Document: 475 U.S. 89 106 S.Ct. 951 L.Ed.2d 68 UNITED STATES of America, Plaintiff,v.States MAINE, New Hampshire, Massachusetts, Rhode Island, York, Jersey, Delaware, Maryland, Virginia, North Carolina, South Georgia and Florida. No. 35, Orig. Argued Dec. 12, 1985. Decided Feb. 25, 1986. Syllabus This case, which was instituted by the United States to quiet title seabed along coast Atlantic Ocean, presents question whether Nantucket Sound qualifies as "internal waters" Massachusetts rather than partly territorial sea high seas contends. has excepted portion Special Master's report that concludes is not a part Massachusetts' inland waters under doctrine "ancient title." contends that, such doctrine, English Crown acquired result discovery occupation colonists in early 17th century, succeeded Crown's title. Held: cannot prevail Pp. 93-105. (a) Principles international law have been followed consistently fixing States' coastline. title" sufficient basis for identifying "historic bay," Article 7(6) Convention on Territorial Sea Contiguous Zone, so constitute sovereign. To claim would otherwise or sea, sovereign must base its "occupation," is, based "clear original fortified "by long usage." The parties agree effective "occupation" taken place before freedom became law—no later latter half 18th century. 93-96. (b) pertinent exhibits transcripts show did effectively "occupy" obtain fortify usage" were recognized be free. For purposes requires, at minimum, existence acts, attributable sovereign, manifesting an assertion exclusive authority over claimed. historical evidence introduced does whole. also deficient because it warrant finding asserted any right waters. Moreover, established linkage between colonists' activities Crown. Thus, Great Britain could devolve upon Massachusetts. 97-103. (c) determination had clear prior corroborated consistent failure assert dominion since time. Rather, during 19th centuries continued treat manner inconsistent with recent characterization body internal 103-105. Exception overruled. STEVENS, J., delivered opinion Court, all other Members joined, except MARSHALL, who took no consideration decision case. Henry Herrmann, Boston, Mass., defendant Louie F. Claiborne, Washington, D.C., plaintiff. Justice STEVENS Court. 1 now Court Commonwealth We conclusion Commonwealth's should rejected. 2 * Pursuant earlier decree this Court,1 1977 filed joint motion supplemental proceedings determine location After our appointment Master, 433 917, 97 2994, 53 1104 (1977), agreed partial settlement, we approved 1981. 452 429, 101 3074, 69 132. Left unresolved status Vineyard Sound, dispute gave rise extensive hearings Master. Master concluded bay" therefore However, he reached contrary concerning Sound. Explaining only minimal practical significance,2 exception report. however, Specifically, although acquiesces support claim, continues maintain 3 relatively shallow water south Cape Cod, northeast island Martha's Vineyard, northwest Nantucket. territory century virtue various Royal Charters Treaty Paris, ended Revolutionary War.3 4 prove pass much presented concerned considered "county Under "inter fauces terrae " landward opening "between jaws land" subject jurisdiction littoral county Admiral if close enough each satisfy somewhat ambiguous line-of-sight test. Lord Coke's version test person standing one jaw able "see what done" jaw;4 Hale's more expansive version, merely necessary "a man may reasonably discern shore shore."5 5 relevant land case are southern tip Monomoy extends from elbow northern Island. At present time, those two 9.2 nautical miles apart, but distance greater colonial times. In event, too great Whether meet depends, burden proof persuade preponderance beyond doubt." decision, put side parties' argument about assume satisfied.6 On assumption common England nevertheless conclude relies. II 6 principles coastline States.7 relied particular [1958] 15 U.S.T. 1607, T.I.A.S. 5639.8 provides sovereignty state waters." Art. 1. contains set rules delimiting Generally speaking, 5(1) defines baseline turn "the low-water line marked large-scale charts officially coastal State." Of importance includes state's enclosed "bays" defined 7. Most identify criteria defining "juridical bays," further "so-called 'historic' bays" baselines when straight system provided applied." 7 relies exclusively provision recognizing both legitimately eschewed method determining boundaries,9 qualify juridical bay. Because Convention, previously Nations study authored U.N. Secretariat entitled Juridical Regime Historic Waters, Including Historical Bays, [1962] Y.B.Int'l L.Comm'n 1, U.N.Doc. A/CN.4/143 (1962) (hereinafter Regime). See v. Louisiana (Alabama Mississippi Boundary Case), 470 93, 101-102, 105 1074, 1079-1080, 84 73 (1985). That prescribes three factors dominion, continuity, acquiescence own cases bay."10 submits three-part actually standard different doctrine—the title"—is bay Convention. According maritime counterpart adverse possession. It prescriptive character arises exercise either ships enjoy innocent passage. Before longer claims uses term. Brief Defendant 4; Reply 22. 8 instead entirely first asked evaluate Regime, unclaimed acquired. 9 "affir[m] law. State acquisition area ago. Strictly would, historic title, ancient mode territory. difference subtle interest clarity overlooked: 12 (¶ 71) (emphasis added). 10 Assuming, arguendo, claimed theory title," Tr. Oral Arg. 16-17, 34; 4. By analysis, perfected century.11 III 11 Although discussed history [Nantucket Sound], especially [its] role development economy Island," Report 27, his discussion leaves us doubt felt exploitation marine resources soun[d] equivalent formal over" generally recognized. Id., 58.12 same establish "historic" "ancient" ultimate responsibility deciding correct findings fact remains us" event,13 examined ourselves transcripts. Our independent review leads "intensive exploitation" occupation. 17. outset, some difficulty appraising publications cited uniformly discuss context Assuming their unspoken resembles acquire well, assuming whole exploit resources, believe claimed.14 most publicized conveys understanding 13 Fisheries Case (United Kingdom Norway), 1951 I.C.J. 116, Permanent International upheld Norway's use (now expressly Convention), Norway proved "comparatively shallow" mainland fringing islands known Skjaergaard, "rock rampart." court acknowledged Norwegian fisherman exploited fishing grounds region "from time immemorial," id., 127, King Denmark excluded fishermen states "for period, 1616-1618 until 1906." 124; see 142. 14 similar effect Annakumaru Pillai Muthupayal, 27 Indian L.R. Madras 551 (1903). complainant lessee Rajah Ramnad accused stealing chanks (mollusks) five off coast. High liability "upon immemorial water." P. Jessup, Law Waters Maritime Jurisdiction 16 (1927) (footnote omitted). Officiating Chief Judge, relying dating 6th B.C. explaining concessions pearls historically gathered licensees, declared "it impossible ignore ages country, pearl oysters owned enjoyed belonging prerogative him." L.R.Madras, 557. "And [because] well while still beds always property . fishery operations connected therewith carried control formed source revenue exchequer." 554. Judge demonstrated "exclusive occupation" fisheries question." 566.15 encountered additional examples resources—the Australia, Mexico, Columbia, oyster Bay Granville Irish Coast, coral coasts Algeria, Sardinia, Sicily, herring, among fishes, found. T. Fulton, Sovereignty 696-698 (1976 reprint 1911 ed.). continuation apparently longstanding regulation these contradict, indeed perfectly with, reflected just discussed. contrast, sure, expert witness Dr. Louis DeVorsey, geographer, "amphibious resource region" "intimate relationship" inhabitants surrounding waters.16 DeVorsey meant essentially residents livelihood sea. fascinating geographer's point interest, testimony through him do legal threshold body. 17 begin entirety largely activity undoubtedly within dry land. example, relationship pointed sand glassmaking, stone polishing, farming. Other activities, building mills powered tide, making salt sea-water, gathering seaweed fertilizer insulation, fail Even considering together water-based pursuits harvesting clams hunting whales, find concedes dug mainly harbors, decades whales restricted drifted onto beach. mid-18th developed technique driving beaches pursuing them modified four- five-man canoes, they certainly caught shellfish outside near shore, there satisfactory occurred seas. 18 adduced closest comes 1672 contract town attempted engage whaler name Lopar "follow trade whaling island" years exchange for, inter alia, license hunt acres There out (and record conveyance real property), suggestion limited, even Indeed, clearly reflect proprietary anywhere: simply represent covenant islanders compete company companies chartered proposed contract. 1692 Colonial Resolve build vessel protect against depredations Yorkers, whom brewing time.17 But highlights lack comparable absence limiting shores, reason exempt rights passage traditionally members polity. 19 intensive troubled Cf. Alaska, 422 184, 190-191, 203, 95 2240, 2246-2247, 2253, 45 109 (1975). Unless self-interested endeavors every seafaring community suffice containing exploits, without regard continuity usage solely predated seas, then Accordingly, occupy water; consequence, IV 20 time.18 Three demonstrate 21 First, 1847, Supreme Judicial issued understood having adopted demanding waters.19 Since Coke test, Court's supports Commonwealth. 22 confirmed 1859 Legislature enacted statute seaward boundary league (or miles) Acts 1859, Ch. 289, Mass.Ex. 53. accordance measure, treated arms headlands exceed leagues. replaced applying fixed six miles. Point Island admittedly miles, statutory definition 23 Finally, 1881, directing Harbor Land Commission prepare boundaries Official prepared pursuant legislation Commonwealth, not. 24 1971 obtained "fortified Without evidence, surely enlarge bays embrace like advanced case.20 25 directed submit conforming recommendations 26 ordered. JUSTICE MARSHALL 1968 invoked Ocean. 1975 entered affirming 3-geographic-miles coastline, geographic mile zone. Maine, 423 96 23, 46 420 515, 1155, 43 363 reserved "United [could] invoke filing proceedings." U.S., 2, S.Ct., 23. Solicitor General, 1,000 submerged lands belong underlying waters, view inland. particular, points charter granted 1664 Charles Duke York conveying England, cf. Martin Waddell, Pet. 367, 413-414, L.Ed. 997 (1842); Mahler Norwich & N.Y. Transp. Co., 35 352, 355 (1866), 1691 monarchs William Mary consolidating into "one reall Province Name England" territories colonies commonly Bay, Plymouth, Main", called Accadia Nova Scotia, 45, p. 8. Alternatively, asserts Paris signed 1783. Manchester 139 240, 256-257, 559, 561, 562, 159 (1891); N.Y., 356. E. Coke, Institutes 140 (6th ed. 1681) ("It Sea, where done water, other, Coroner shall office Country knowledge; whereby appeareth things triable (that Jury) consequently Court"). M. Hale, De Jure Maris et Brachiorum ejusdem, cap. iv (1667), reprinted R. Hall, Essay Rights Privileges Subject Shores Realm, App. vii (2d 1875) ("That arm branch lies terrae, least county, sheriff coroner"). rested doubt" reports Masters cases. Case, 394 11, 77, 773, 809, 44 (1969); California, 381 139, 175, 85 1401, 1421, 296 (1965); O.T.1983, Orig., 11; O.T.1974, pp. 18-19; O.T.1973, 52 42. 111, 1084-1085, regarding focus brief, unnecessary address issue given disposition Whatever measure proof, bears risk nonpersuasion. 161-167, 1414-1416. Alabama 98, 1077-1078; Maine (Rhode 469 504, 513, 992, 998, 83 998 (1985); 188-189, 2245-2246, (1975); 787. 21, 780 (Convention 'the best workable definitions available' (quoting 165, 1415)). held rests Federal Government. 99, 1078; 72-73, 806-807; 167-168, 1416-1417. "The term 'historic bay' complete accord meaning. stated 'over nation maintained foreign nations.' 172, 1419. 189, 2246; 781. noted appears general agreement bay: (1) claiming nation; (2) authority; (3) nations. 23-24, n. 781-782, 27. An authoritative require exercised continuously create toleration States.' Bays 56, (1962)." 1079-1080 (footnotes One cannot, matter, precise date rejected clear, become progressively less tenable throughout century: seventeenth heyday mare clausum (closed sea) Denmark, Spain, Portugal, Genoa, Tuscany, Papacy, Turkey, Venice. "In eighteenth position changed completely. Dutch policies favoured navigation previous publicist Grotius written Portuguese monopoly commerce East Indies. accession Orange throne 1689 disputes Holland ceased. France, requirement salute flag maintained. late obsolete ceremony 1805. Danish reduced stages narrow limits. cannon-shot rule predominated, large areas faded away." L. Brownlie, Public 233-234 1973) "[I]t undeniable days Grotius, principle found ever wider currency after gradual evolution, gained upper hand towards beginning nineteenth crystallized universally accepted law." Y. Blum, Titles § 61, 242-243 (1965). select "critical date" British gradually intensity need say ripened usage," 1700's. regards though "[e]ffective occupation, victory seas" "to valid 25-26. Colorado 467 310, 317, 104 2433, 2438, 81 247 (1984). 101, 1079, therein. quotes "occupation": "[Occupation] Oppenheim follows: 'Occupation act appropriation intentionally acquires another State.' "A Fauchille: 'Generally taking State, intention acting owner, something susceptible sovereignty.' 70). possible contrasted eventuating acquisition, Strohl, 328, (1963). division second judge two-judge panel, subsequently heard three-judge panel. panel unanimously judgment analysis. 572. inferred intimate 17th- 18th-century maps naming prominent features attempting chart depths As acknowledged, none identified separate bodies Cod Buzzard's and, instances, These contention area's special protected opposed ocean general. resolved peacefully, built, patrol testified engaged convoying merchantmen, protecting Temple Preah Vihear, 1962 6, 61 (separate Sir Gerald Fitzmaurice) party's attitude, mind intentions can regarded good evidence—in relation closely matter—of also; fact, situation, date, furnish presumptive also, situation affairs respects consideration" (citations omitted)). While text, mention either. 1789 First Congress customs enforcement system, included number districts district Nantucket" reference adjacent whereas Edgartown, Elizabeth Islands, incorporated "all shores" Duke's County. Act July 31, 1789, Stat. 31. distinction repeated subsequent 1790, Aug. 4, 146, 1799, Mar. 629. Peters, Mass. 387, 392 (1847), held: All creeks, havens, coves, inlets lying projecting islands, wide persons objects discerned naked eye opposite side, county." Shaw's adoption Peters Story's exposition Grush, F.Cas. 48, (No. 15, 268) (CC Mass.1829): "I understand expression, necessary, shores near, discerned, certainty, shore; might distinctly seen eye, distinguished other." disagree American proper differed view, Hale. validity limits accordingly appropriate similarly decline abandoned renounced antecedent made.

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