Document: 362 U.S. 482 80 S.Ct. 884 4 L.Ed.2d 903 UNITED STATES, Petitioner,v.REPUBLIC STEEL CORP. et al. No. 56. Argued Jan. 12, 13, 1960. Decided May 16, Rehearing Denied June 27, See 363 858, 1605. Mr. J. Lee Rankin, Sol. Gen., Washington, D.C., for petitioner. Mr.Raymond T. Jackson, Cleveland, Ohio, respondent, Interlake iron corp. Paul R. Conaghan, Chicago, Ill., Republic Steel Corp. Messrs. Peter A. Dammann and W. S. Bodman, submitted on brief International Harvester Co. Justice DOUGLAS delivered the opinion of Court. 1 This is a suit by United States to enjoin respondent companies from depositing industrial solids in Calumet River (which flows out Lake Michigan connects eventually with Mississippi) without first obtaining permit Chief Engineers Army providing conditions removal deposits order direct them restore depth channel 21 feet removing portions existing deposits. 2 The District Court found that was used vessels requiring 21-foot draft, has been maintained Corps Engineers. Respondents, who operate mills banks river production related products, use large quantities water river, returning it through numerous sewers. processes they create waste containing various solids. A substantial quantity these recovered settling basins but, according findings, many fine particles are discharged into flocculate larger units deposited bottom. Soundings show progressive decrease vicinity respondents' mills. But respondents have refused, since 1951, demand dredge portion river. shoaling being created plants were be respondents.1 reduced 17 some places 12 others. made findings which credited 81.5% channel, allocated proportions among three respondents. 155 F.Supp. 442. 3 Appeals did not review sufficiency evidence. It dealt only questions law directed complaint dismissed. 7 Cir., 264 F.2d 289. case here petition writ certiorari we granted because public importance tendered. 359 1010, 79 1150, 1035. Section 10 Rivers Harbors Act 1899, 30 Stat. 1121, 1151, as amended, 33 U.S.C. § 403, U.S.C.A. provides part:2 5 'That creation any obstruction affirmatively authorized Congress, navigable capacity waters hereby prohibited; * *' (Italics added.) section goes outlaw structures 'in' except those initiated plans recommended Secretary Army. then states 'it shall lawful excavate or fill, manner alter modify States, unless work prior beginning same.' 6 criminal penalty added 406; further may sue 'any parts erected' violation removed. 17, 413, directs Department 'conduct legal proceedings necessary enforce' provisions Act, including 10. 407 forbids discharge refuse matter kind description whatever other than flowing streets sewers passing therefrom liquid state, States'; but 13 grants authority such under prescribed him. 8 Our conclusions placed have, Court, an 'obstruction' within meaning discharges exempt 13. We also conclude grant relief. 9 history federal control over obstructions our rivers harbors back Willamette Iron Bridge v. Hatch, 125 1, 8, 811, 815, 31 L.Ed. 629, where held 'there no common States' prohibits 'obstructions' rivers. Congress acted promptly, forbidding 1890, 26 426, 454, 'the obstruction, law, capacity' States. 1899 followed report3 War, at direction 29 234, contained compilation revision laws relating waters. said contain 'no essential changes law.'4 Certainly so far outlawry concerned there change relevant present problem. argued means structure. design should enough refute argument, ban obstruction,' approved appears part 10, semicolon another provision bans kinds 11 reach seems plain. Certain types structures, enumerated second clause, erected approval Nor excavations fills, described third course, location, condition, of' work' There is, apart particularized invasions rivers, approve, generalized clause can planned type 'obstruction,' merely specifically subject seems, moreover, aimed 'navigable serves end times broader served clauses. Some mentioned deter movements commerce, falling short adversely affecting capacity. And waterway conceivably affected fills clause. would need strain hard banned In short, protecting capacity,' though ways specified argument 1890 predecessor now concerned, words obstruction' narrow sense, embracing enumeration preceding sections Act. labored one do stop step step. unnecessary so, Rio Grande Dam & Irrigation Co., 174 690, 708, 19 770, 777, 43 1136, decided long after became effective, gave concept broad sweep: 'It prohibition navigation, capacity, anything, wherever done however done, limits jurisdiction tends destroy terms prohibition.' construction given carried Sanitary Chicago 266 405, 429, 45 176, 179, 69 352, citing supra, saying 'a expression policy unmistakable terms, advancing upon' decision us decisive. affirmed decree enjoining diversion this same Holmes, writing read narrowly spirit moved fill gap supra. That affects level may, he said, amount 10: 14 'Evidence sufficient, if evidence necessary, withdrawal scale statute Illinois threatens will affect Lakes, cannot consent even international covenant case.' page 179. 15 'There neither reason nor opportunity cover case. As applied concerns condition Lakes River, admitted navigable, and, their *.' Id., 16 distinguishable involved erections 'structures,' prohibited 'structures' erected, however, had reversed flow 'formerly little stream Michigan,' 424, 178, sluiceway draw down Great dangerous degree. Moreover, rely third. 428, run against 'structure'; enjoined excess 250,000 cubic per minute. reaffirmed State Wisconsin Illinois, 278 367, 414, 49 163, 170, 73 involving reduction withdrawals River. speaking Taft (id., pages 406, 417, 167, 171), clear adhered what Holmes earlier 'This War.' 180. 18 teaching cases term include diminution included caused lowering level. Here clogging inorganic Each 'capacity' former plainly adequate latter. noted, state.' materials 'industrial solids,' found. creating suspension, solution. Articles organic sewage, undergo chemical change. Others settle out. All suspension saved exception Refuse 'sewers' 'liquid state' 'sewage.' Any doubts resolved consistent administrative refused give immunity wastes resulting deposit very question.5 fact articles potentially impair navigability6 enlarge group discharges. follow line drawn accept invitation broaden matters 'in might logically treated favorably sewage treated. charitably light purpose served. philosophy statement New Jersey York, 283 336, 342, 51 478, 479, 75 1104, 'A more amenity, treasure,' narrow, cramped reading either 20 concluded violations shown, relief injunction permitted. Yet provides, seen, conduct true refers (see Bigan, 274 729), while provided 'obstruction.' again answer enough. restricted 'structures.' 408, 177. replied. 'The Attorney General virtue his office bring proceeding authorize suit.'7 178. cited San Jacinto Tin 273, 850, 747, brought set aside fraudulent patent lands. could suit, specific authority. test whether interest protect defend. defines serves. Protection injunctive precedent ordering restored. void left filled detailed codes provide every contingency. legislated its clear; appropriate remedies fashioned rest inferences. Otherwise impute futility inconsistent great legislation. procedural point.8 Since subsidiary raised appeal, remand conformity opinion. 22 Reversed. 23 Memorandum FRANKFURTER, dissenting. 24 absence comprehensive legislation dealing matter, I go way sustain power parens patriae, nuisance seriously obstructs navigation. road judicial barred 1899. For reasons forth my Brother HARLAN, structure reflected particularities provisions, make unavailable situation before 25 whom WHITTAKER STEWART, join, reconciled understand opinion, does suggest prevail Far presenting simple statutory scheme depicted governing complex legislative tortuous. My disagreement rests four grounds: (1) large, speak, particular Act; (2) fall Act's proscriptions; (3) event authorized; (4) 352 militate conclusions. 27 Five case: 28 9, 401, makes unlawful construct bridge, dam, dike, causeway War.1 contains clauses: Clause prohibited.' build wharf, pier, dolphin, boom, weir, breakwater, bulkhead, jetty, complying certain conditions. 'to water' authorization War.2 (the last3 material here) constitutes misdemeanor, 'structures structures' enforced injunction.4 407, place 'that state *.'5 32 (5) 411, 14, latter two here)6 misdemeanor. No for.7 holds violated §§ circumstances. closer examination undertaken Court's view, refutes both I. 34 relies primarily provides: 35 prohibited. *'. 36 If stood isolation, bear attributes it. However, emerged course. bare considered context. 37 Two circumstances apparent face immediately raise doubt taken fullest literal sense. First, surrounded exhaustive cognate activities, 'bridge, causeway' (§ 9); 'wharf, cl. 2); 'excavate,' 'fill,' 'alter,' 'modify' 3); kind' 13). intended category enumerations, strange inserted lists several itself preceded making similar enumerations. Second, structural requires listed clauses lawfully accomplished War. says must Congress. congressional therein difficult square War enumerated.8 Because considerations, becomes explore derivation When believe statute. 38 derive ultimately proposal transmitted 1877.9 bill based recommendation introduced Congress,10 came known Dolph bill. reported all times, passed Senate twice.11 proscribed virtually identical 39 After time House it, annual appropriation bill, become 1890,12 up consideration floor already alteration bridges obstructed During debate Senator Edmunds Vermont offered amendment additional follows: 40 'Every respect Every person corporation guilty continuing deemed misdemeanor *. prevented circuit court *.'13 41 Subsequently, toto amendment.14 accepted amended,15 add bill.16 conference, combining them. penal enumerating obstructions, simply offender forfeit $250 liable actual damages. conferees deleted entire replaced adaptation amendment.17 latter, enacted 42 waters, jurisdiction, act mentioned, violate last act, (T)he removed *.'18 Thus, amendment, appeared, sanctions, substituted theretofore purely penalties applied. noted original remedial applicable mentioned,' incorporating (Emphasis instances, word 'such' clearly referred initial sentence prohibiting appears. Whatever meant mentioned.' To consider something lead conclusion section.19 Definition offenders—those 'who act'—was prohibitions practices obstructions. 44 From background, think reasonable catchall sense.20 directly about result Congress' 1896 prepare general waters.21 Secretary's report purported codify substantive changes,22 Frye, Chairman Commerce Committee, passed, confirmed new effect.23 indeed recognized codification, took Act.24 nothing indicate doing, departed announced intention leave substance unchanged. Thus language was, old declaratory throughout nonstructural nature.25 II. 46 agree declaratory. 3, theory 'alter again, evident constructed, conventional reserving treatment confirms this. basic relates represent ordinary sense term. following phrase, 'or water,' referring class things clause's frame reference, dispelled concluding words: 'unless 47 Finally, construed proscribe practices. whatever' undoubtedly embraces expressly exempts 'flowing state.'26 mean nineteenth century carving establish absolute standard purity bore relation prevailing practice disposal time,27 impossible achieve present-day technology. conceded despite best efforts separate solids, few minute remain. These comprise small fraction 1% total solution most damaging too seen microscope. One expert say sewer pipe today, fortiori 60 years ago, solid affords basis differentiating, suggests, between domestic refuse. III. 48 Even established, authorized. avoid circumstances, propriety somehow 'inferred' where, statute, limited remedies, me precluded drawing source outside farther plain prescribes see injunction. Government heavily comparable obstruction.' section, undermines Government's conclusion. instances: second, sections. By contrast, instance—the indicates deliberate distinction interferences erection gathered together subjected 12. (and rule promulgated 14), structures,' thus reflecting refuse, unauthorized government navigational installations, careless sinking vessels. last-mentioned conspicuously lacking reference relief, established attributable removal, 50 enforce authorizes futile prescribe carefully limit available disregard limitations. allocate responsibility invocation IV. not, 'decisive' finds be, question originally sought Calumet-Sag later thereby complained-of consequent excavation pumping stations, intercepting sewers, movable dams, locks.28 rise right 52 extent relied inherent wide mark situation. concede inferring cause action arising constitutional Indeed, well reached view holding nuisances rivers,' '(t)he entered sustained, exercised prevent injury navigability 53 nevertheless find infer statute's failure validity proposition context Sanitary, applicability here. case, effect lower system. inferred repercussions State's beyond own borders,29 upon 'sovereign interest' treaty Britain touching Canadian boundary consist miles lying wholly obligation involved. 54 What happened clear. considers just name 'charitably' construing felt justified actually there. However appealing attempt piece fit modern-day course permissible whose function take filling deficiencies burdens maintaining integrity fairly using Government, 55 affirm. Report animadversions. H.R.Rep. 1345, 83d Cong., 2d Sess., p. full: commence building port, roadstead, haven, harbor, canal, harbor lines, lines Army; of, lake, refuge, inclosure H.R.Doc. 293, 54th Sess. Cong.Rec., Pt. 2923, reports Conferees. discussion Cong.Rec. 2296—2298. rather precise applies located Engineers, 1909, warned steel company accumulation poured Calumet. 1918, 1920, 1924, 1927, 1928, 1931, 1937 Engineer required An improvement August 30, 1935, 1028, 1036, 494, 72d costs computed shoals states, 24, assumed, estimate, shoal adjacent outer bulkhead States.' long-standing construction, conclusive entitled 'great weight' arose 'settled litigation.' Federal Trade Commission Mandel Bros., Inc., 385, 391, 818, 823, 893. references documents 237, 63d 1st pp. 77, 160; S.Rep. 66, 68th 2; 34; S.Rep.No. 2225, 74th Hearings, Civil Functions, Appropriations 1955, Subcommittee Committee Appropriations, 695—696; 69th states: 'In instances causes temporary point discharge, nature decomposes rectifies condition. sluggish overpollusion results oxygen content remains insufficient enable break permanent dredging resorted to. attended municipal authorities.' 'main ground' advanced commerce. Another ground Britain. 425—426, alternative grounds, rights lesser subordinate interests. Comment, Substantive Remedial Problems Preventing Interferences Navigation: Case, 59 Col.L.Rev. 1065, 1079. full until obtained War: Provided, built legislature across waterways lie single State, location thereof commenced: further, when bridge deviate completion modification previously received War; deals lines. nine, ten, eleven regulation pursuance fourteen, conviction punished exceeding twenty-five hundred dollars less five dollars, imprisonment (in natural person) year, punishments, discretion court. exercising district exist, proper instituted Attorney-General throw, deposit, cause, suffer, procure thrown, discharged, ship, barge, floating craft kind, shore, manufacturing establishment, mill tributary float washed water; bank water, high tides, storms floods, otherwise, whereby navigation impeded obstructed: herein extend to, apply prohibit operations connection works, officers supervising work: whenever judgment anchorage injured thereby, above defined him, application him material; strictly complied with, unlawful.' occupation installations. sunken violate, knowingly aid, abet, authorize, instigate thirteen, fifteen thirty days imprisonment, court, one-half paid persons giving information conviction. master, pilot, engineer, acting respectively, board boat vessel engage towing scow, boat, loaded thirteen elsewhere permitted willfully injure contemplated fourteen obstruct hereinbefore license revoked suspended fixed judge tried convicted. vessel, raft, employed violating pecuniary addition thereto damages craft, sum credit damage occurred, proceeded summarily libel having thereof.' prohibitions, proper, 442, 453. letters reprinted 224, 50th H.R. 2007, 49th Sess.; 2760, 88, 394, 51st 1635, 477, 2338, 1319. 426. 8607. 8684. 8608, 8691. 8685. 9558. 454. scanty view. Judiciary explanation 8603. discussed problem War's bridges. 8603—8605. Subsequent centered 'not law.' isolated statements attribute catch-all inconclusive. example Committee's attention, railroad tumbling rocks Ibid. 'refuse' covered practice, event, hardly significant scope Carlisle covering bridges, 'all whatsoever.' 8689. Apart purposes incorporation Carlisle's subsequent eliminate incorporate 'harmonizing' ibid., casts grave himself believed asserts contrary 1136. defendant attempted dam Mexico. dams defendant, contended nonnavigable built. passage quotes contention: urged stream, that, although distance mouth, territory Mexico, applicability. general, scope. prohibition. (I)t improperly ignore acts stream.' 777. obviously remotely issue i.e., covers remainder 7. 234. 2296—2297, 2923. identity numbers respective Acts coincidental. on, 412—413, 169, phrase 'affirmatively law' changed overcome sufficient. Bellingham Bay Boom C.C.D.Wash.1896, 72 F. 585, affirmed, 1897, 81 658, 1900, 176 211, 343, 437. 352; 412, 169. require 'authorized agency designated While liquid-sewage 1894, 363, forward debates exception. 4% urban population facilities trade wastes. Modern Sewage Disposal (1938), (Federation Works Assns., Langdon Pearse, editor, Anniversary Book, Lancaster Press, Inc.). Brief Appellant, 5—14. challenge invited testing maintain divert water. 431—432, 180; Record Appeal, Vol. VIII, 129, 151—152; Appellee, 66—67, 284—285. 123—158.

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