Document: 469 U.S. 504 105 S.Ct. 992 83 L.Ed.2d 998 UNITED STATESv.MAINE et al. (Rhode Island and New York Boundary Case). No. 35, Orig. Argued Nov. 26, 1984. Decided Feb. 19, 1985. Syllabus The United States brought this action against the 13 that border Atlantic Ocean to determine whether had exclusive rights seabed subsoil underlying ocean beyond three geographical miles from each State's coastline. In due course, Court concluded held interests in seabeds only a distance of their respective coastlines, but did not fix precise coastline any States. After filed motion for supplementary proceedings exact Rhode Island, Special Master was appointed, he subsequently permitted participate those proceedings. purpose these supplemental is legal area Block Sound eastern portion Long Sound. This determination turns on Sounds constitute, whole or part, juridical bay under Article 7(6) Convention Territorial Sea Contiguous Zone, since extent constitute bay, waters are then internal subject adjacent States' jurisdiction, line closes fixing seaward boundaries Report which (a) part 7(6), being an extension mainland southern headland (b) closed at drawn Montauk Point tip Watch Hill shore, west closing state waters, east territorial high seas. States, exceptions Report. Held: overruled, Master's confirmed. Pp. 998-1005. As general rule islands may normally be considered extensions purposes creating headlands bays, so if they "are integrally related realistically parts 'coast' within meaning Convention." v. Louisiana, 394 11, 66, 89 773, 803, 22 44. Here, presents exceptional case island should treated as mainland. 520-526. too far affect bay's line. therefore does have multiple mouths, Point, Island. Exceptions Louis F. Claiborne, Washington, D.C., plaintiff. John G. Proudfit, City, defendant State N.Y. J. Peter Doherty, Providence, R.I., R.I. Justice BLACKMUN delivered opinion Court. 1 These wide-ranging litigation That provisions Zone (the Convention).1 To Convention, jurisdiction 2 do shore. We independently reviewed voluminous record, we must, see Mississippi Arkansas, 415 289, 291-292, 294, 94 1046, 1047-1048, 1049, 39 333 (1974); Colorado Mexico, 467 310, 317, 104 2433, 2438, 81 247 (1984), find ourselves agreement with Master. adopt findings, confirm his conclusions, overrule by York, Providence Plantations. 3 * action, invoking Court's original Const., Art. III, § 2, 28 U.S.C. 1251(b)(2), instituted 1969, 395 955, 2095, 23 743, filing complaint Ocean.2 suit See Submerged Lands Act 1953, 67 Stat. 29, 43 1301 seq. after answers, appointment Master, 398 947, 90 S.Ct 1864, 26 286 (1970), submission Report, thereto, oral argument,3 its opinion, 420 515, 95 1155, 363 (1975), entered decree, 423 1, 96 23, 46 (1975). there determined coastlines. States; instead, reserved "to entertain such further proceedings, including State, enter orders, issue writs time deemed necessary advisable give proper force effect decree." Id., S.Ct., 23.4 4 Meanwhile, unrelated federal pilots licensed Connecticut challenged statute requires every foreign vessel American register trade traverses take pilot Pilotage Commission. District ruled possessed authority regulate pilotage Its theory 211, gives power "bays, inlets, rivers, harbors, ports States." ruling, court qualified Island's Warner Replinger, 397 F.Supp. 350, 355-356 (RI 1975). Appeals First Circuit affirmed judgment. Dunlap, 532 F.2d 767 (1976), cert. pending sub nom. Ball 429 812, 97 51, 50 72 (1976). 5 December 1976, obviously response ruling Commission suit, apparently thought determinations would best made then-existing coastlines Massachusetts order appointing Honorable Walter E. Hoffman customary request pleadings, summon witnesses, evidence, submit reports might deem appropriate. 433 917, 2994, 53 1104 (1977). component separated when it became clear concerned different issues. n. 4, supra. Subsequently, granted York's 6 basic position set forth following allegations second amended complaint: 7 "The ordinary low water along coast direct contact open sea marking limit inland waters. 8 9 ". . [T]he except beginning point off Sakonnet straight across Narragansett Bay Judith, border. around ." 10 asserted counterclaim: 11 "[T]he south Sandy shore clockwise, York." 12 status over no longer issue, parties agree, found, historic Convention. We, too, agree determination. regardless also bay.5 especially interpreted decision Louisiana (Louisiana Case), 44 (1969). found concluding viewed constituting bay. went conclude, noted above, 14 received here, ordered filed, replies, were authorized. 465 1018, 1265, 79 673 (1984). response, exceptions. argument. 468 1213, 3582, 82 880 now before us exceptions, briefs arguments parties. II 15 Court, argues "quarrel[s] recommendation consequences necessarily flow ruling." Exception 5. It states island, rather than mainland, cannot form expresses concern about "the principle involved precedent created," id., 6, not-part-of-the-mainland argument rejected, because other international implications. current social economic ties between overcome separateness emphasis "bay-like" appearance usage sheltered "reasoning backwards." 8. affirm, really reaffirm, "geographical eye law very rare truly unusual circumstances." 9. finds support Mississippi, 202 408, L.Ed. 913 (1906), Case, supra, points out indeed has been referred to, even "an insular formation." U.S., 72, 95, 806, 95. 16 Before directed what claims consisting Although agrees headland, northern reason (near Quonochontaug Pond) preferred choice, it, satisfy all required conditions enclose more area. But notes lies opening long deep indentation formed two Sounds. said although nevertheless influences number significant ways: coastal traffic routinely passes outside Island; commercial vessels rarely go hazardous underwater there; provides shelter rough weather; salinity less sea; upon currents Sound; factors together link sea. 17 turn, here applicable criteria determining existence apply Point. passage Judith primary entrance places Judith. shallow depth obstacles surface storm conditions, terminal moraine obstructions. Commercial ships use Thus, artificial reality divide having characteristics route passage. They closely intensity fishing recreational boating. said, present, Those landlocked, objective test described witness Jeremy C. White (land visible least 180 degrees bay). north closure protection, additional protection sufficient landlocked. says, utilized Bay. 18 reply brief, prevails mainland-extension argument, end. light possibility prevail issue. Accepting, arguendo, "that juridically, peninsula," Reply Brief Government endorses resolution, namely, Satisfaction semicircle 24-mile tests enough. Under well-marked mere curvature presence land-locked requirements must satisfied. natural companion almost north, east. nearest opposite recognized approved expert witnesses. first prominent coast. thus surrounded land sides one, useful isolation enclosed clearly line, sides, unless one assumes III 19 Act, 1312, boundary measured defined waters." 1301(c). A generally distant 1312. Waters landward while up 3-mile ring marginal sea.6 previously observed Congress left task defining adopted definitions contained 16, 777, 787; California, 381 139, 165-167, 85 1401, 1415-1417, 296 (1965).7 20 establishes special drawing baseline 7(2) defines bay: "For articles, whose penetration proportion width mouth contain landlocked An shall not, however, regarded large as, larger than, semi-circle diameter indentation." 21 7(4) exceed 24 indicated, pursuant Act. If body then, becomes coastline, extends IV Addressing question repeat Convention's exists: There "well-marked indentation" into "constitute coast." "as "contain And miles. glance map region consideration reveals headlands, neither nor satisfies 7's Though curves somewhat, nearly unanimous conclusion testifying experts that, absence "mere curvature" "indentation." And, absent sufficiently landlocked; test. On hand, continuation evident All witnesses reached conclusion. substantially indentation, where located. depends entirely application 7. 25 nothing indicates forming bay.8 some circumstances 60-66, 800-804, small River Delta bays coast, shoreline consists deltaic islands. "Article encompass mainland." 67, 804. reasoned follows: "No language elsewhere positively excludes 'natural points' 'landlocked' despite wide surely lose characteristic account narrow delimited 'low-water mark shore' mean low-water continuous. 27 "Moreover, history piece technically can never Of understanding been—and certainly remains—that indentions most create mouths instances coasts doubt true play restricted role delimitation bays. 29 While little guidance law, particular depend size, utility intervening shape relationship configuration 61-63, 801-802, 804 (footnotes omitted; original). 30 stated island's "origin resultant connection shore" another factor considered. 65, 84, 802, 84. 31 surveying scholarly discussion question. 64-66, nn. 84 85, 802-804, 85. survey suggested consensus assimilated common-sense approach used treated. 64, 802; A. Shalowitz, Shore Boundaries 162 (1962) (hereinafter Shalowitz). depart principles, once again, group 803. 45-46, 419-420. continue illustrative list quoted above assimilated. 32 argues, Case restrictedly allow few situations: genuine "river"; connected causeway; low-tide elevation; when, nature. discern limits. Given variety possible geographic configurations, feel consider individually mainland.9 33 Applying "realistic approach," 63, unusual, particular, relation corresponding leads roughly follows curving slightly back, concave shape. result, pocket completely surrounding land. 34 western end helps integral familiar outline Harbor. just unrealistic exclude Brooklyn Louisiana's. acceptable sense which, example, East Side Manhattan Hunt's Bronx, could locations coast.10 35 At Throgs Neck, one-half mile River, separates 15-to-18 feet, rapid navigation extremely hazardous.11 When contrast 118-mile length extensive form, reach make otherwise be. Both proximity shallowness inutility constituted originally, fact sea, suggest share common geological history, deposits sediment rocks ice sheets retreated approximately 25,000 years ago. 36 Our buttressed result expect used. Ships pass through bound passage, headed pass, 37 ultimate justification treating configuration, implicate sovereign intimate important M. McDougal & W. Burke, Public Order Oceans 305-309, 330-332 (1962). realistic recognize implicated here. 38 reaffirm our Consideration relevant factually specific inquiry, functions V Having remains ends closes. sections lines pertinent following: 40 "3. For measurement, lying joining marks points. Where, islands, mouth, sum total lengths mouths. Islands included areas indentation. 41 "4. twenty-four miles, marks, thereby 42 "5. Where exceeds manner maximum length." specifies mathematical restrictions noted, "landlocked," indentation," thus, directs connecting include cause agreed present secondary close assert propose near Southwest Either proposed both requirement greater line.12 comes down subjective 45 Were 14-mile points, definition word. side isolated eastward lacks pronounced feature qualify headland. itself Points line.13 Montauk-Watch bay.14 Law Task Force Committee Delineation Coastline line.15 47 insist, allowed 7(3) alters outward limits note International Commission's commentary tends Yearbook Commission, 1956, p. 269. say implies choice exists encloses selected. proposition 7(5) calls whenever among text writers.16 48 view like intersected mouths.17 49 opportunity resolve dispute, reasonable interpretation removed closer appear arguing creates well mouth. Because uses entering come therefore, making enough ought 51 Such treatment treatises. Nowhere happens Nor fair extrapolation Articles (5) 52 substantial difficulties approach, imposed significantly, define yet felt appropriate offer comprehensive term.18 Scholars interpreting given term meaning. "landlocked" "implies direction provide [a seaman] direction." P. Beasley, Maritime Limits Baselines: Guide Their Delineation, Hydrographic Society, Publication (1978).19 members Baseline concluded, outer reaches practical usefully bay-like formation. credited testimony passing confines willing exposed predominantly least, defective includes violation mandates inevitable seems us, treat VI 54 summary, hold Zone. 55 overruled. recommendations promptly decree consideration; unable proposal recommendation. Each party bear own costs; actual expenses borne half York. 56 retains effectuate supplement 57 ordered. [1964] U.S.T. (pt. 2) 1607, T.I.A.S. 5639. 7, named defendant. borders Maine, 517, 1156, 400 914, 91 170, 153 (1970); 403 949, 2272, 861 (1971); 404 954, 92 305, 270 408 2474, 329 (1972); 412 936, 93 2768, (1973); 419 814, 1087, 674, 678 1102, 771, 798 (1975); 904, 822, 834 918, 1110, 388 Commonwealth issued Maine (Massachusetts 452 429, 101 3074, 69 132 (1981). initially 8-19, 61. No exception 3(a) title ownership lands beneath navigable boundaries. 1311(a). location right navigation. Congress, Commerce Clause navigation, but, "in Aug. 1789, 54, 211. similar approaches establishing refers "baseline," and, 7(3). nation's waters; consonant Act's "coast line" Much nation-state's baseline. "territorial sea." addresses problems created located 7(3), address analytically problem itself, free Isles Dernieres, Caillou Bay, fall none Government's 66-67, 87, 88, 803-804, 88. Pearcy, Geographical Aspects Sea, Annals Assn. Geographers (1959) (islands "separated identified mainland"). Army Corps Engineers 19th century deepened feet easily navigable. unusual. Technically, river; simply tidal strait, Rather, complex Hudson estuary system, affected fresh flowing River. Panuzio, Model, Symposium Ecology 83, 89-91 (1966). geography Harbor lower Valley way unique Delta. true, suggests, bank river naturally something observation evaluating Lines add either disposition question, express Works, man-made construction formulated assist selecting 45-degree opposing mainland-headland selected them. Another next same side. resulting angle degrees, new inner measurement repeated until mainland-headlands pp. 16-17 Witnesses indicated Point-Watch Committee. 15. helpful finally concept apex salient coast; water; appreciable change trend Shalowitz 63-64. R. Hodgson L. Alexander, Towards Objective Analysis Circumstances, Institute, Occasional Paper 13, (1972) Alexander) ("a dimensional character 'bay' replaced 'sea' 'ocean' "). usefulness identifying 382 448, 451, 86 607, 608, 517 interagency committee Federal Government, established 1964, draw needed conformity 225, 38, outlying author notes, however: still leave unresolved how incorporated rule. solution merits reason." faced 54-60, 797-800, rejected intersect event pulling inward. much tend extend contours mainland-to-mainland narrowing 58, 799. declined 58-59, 79, 799-800, 79. evaluation complicated states: "Islands recognizes lines: "screen" block opening. screening argued forms literally applied, "surely 61, 801. Additionally, bounded 48-53, 794-797 (applying test). imprecise call judgments. Basically, lead perceived Or, conversely, sense, Isolation detachment key factor." Alexander

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