer range inundated moderate reduction range. losses upland game, fur animals, waterfowl. Reservoir margins barren unattractive all groups. Waterfowl insignificant. does feasible mitigating losses.' 28 Coordination 48 401, 72 563, 661 seq., establishes national policy 'recognizing contribution Nation, increasing interest significance thereof expansion economy factors, equal coordinated features water-resource *.' 2(a), 662(a), agency evaluating impounded' 'first consult Service, view preventing Certainly evaluated. 29 factors indeed allimportant alternate sources energy emerging. 30 increased resources, safely deferred. 'These extend still further, event nuclear materialized Hanford 1960—1970 period. This possibility, you know, intensive your staff Atomic Energy urgency somewhat discounted petition intervene: 32 'Power needs immediate Project. One reasons leads 10, handed down just prior action substantially altered program Northwest. complete re-examination re-appraisement conclusions stated basis findings. 33 session provisions new producing facilities. Brue(e)s Eddy Dam, peak capacity 345,000 KW, received appropriation start Fiscal Year 1963. Asotin 331,000 Little Goose 466,000 had previously authorized, Most all, generation Thermal Project, add 905,000 kilowatts Northwest's approved. 34 'There possibilities prospects realization. They include storage, realization dependent consummation Treaty. Additional firm accrue 1,300,000 kilowatts. addition, Treaty Dam initially 397,000 possibility availability Unit-States entitlement Plans 500,000 kilowatt steam plant Kittitas PUD Grant County PUD. agencies Northwest-Southwest transmission intertie which, electrical integration, 400,000 35 total area therefore predictably excess foreseeable requirements thereon period 1968—1969 sufficient meet until least 1972—1973 potentially beyond date. addition 1972—1973, planned bring later picture 36 'New generating facilities, correlated demands marketing BPA necessarily surpluses basic wholesale supplier thereby financial deficits system. role base area, threatens stability area's permanent hence economy. effect.' 37 promises occupy relatively place world's energy. estimated reaches 7,000,000,000 few decades—the requirement11 70,000,000,000 metric tons coal equivalent annually supplied By 1980 'should represent significant proportion world production.' 109. end century 'nuclear account about one-third consumption.' Ibid. 'By middle next seems likely satisfied energy.' 110. 38 Some schedules 50-year Commission. 39 Nuclear coming basin 1975. plans afoot build Trogan site, miles north St. Helens. 1,000,000 kws. emphasizes relevancy reference distribution Project called 'most all' 76 604. 40 Implicit reasoning assumption now. militating against '(t)he frankly (had) intention seeking authorization commence planning project.' 277. '(a) prompt optimum multi-purpose resource' tha t 'turn comparison costs benefits component attain earliest smallest sacrifice natural values.' J.A. 394 (emphasis added). neither nor specifically future all. section authorizing grant licenses, part: 41 'Whenever contemplated improvement is, desirable justified waterways benefit interstate foreign commerce, become part records Commission.' 840, 797(e). And that: 42 adopted utilization water-power 803(a). 43 issues preservation unexplored commands possible. discuss Interior's claim sources, region time. '(o)f regional situation load (Pacific Company) companies themselves,' near future. 272. summary conclude PNPC sponsoring able soon available.' 273. 'HMS 1970 1971 1051, 1052. 44 proponents 'will use' interest. So power. stop there. empowers construct, own benefit, utilizing navigable thus, effect, domain. authority alienate not, course, turn simply licensee. Nor test solely determination exploration 'public interest,' demand supply, preserving wild wilderness areas, purposes, 45 waterway, desirability demise, choices satisfy energy—these untouched Commissin. 46 remand neglected phases cases, points raised Secretary. 47 express task public. ruling mentioned among considerations doubtless appraise. way, discharged functions makes leaves questions System main meaning entitled preference over violated statutory preference, preliminary unlawfully expanded site. contentions survive remand. project, any, becomes one, excluded along Northwest, moot. issued preserved. Accordingly 462 vacate instructions reverse Each proceedings consistent opinion. ordered. vacated reversed remanded. 50 FORTAS took HARLAN, whom STEWART joins, dissenting. 52 I thought indisputable, first, court overturn committed agency's 'unsupported evidence,'1 and, second, substantiality measured through, after, examination 'whole record.'2 53 determined, 14,327 testimony exhibits, 'extensive material'3 submitted close Interior,4 'general knowledge System,' 277, 'best plan,' 803(a), portion Basin, consequence, reserved States.5 54 unanimously amply refusing issuing construction.' 217, 848. agree. Doubtless much submitted, labeled pertinent responsibilities 7(b), understood marshaled must, credited, tidily categorized according employed. 55 Court, despite self-serving disclaimer, ante, 450-451, haste give force breeding fish6 likelihood solar substituted preferences discretion given particular, emphasized alone Interior,th e intervenors, apparently supposes Sheep.7 Wherever issue, said entrusted resolution discretion, ample determined licensed project. 56 affirm judgments Judge Miller's below, amplified contained hereby empowered— To investigations collect data developed, relation industries loat ion, capacity, costs, markets sites, Government advantageously fair value extent deem necessary useful '(e) citizens States, association citizens, corporation organized laws thereof, municipality constructing, operating, maintaining dams, conduits, reservoirs, houses, lines, works convenient transmission, across, along, from, streams bodies jurisdiction regulate commerce nations several lands reservations (including Territories), surplus dam, except herein 839, 797(a), (e). n. 1, supra, 4(e). permits hereunder where licensees hereof therefor municipalties, same deemed equally adapted, fixed conserve utilize 800(a). argued (1) hydraulic coordination Basin projects, particularly constructed achieved system; (2) assure northwest grid, thus contributing repayment investment trns mission, will, turn, redound consumers; (3) flexibility resources; (4) better effected flexible operation; (5) ownership supervision supply; (6) expanding population. however, produce large Bonneville Administration severe harm region's Various long engaged Middle Snake. early 1948 Basin. 1949 Corps Engineers sumi tted H.R.Doc. 531, 81st Vol. 1—3, 4, 1429, 1482, 6, 2509. recommended, part, nine run-of-the-river regulating Hells Canyon or, case, accordance plan. without adequate then recommended study, Sheep—the last suitable 403, 87th iv, viii-ix, Though contended congressional pre-empted (cf. ex rel. Chapman Comm'n, 345 153, 73 609, 97 918), appropriated sums Basin's overall key structure federally efficiently operated. 'All Part following conditions: adopted, maps, specifications, purposes; order secure modification specifications approval.' 1966 catch $67,000,000 $65,000,000. & 1966, producer trout States.' 'Columbia almost century.' worth $12,000,000 sport fishing attributable $8 million year.' 259. Cong. Recently, expressed wild, unexploited state. January 18, Senate passed National Wild Rivers bill (S. 1446, 112 Cong.Rec. 500 (daily ed. Jan. 1966)), pending Representatives Eighty-ninth adjourned. reintroduced Ninetieth Congress. S. 119, 90th Sess.). enacted, tributary states: finds free-flowing possess unique scenic, Wildlife, recreation values potential American people. established sections complemented selected condition fulfill purposes. preserve, develop, reclaim, accessible people diminishing rivers.' see 4(d) Wilderness 78 890, 894. Long, Day-night Occurrence Vertical Distribution Juvenile Turbine Intakes (U.S. Fish-Passage Research Program) 13, 16. From data, salmonoids highly unlikely impoundments implies collected head transported below. 'Passage juveniles successful. Escapement varied year year, ranging percent calculated recruitment. occurred 1964 conjunction drawdown, inflows, slow spring fill-up resulted discharges (up 50,000 c.f.s.) smolt Progeny spring-run chinook stocks fare run, limited suggest species difficulty Collins Elling, Summary Progress 2, Program, Review 1964). Projections summarized R D Progress, prepared Interdepartmental Study Group, Under Direction A. B. Cambel, 22. table source. Procedure 10(e), 706(2)(E) II). Universal Camera Corp. Labor Relations Board, 340 474, 488, 71 456, 464, 95 456; Jaffe, Judicial Control Action 600 seq. (1965). 706 extraordinary series belated indecisive interventions warrants chronicle given. 31, 1958, applied 1959, replied substantively, uge d entire postponed, since was, view, sufficient. nonetheless continued. 1961, more, first withdrawing permission employees testify second recessed suspended later. communications, intimation appropriate. September suggested, time, suitable; urge immediately seek approval precondition commencement. intimate compiled incomplete, request supple- ment Nonetheless, sua sponte ordered respond suggestion. conpleted recommendations, concluding proposal adapted' river's reasonably anticipated. thereupon sought exceptions. reopened. His motions granted, filed. Oral heard. Neither nor, supplement rejecting suggestions, announced 1964. rehearing 26, ask offered general indications motion granted. Not surprisingly, motion, 'pleadings,' affirmed, certain minor modifications, order. actions review followed. Secretary, writ certiorari contruction refuse concludes States. nothing terms, suggests expected retroactive 'mandate' judgment. pertiment portions plain uncontradicted acknowledgments 'have effect' authority. 45; 21. Ironically, twice attention, rejoinder illustration continuing earnest concern Hearings, Report, Contrary earlier position, 452, entertains doubt commenced.

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