Document: 353 U.S. 112 77 S.Ct. 685 1 L.Ed.2d 693 UNITED STATES of America, Petitioner,v.UNION PACIFIC RAILROAD CO. No. 97. Argued Jan. 23, 1957. Decided April 8, Mr. J. Lee Rankin, Sol. Gen., Washington, D.C., for petitioner. William W. Clary, Los Angeles, Cal., respondent. Justice DOUGLAS delivered the opinion Court. This is an action brought in District Court by United States to enjoin Union Pacific Railroad Company from drilling oil and gas on 'the right way' granted it § 2 Act July 1, 1862, 12 Stat. 489, 491, construction a railroad telegraph line. The claim that not grant includes mineral rights. Court's decision was adverse States. 126 F.Supp. 646. Appeals affirmed. 230 F.2d 690. case here petition writ certiorari which we view public importance question presented. 352 818, 34, 44. 'right 'for said line.' As aid railroad, 'every alternate section land' each side road also granted. 3. Section 3 further provided 'That all lands shall be excepted operation this act * *.' (Italics added.) On face would seem use words describes lesser interest than 'public land.' Moreover, way 2. That purpose fulfilled when used other purposes. See Northern R. Co. v. Townsend, 190 267, 271, 23 671, 672, 47 L.Ed. 1044. It that, whatever may nature Pacific's way, or under within meaning Act.1 4 rights have been included way,' were reason proviso excepting 'mineral lands.' exception lands,' as applied inept reserving certainly could expected take detours might necessary avoid containing minerals. But applies well plain. While made lands' contained 3, extends merely but entire Act. 5 terms applicable leave no doubt land grants railroads, §§ 9, 13 14 Act, include limited few enumerated sections any more makes sense if read reserve road. Indeed, can see construe apply, does, including way. 6 reservation resources these keeping with policy times. gold strike California 1848 country conscious potential riches underlying western part domain. method asserting federal control over finally settled until 26, 1866, 251, prescribed procedure acquired. meanwhile—from 1849 1866—the clear. Ivanhoe Mining Keystone Consolidated Co., 102 167, 26 126, during interim period lands, them. found so 'uniform' (id., page 175) Court, construing 1853 governing California, held did although they specifically excepted. 7 much stronger here, are reserved. is, therefore, wholly prevailed present granted, For domain Congress sedulously sought preserve formulated special administered. In Sweet, 245 563, 38 193, 62 473, Van Devanter, our foremost expert law, discussed at length cited support very consideration case. Id., 569, note 194, And Barden 154 288, 317—318, 1030, 1034, 992. We forget history legislation jaundiced eye hold only reserved nonetheless endowed untold Such run counter established rule construed favorably Government, nothing passes except what conveyed clear language, there doubts resolved against it. Caldwell States, 250 14, 20—21, 39 397, 398, 63 816. These reasons 8 system set up effectuate its administrative determination, prior issuance patent, nonmineral character lands. Patents issued administratively determined constitute And, determination final. Burke Southern 234 669, 34 907, 58 1527. obviously inappropriate needed acquired through filing map showing definite location road, followed actual construction. supra, 270, 672. 9 A provision path constituted another reason. already noted, route had engineering considerations allow extensive avoidance minerals make necessary. 10 Because system, administered relation 2, urged conclude intended apply But, must, cannot meant expressed, inapplicable admonition Nor because reserved, intend appropriate measures assume Thirty-seventh profligate express 11 To sure, later designed precise articulated separation subsoil See, example, March 1909, 35 844, 30 U.S.C.A. 81. better draftsmanship, if, referring rights' instead Yet will do us tell 'We you driving choice describe your purpose.' Some reliance placed line decisions early fees. cases were, most part, controversies between third persons involved problems remote one inapt citations. leading raised whether parties establish valid homesteads after located tracks laid. supra. An answer favor ground fee hardly adjudication concerning ownership contest railroad. party; involve jurisdiction person transporting liquor. If Indian Country crossed reservation, then violation liquor laws occurred. passing land. Clairmont 225 551, 556, 32 787, 788, 56 1201. stop examine cases2 using like language railroad's none them railroad-grantee 'limited fee' decided railroads received surface incident Great 315 262, 529, 86 836, year 1862 interest. noted great shift congressional occurred 1871: easement purposes while thereto along latter connection said, 'When outright little suppose give same act.' 278, 536. occasion consider suggestion times effort distinguish earlier cases. complete distinction, Murphy his usual discernment added, 'None problem subsurface minerals.' statement goes heart matter. There precedents owner violent break such bounty. would, indeed, violate itself. repeat, still faithful standard governs statute private interests. 15 Reversed. 16 WHITTAKER took 17 FRANKFURTER, whom BURTON HARLAN join, dissenting. 18 suit restrain respondent company removing forming respondent's quiet title those deposits controversy arises out described 'An Construction Telegraph Line Missouri River Ocean, secure Government Use Postal, Military, Other Purposes.' claimed granting predecessor vest Wyoming judgment 'granted simple determinable, sometimes called base, qualified fee, subject implied condition reverter event ceases gave sole minerals, Tenth Circuir affirmed judgment. provides: 19 'And enacted, be, hereby, line; right, power, authority hereby given adjacent earth, stone, timber, materials thereof; extent two hundred feet width where pass grounds stations, buildings, workshops, depots, machine shops, switches, tracks, turntables, water stations. extinguish rapidly titles falling required hereinafter made.' 20 additional toward line, five per mile qualification 'all company, upon completion number miles track, bonds aggregate value less $16,000 nor $48,000 mile, depending difficulty terrain. Two years later, amended double construction, 356. 21 series statutes providing assistance individually named promote their 1864, 365, even greater amount Company, 1866 Acts passed benefit St. Joseph Denver City 210; Kansas Neosho Valley 236; Oregon 239; southern branch 289; Atlantic 292. Each substantially identical object immediate concern. 22 was, it, specific achieve specific, contemporaneous goal—construction Unlike constitutional provisions Due Process Clause enactments Sherman Law, 1—7, note, embody felt rather defined necessarily look future unfolding content, making judicial application evolutionary process nourished relevant changing circumstances, does gain time. Its scope today task ascertain content 1862. Did interest, convey passage, easement, retaining land, minerals? going back & D. C. Baldwin, 103 426, 578, has consistently recognized companion allocated Baldwin case, dealt St statutes, 210. stated 24 '* contains reservations exceptions. absolute grant, conditions implied, constructed designed. anything government respect call terms.' pages 429—430. 25 similar 289, repeatedly characterized Missouri, K. T.R. Roberts, 152 114, 496, 377, being 'absolute terms, covering both possession.' 117, 497. Territory New Mexico Trust 172 171, 181—182, 128, 132, 43 407, acknowledged term distinct meanings: (1) 'mere passage;' (2) "that strip companies construct roadbed.' itself—not passage it.' Acts, 292, class, relying Roberts 1044, plain review 1860's whose predecessors had, constructed, begun possession subsequently obtained homestead patents passed. White began stating: 27 'At outset, premise location, quarter preceded entries section, therein taken category pre-e mption sale, department therefore without therein. follows homesteaders fact full legal subdivisions.' 28 went 1864 'a ceased retain granted' acquire defeat Congress' plainly manifested desire continue grantee's long maintained. 29 All opinions '60's undeviating adherence announced 1881. E.g., Ely, 197 6, 302, 303, 49 639; 1201; Laramie Stock Yards, 231 190, 198, 101, 102, 179; State Oklahoma, 271 308, 46 517, 519, 70 957. consistent course bound impression free-handed disposition ninety ago. was. 273, 533, 836: 31 'Beginning 1850 embarked subsidizing lavish Typical Illinois Central Grant, September 20, 1850, c. 61, 466; Grant 120, 489; Amended 216, 356; 217, 365. last largest, involving estimated 40,000,000 acres. surprising land-grant acts Ry. Cf. T. 377.'1 During 'there into hands promoters builders total 158,293,000 acres, area almost equaling England states, York Pennsylvania combined.' 'Land Grants,' Encyclopedia Social Sciences (1935) 32, 35. powerful Thaddeus Stevens, himself proponent bill, spoke authoritative truthfulness he House Committee approved it: committee willing (of land) thought order induce Cong. Globe, 38th Cong., 1st Sess. 1698.2 33 'lavish' results, 1869 desired transcontinental completed. With realization goal, however, mood uncritical enthusiasm enterprises veer. summarized consequences popular feeling case: 'This 'lavish domain') incurred disfavor, crystallized following resolution adopted Representatives 11, 1872: "Resolved, subsidies corporations ought discontinued, every equal justice whole people requires should securing settlers, educational purposes, law.' 42d 2d Sess., 1585 (1872). After 1871 discontinued. encourage development Western vastnesses, lay track across domain, secured sovereign eminent proceedings user. time designated simply inferable remarks sponsoring measures. 36 'The burden moved adopt general now before 273—275, 533—534 (footnotes omitted). 37 General Right Way Statute 1875, 482, 934 et seq., significantly different companions. neither direct financial subsidy. half laws. ran canyon, defile 'shall prevent occupancy pass, defile, common first recipient plats local office, 'thereafter disposed Detailed study led 1875 fee.3 From Basic characterization recognition 'Since (the Statute) product sharp change Congressional 1871, improbable let alone riches.' 275, 534. reflected statute, strongly suggested only. Especially persuasive 'lands way.' 6i 532, Legislative confirmed view.4 strong differentiating factors interpreting pre-1871 controlling. cast attributed associated measures: act. comparable significance imposing body culminating Townsend diminished acknowledges, done Northern, explicitly decide seen, fee. meaning—it denotes contingency, reverter, occur. repeated highly technical inadvertent. reply contention controlling distinction presented there, said: 40 difference escaped (Mr. Field's) attention court, inevitable result committing depend difference.' 182, 132. 41 i.e., itself,' exemption state taxation improvements erected thereon. Another consequences, course, Certainly longer consequently, Land Department 'without therein' claiming 'acquired 124, 691. consequence embraced conveys governed courts 466. 89 17, Cir., 187 374.5 argue long, unbroken palter decisions. 'Surface' not, mean seen eye. say means visual indeterminate depth—x inches x feet—necessary ask rewrite tasks accomplish seems desirable acted outlook. No wonder accept inadmissible retrospective reading pressed Argument 269. 42 serves refute confined 1957 narrowly conceived flatly reaffirmed stated—that 'as though revert grantor manner inconsistent situation contrary Had restrictive contingency land's reversion appropriately specified. 816; Angeles Salt Lake 140 436. liberality, prodigality came appear, inconceivable generous loans enormous areas resale substantial balked profitable resort underneath completely satisfactory Further amendment us. power two-hundred-foot privately owned demonstrates four-hundred-foot strips pursued provide site recognized, distance proposed important given.' 430. Out embodied legislation, enjoy Smith, 171 260, 275—276, 794, 799, 157. 3's attributes surface. attribution contradicts scheme itself subsequent legislation. contemplated, interpreted provide, patent. 'mineral' patented replaced belong 1527, notwithstanding Since itself, difficult understand how explained distorting Sections 13, authorize certain 'upon respects the' Pacific. By amending cover left railroads. 44 thousands reasonably some consciousness when, policy. particularly true zealously country's readily available declared free open exploration occupation forth acquiring nowhere intimation found, time, 1860's. 45 failure lying beneath fairly oversight. existence begin evolve decade nineteenth century, sold cities cemetery park 502, 729. 81, permitted agricultural entrymen contain coal obtain novelty thus separating colloquy debate Act: 'Mr. Stephens Texas. I know law gentleman proposes exists. What proposed, why? Mondell Wyoming, Chairman Public Lands Committee). bill provides where, entry, entryman may, elect, patent *. 48 Is valuable Government? Mondell. No; true. having issued, carries everything 50 'In words, heretofore fee.' Cong.Rec. 2504.6 51 1910 extended known 583, 83 seq. Surface Patent 1914, 509, 121 statutory withdrawn non-metallic 'perhaps serious attempt, locally limited, sever disposing domain.' Morrison De Soto, Oil Gas Rights, 508. Stock-Raising Homestead 1916, 862, 291 patents. Significantly, comprehensive Mineral Leasing 1920, 437, 22, 48, 181 1866—it plan 1909—1916 52 confronted deemed pressing need stimulate rapid offered luring incentives attempt task, 'many intelligent considered insurmountable.' 91 72, 80, 224. conveying opinions, written members steeped sensitive circumstances possibly me too weighty overturned. duty enforce once ascertained expressed will. ascertainment clarity displace uniform put beginning, eighty years, ago, said. retrieve hindsight reveals influence narrow light mature century thereafter. us: 'No argument drawn wisdom comes fact.' 53 affirm Appeals. effect decisions, officers Interior dealing purposes' carry drill remove solid Texas L.D. 470, 504, February 28, 1902, 43; Extracting Oil, I.D. 206, seq.; 160, 578 (a settler who definitely located); 377 State); 407 (an tax structures Congress); Pac. 179 (whether Rio Grande Stringham, 239 44, 5, 60 136 placer patent); Choctaw, O G.R. Mackey, 256 531, 58i, 65 1076 get street improvement enhanced use); 957 compensation damage suffered crossings). three sentences quoted footnote sentence. When striving basis bountiful policy, helpful recall 79—80, 224: 'Many original outside legislative properly reference existed war rebellion progress; and, owing complications England, become alarmed safety possessions. true, threatened danger happily averted; pointed necessity suitable future. continent. bind together widely separated parts country, furnish cheap expeditious mode transportation troops supplies. Although military necessity, active producing besides protection exposed frontier. vast unpeopled territory Sacramento Rivers practically worthless facilities afforded property. developed, settlements possible, thereby wealth largely increased; want, peace even, improved cheaper mails, supplies army Indians. 'It presence facts undertook deal difficulties building great, many compelling offer Chief Waite 'extraordinary inducements.' re Sinking Fund Cases, 99 700, 723, 504. departed 136. Stringham held, 'is incidents remedies usually attending 47, 6. explaining why inserted clause 1872, Congressman Slater stated: point this: incumbrance road; afterward locations settlement interfere Speer, Pennsylvania. company? Slater. No, sir.' Cong.Globe, 2137. Hawley gives chartered trains lands; more.' 407. earliest circular January 1888, March, (sic) estate either selected depot only, remaining States.' 423, 428. Apparently always understanding practice defendant entering leases portions retake operations.' executive sponsored 1909 advocating new Secretary Garfield's 1907 report President urge hitherto experience abroad leads believe best possible coal, lease proper regulations needed, waste, monpoly. permits unhampered adapted.' Report (1907), H.R.Doc.No.5, 60th 15. Theodore Roosevelt's message recommended: 'Rights forests separate disposal.' Messages Papers Presidents 7266.

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