Document: 420 U.S. 395 95 S.Ct. 1066 43 L.Ed.2d 279 CHEMEHUEVI TRIBE OF INDIANS et al., Petitioners,v.FEDERAL POWER COMMISSION al. ARIZONA PUBLIC SERVICE COMPANY Petitioners, v. FEDERAL COMMISSION, Petitioner, Nos. 73—1380, 73—1666, and 73—1667. Argued Jan. 13, 1975. Decided March 3, Syllabus Under § 4(e) of Part I the Federal Power Act, Commission (FPC) is authorized to issue licenses individuals, corporations, or governmental units organized for purpose constructing 'project works necessary convenient . development, transmission, utilization power across, along, from, in any streams other bodies water over which Congress has jurisdiction utilizing surplus from Government dam ..' Section 23(b) prohibits unlicensed construction such on navigable stream as well purposes developing electric power. Held: These provisions Act giving FPC licensing hydroelectric facilities do not also confer thermal-electric plans. Pp. 400-422. (a) The structures constituting plants are works' within meaning 4(e), clear language that provision when read together with rest (none whose refers development conservation steam power), Act's legislative history (which manifests a congressional intent regulate only generating facilities), FPC's consistent interpretation its authority including plants, this Court's decision Union Electric Co., 381 90, 85 1253, 14 239. 400-412. (b) clause does authorize used cooling nothing disclosing should serve broader interests than project clause. And, contrary Court Appeals' holding, vest all responsibilities prior legislation had given Waterways Commission, case did include use by plants. 412-422. 160 U.S.App.D.C. 83, 489 F.2d 1207, vacated remanded. Lawrence G. Wallace, Washington, D.C., F.P.C. Northcutt Ely, Arizona Public Service Company others. Joseph J. Brecher, Boulder, Colo., Chemehuevi Tribe Indians Mr. Justice STEWART delivered opinion Court. 1 In these three cases we review single judgment Appeals District Columbia Circuit, determine whether draw subject under c. 285, 41 Stat. 1063, amended, 16 U.S.C. §§ 791a—823. 2 * On September 20, 1971, two Indian tribes, five individual Indians, environmental groups1 (hereinafter complainants) filed complaint requesting it require 10 public utility companies located Southwestern United States2 obtain six fossil-fueled being constructed along Colorado River tributaries.3 part projected vast complex, energy generated new pool will be transmitted interstate commerce load centers far 600 miles sites 3 involved cases, like large amounts cool condense utilized process electricity. See generally FPC, 1970 National Survey I—10—1 I—10—20. needed obtained withdrawing substantial quantities system. asserted pursuant 797(e), because across waters, 'surplus water' impounded dam.4 4 November 4, issued an order dismissing lack jurisdiction. stated 'the (of original Water Act) shows was intended thermal stations included. This Commission's been long standing (and) recognized favorably Supreme Court.' 46 1126, 1127 (citations omitted). 5 Following denial application rehearing, 1307, complainants petition Circuit order. undertook scholarly comprehensive executive antecedents 1920, traced detail administrative judicial interpretations since passage. 1207. Based voluminous material, affirmed conclusion extends 'Steam plants,' court held, 'were purposely omitted scheme.' U.S.App.D.C., at 107, F.2d, 1231. however, similarly limited. sufficient, concluded, bring those 111 117, 1235—1241. Accordingly, remanded first instance fall branch authority. Id., 118, 1242. We granted parties' petitions writs certiorari consider important questions statutory presented litigation. 417 944, 94 3067, 664. II 6 question involves no extent Commerce Clause. It established transmission fully Congress. 94, 1255, 239; Utilities Comm'n Attleboro Steam & Elec. 273 86, 47 294, 295, 71 L.Ed. 549; Bond Share Co. SEC, 303 419, 432 433, 58 678, 681—683, 82 936. And equally projects case, affect among States therefore purview federal power, regardless generate electricity supra, 94—95, 1255—1256; see NLRB Jones Laughlin Steel Corp., 301 1, 40—41, 57 615, 625 626, 81 893; Katzenbach McClung, 379 301—304, 377, 382—384, 13 290. before us exercised requiring license operation withdraw waters plant purposes. A. 7 Consideration must, course, begin itself. authorizes 817, turn, power.5 'Project' defined complete unit plant, 796(11); means physical structure project. 796(12). 8 Emphasizing 'hydroelectric power,' but rather merely 'power,' assert squarely defining Each undoubtedly qualifies 'complete plant.' each 'project' must works.' All concede engaged Furthermore, integral generation turns turbines. 'equally indisputable' using dam' power.6 9 So adherence literal terms statute about result completely variance statute, argue, there justification resorting extrinsic aids intent. modern methods operating present even greater threat orderly potential operations projects,7 they argue recognition thermalelectric actually advance principal Act. complainants' reliance so-called 'plain meaning' rule entirely unpersuasive. But their assertion drawing unambiguously included refuted as, be. See, e.g., Allied Chemical Workers Pittsburgh Plate Glass 404 157, 185, 92 383, 400, 30 341; Boisdore's Heirs, How. 11 itself 'dams, conduits, reservoirs, houses, lines, precede 'other works,' indicate limit breadth general phrase, Gooch States, 297 124, 128, 56 395, 397, 80 522, refer features ordinarily associated facilities. definition 796(11) normally found complexes: improvement consisting house, dams appurtenant (including navigation structures) said unit, storage, diverting, forebay reservoirs directly connected therewith Although note force could have many same structures, possibility serves emphasize ambiguity latent seemingly chosen define 12 Other make more apparent limitations upon reach s 4(e). originally entitled 1077 (emphasis added);8 preamble specified one primary 1063. addition, 4(a) 797(a), conduct investigations concerning water-power industry relation industries foreign commerce' added); 4(g), 797(g), investigate proposed occupancy lands orders 'to conserve utilize resources region' added). Similarly, 10(a) 803(a), provides shall condition adopted best adapted plan 'for development' none reference despite fact today, produced greatest portion Nation's energy.9 explicit references absence manifest limited scope underlying purpose: power.' U.S., 101, S.Ct., 1259. B nonetheless interpreted extending streams, conclusively demonstrates regulation 15 191810 administration bill prepared Secretaries War, Interior, Agriculture, containing most eventually introduced H.R. 8716, 65th Cong., 2d Sess. letter Representative T. W. Sims, Chairman special House Committee Power, held hearings bill, made plain were covered legislation: 'It understood your committee take action early date various proposals legislation. account conditions now affecting need maintaining our entire industrial machinery highest efficiency, satisfactory solution problem is, judgment, steps consideration receive attention earliest practicable date. 17 'While form concerned only, adequate favorable stabilizing effect whole industry. Probably considerable increase can expected immediately, urgently put existing developments, inadequate law, into position security enable them extensions meet maturing obligations terms. 18 'Water view maintenance rights national resources, protection private capital developed. you aims both.' H.R.Rep.No.715, Sess., 29. 19 report 8716 reflected administration's theory designed provide capital.' 15.11 Despite committee's recommendation, failed pass Senate filibuster. 102 n. 18, 1260. 20 reintroduced 66th again recommended approval H.R.Rep.No.61, 1st 4.12 adoption beneficent results come development.' S.Rep.No.180, 2. After compromise between matters unrelated us, H.R.Conf.Rep.No.910, enacted 1920. 21 reveals ambitious attempt control number uses simply suggestion materials would 'The developed regulated Act,' explained 99, 1258 'was needs expanding economy.' (Emphasis added; footnote omitted.) 115, 1258. (Goldberg, J., dissenting). C 22 authority, both text history, reinforced First Annual Report Congress, concluded give respect projects: 23 'On neither reservations nor broad latter forms use; produce Structures diversions having purpose, unless incidental scheme Commission.' 51—52 added).13 24 Ever 1921, consistently maintained projects.14 Such longstanding, uniform agency charged particularly contemporaneous officials responsibility setting motion, great respect. Trafficante Metropolitan Life Ins. 409 205, 210, 93 364, 367, 34 415; Udall Tallman, 380 16, 792, 801, 616; Reactor Development Electrical Workers, 367 396, 408, 1529, 1535, 924. 25 deference due longstanding enhanced gave indication dissatisfaction agency's amended 1930, 572, 797,15 reenacted 1935.16 Saxbe Bustos, 419 65, 272, 42 231; Cammarano 358 498, 510—511, 79 524, 531—532, 462; Massachusetts Mutual 288 269, 273, 53 337, 339, 77 739. Indeed, several occasions supported expand encompass unable persuade act amendments 1962 12—13; 1964 10—11; 1966 8—9. D 26 intend sustained required construct pumped-storage nonnavigable stream. required. arguing lacked difference impact justify distinction jurisdictional treatment. if general, criterion jurisdiction, argued Electric, 27 answer argument that, though stream, Electric's harnessing power: Unlike Parts III 'under regulates aspects sale commerce, I, water. central concern obvious, meaningful, although transmission.' 110, 1264 (footnotes id., 1267 dissenting): here, establishes my satisfaction (Congress) type here involved, light agree where affected.' (Footnote 28 For above reasons composing licensed Commission. finding subsection reflects defray cost waterway improvements resource management. empowers either 'water power' dam, thus mere leasing excess (T)he addition words (§ 4(e)) afford federally controlled .. power'—i.e., Government—or purposes.' 116—117, 1240—1241. cannot find support text, 29 title, preamble, strong evidence restrict 403-404. Nothing suggests exception purpose.17 1921 'limited 51. 408-409. No ever dams. own extensive analysis background whole, clause, segment involving 91—109, 1215—1233; cf. 405-408. More importantly, pertaining indicates relates 31 phrase origins during late 19th 20th centuries, conferring Secretary War lease development.18 term statutes always referred power.19 32 1914 Adamson 16053, 63d amend Dam 386, providing streams. antecedent 4(e)'s right develop hereafter owned 51 Cong.Rec. 11415. Interstate Foreign Commerce20 debate plainly regulated.21 mentioned competing source energy, regulation.22 33 floor duration leases 50 years. amendment changed section so closely resembled later Act: 'leases wholly interest 13256 change broaden 13257. reported out substitute S. 6413, bill. Like another version clause,23 directed '(t)he connection S.Rep.No.846, 3d Neither 35 Similar bills 64th Congresses. Again, reports indicated created extend Shields 3331, example, 2198. struck 3331 entirety substituted identical passed 1914, enter H.R.Rep.No.404, 6. 'section method pursued Department erected itself.' 11. section, committee, 'continues years, satisfactorily leased structures.' Ibid. 'method existing,' provided development. 36 considered initially became contained paralleled earlier bills. 4(d) 23. explanation substitution disjunctive 'or' conjunctive 'and' beyond contemplated To contrary, testimony conducted understanding facilities.24 37 already noted, 407, without material changes As observed, 112—113, 1236—1237, little relevant Nevertheless, legislators viewed primarily regulating record debates create embodying different virtually proposals. 38 based repealed Rivers Harbors 1917. 40 269. newly took planning coordinating spectrum related 115—116, 1239—1240 (footnote transfer management basis supervision use. 39 true 1077, expressly repeal seems evident functions clearly largely functioning agency, prevent possible conflict FPC. There E.g., 2250—2251 (remarks Rep. Anderson). fact, never Senate. 59 1173—1176 Sens. Ashurst, Fletcher, Ransdell). Those transferred agencies eliminated 29.25 Moreover, possess 1917 quite broad, investigatory, regulatory. secure data, formulate plans waterways every useful recommendations modification discontinuance herein heretofore adopted.' 1917, powers inherited purposes.26 Contrary complainants, reading referring render nugatory. First, operate automatically dam. Where water, may properly second license, impose additional charges operational licensee. Cf. Alabama 1108; California Oregon 12—13, supplemental opinion, 14, 18—21, dismissed, 99 263, 239 426. Second, grant enactment exempted requirement securing life works. Northwest Paper Cir., 344 47. However, seek built subsequent June 10, Finally, irrational alternative, albeit sometimes coextensive, bases proceed strength existence unclear. IV finally proper years ago construe projects, violence policies conditions. 1920 supplied bulk and, water-cooled,27 point tremendous growth size efficiency complex concomitant past half century quantity nature usage.28 Because evaporated returned river system,29 permanently up 250,000 acre feet annually system—more 1920.30 Unless subjecting succeed appropriating very evil eliminate. Whatever merits matter policy, addressed courts. through projects. 1935, re-enacted chose regulatory treated immaterial. 1264. times recent sought expansion approve 44 'obvious' distinction, inaction, 1264, longer viable. until duty apply written construed 54 45 foregoing reasons, vacated, directions affirming dismissal ordered. Vacated 48 DOUGLAS cases. Cocopah Emma Yazzie, Jimmy Paul Begay, Chester Hugh Benally, Bill Sierra Club, Save Black Mesa. Southern Edison New Mexico, Salt Project, Tucson Gas El Paso Los Angeles Nevada Utah Light San Diego near Four Corners area Arizona, Utah, Colorado. Navajo Reservation Farmington, N. Mex. Mohave patented land Clark County, Nev. Juan Huntington Canyon state Canyon, Utah. Page, Ariz. Kaiparowits southern Lake Powell. At time oral except still stage. empowered: 'To citizens association citizens, corporation laws State thereof, municipality constructing, operating, dams, nations Territories), part: unlawful person, State, municipality, construct, operate, maintain conduit, reservoir, thereto accordance permit valid right-of-way chapter.' decide Instead, appeal category (the complainants).' Thermal-electric 120 billion gallons per day compared approximately 178 million daily 105—106, 111, 1229—1230, 111. Largely evaporate significant amount withdrawn instead returning source. Fabricant R. Hallman, Toward Rational Policy: Energy, Politics, Pollution 99—101 (1971). Permanent loss obviously adverse 'power potential' waterways. title indicates, 1258, 1935 reflect expanded duties Title Utility 49 838, 792—825u. added 824—825u. 70% 63 (1964). contains exceedingly thorough attempts Executive 1918. 91—96, 1215—1220. Kerwin, Water-Power Legislation (1926); Pinchot, Long Struggle Effective Legislation, Geo.Wash.L.Rev. (1945). That affected initiatives Referring proposals, years.' accompanied 1419. substituting accompany 1419 S.Rep.No.179, 'is set forth Agriculture) Houston report.' 4. report, House: "The exigencies war brought defects realized. Operating electrical infancy, permitted remain almost untouched, turning coal oil main power; quickly easily fewer legal restrictions investment. requirements country met powers, tie mine systems. considerations Representatives last less urgent now." 4—5. chief counsel concluding way line transmit plant: 'I think fairly inferred context, circumstances surrounding legislation, exclusive therein, issuing parts If correct, follows waterpower same.' 156. restated annual 1; 1940 1—3; 1946 1950 3; 1956 5; 1959 4; 8, 13; 10—11, 8—9, 1969 25; 1972 26—27. 1930 Reorganization improve making independent employ full-time staff. 797, codified, 793, 797(d). authorizing codified remained unchanged. H.R.Rep.No.1318, 74th 7; 91 2, 1254, makes party dam.' process, 108 1232 natural 23(b)'s mean falling energy. 23(b), therefore, seem Aug. 11, 1888, '(T)he hereby empowered Muskingum rate periods him just, equitable, expedient: Provided, navigation.' Sept. 19, 1890, 907, 426, 447; 1902, 331, 358, 28, 409; Mar. 6, 1906, 52; Apr. 23, 130; May 9, 183, 184; 25, 3530, 456, 457; 1907, 1288; 1909, 815, 819. beginning contexts possibly solely 321, reserving 'all irrigation reclamation desert entered individuals. conjunction that: 'Section Chief Engineers, applicant who complied located, H.R.Rep.No.592, 11403 Mann): 'We States. it.' Cong.Rec.App. 768 Brown). 12336 Underwood); 12593 Bryan); 12777 Rainey). (federal) O. C. Merrill, Agriculture engineer draftsmen testified response questioning members authority: 'This instances, When done licensee available. thing doing particular occupying lands. assumption whatever outside Hearings 93. Edward Taylor explained: '(T)his understand it, 96. Recognizing much covers indefinitely ground commission pending act,' 1176 Sen. Ransdell), continue 1535. amendment, conference. H.R.Rep.No.910, 13—14. Feb. 451, 521, 'in law supply system irrigation, delivery, use, payment he deem Interior Boulder Project 1060, 617d, contract storage Hoover Dam) reservoir delivery thereof domestic comparable provisions, 890, 708, demonstrate 'Congress disposition often expressed granting plenary agency.' tend wanted dispose explicitly unambiguously. 107 1231 124; (1964); 7, 52. total capacity 9000 megawatts. Institute, Historical Statistics Industry Through 1970, p. (2d ed.). By installed conventional 275,000 1971 day, 1229 1230, A evaporated, 99—101. delegated allocate consumptive Basin. California, 373 546, 83 1468, 542. salinity increased reason partial evaporation downstream suffers problem, used, return system, contracts 546 day. (There 325,851 foot, cover depth foot. 650 1214.

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