Document: 372 U.S. 609 83 S.Ct. 999 10 L.Ed.2d 15 H. P. DUGAN et al., Petitioners,v.Everett G. RANK al. The DELANO-EARLIMART IRRIGATION DISTRICT Petitioners, v. Everett Nos. 31, 115. Argued Jan. 7, 1963. Decided April 15, Archibald Cox, Solicitor Gen., for Dugan and others, petitioners. B. Abbott Goldberg, Sacramento, Cal., Delano-Earlimart Irr. Dist., Claude L. Rowe, Fresno, respondents. Mr. Justice CLARK delivered the opinion of Court. 1 This injunction suit, filed in 1947 by water right claimants along San Joaquin River below Friant Dam, California, against local officials United States Bureau Reclamation, a number Irrigation Utility Districts and, subsequently, as well, sought to prevent storing diverting at dam, which is part Central Valley Reclamation Project. 50 Stat. 844, 850 (1937). See Gerlach Live Stock Co., 339 725, 70 955, 94 L.Ed. 1231 (1950). defense interposed was that suit therefore, beyond jurisdiction courts, it not having consented be sued. In 1956 District Court ordered issued unless Government constructed 'physical solution'1 would afford landowners supply simulating past. Rank Krug, D.C., 142 F.Supp. 1. Appeals reversed States, finding had However, officials, if affirmed on ground neither acquired nor taken claimed rights were therefore acting their statutory authority. California Rank, 9 Cir., 293 F.2d 340 307 96. No. 31 petition 115 Districts. Both cases proceed from same opinion. importance question operation this vast federal reclamation project led us grant certiorari. 369 836, 82 865, 7 842 370 936, 1586, 8 806. We have concluded correct dismissing States; petitioning fact they must dismissed therefrom; either owned or has involved any relief respondents may entitled reason such taking under Tucker Act, 28 U.S.C. § 1346. These conclusions lead reversal judgment insofar permitted through officials. 2 I. ASPECT OF THE CENTRAL VALLEY RECLAMATION PROJECT INVOLVED. 3 Project authorized Congress undertaken Department Interior pursuant Act August 26, 1937, 850. It generally described sufficient detail our purposes supra, Ivanhoe McCracken, 357 275, 78 1174, 1313 (1958). Graham, Project: Resource Development Natural Basin, 38 Cal.L.Rev. 588, 591 (1950), description citation authorizations. 4 grand design conserve put maximum beneficial use waters California,2 comprising third State's territory, bowl starts northern State averaging more than 100 miles width, extends southward some 450 miles. portion Sacramento Valley, containing River, southern River. rises extreme north, runs southerly City then into Francisco Bay Pacific Ocean. Sierra Nevada northeast westerly Mendota northwesterly Sacramento-San Delta where joins because heavier rainfall its watershed, surplus water, but valley little available tillable soil, while contrary situation. An imaginative engineering feat transported scarcity latter river diverted new areas irrigation other needs. transportation accomplished pumping Delta-Mendota Canal, lift 200 feet. flows gravity canal west side Mendota, 117 miles, discharged are impounded dam Friant, approximately 60 upstream Mendota. Dam stores Millerton Lake Madera Canal north County Friant-Kern south vicinity Bakersfield those public purposes. 5 bed level 240 Feet higher 173, prevents being carried further replenishing 60-mile area between thereby furnishing entire length Dam. stretch Joaquin—and particularly Gravelly Ford, 37 downstream—is approximate litigation. been subject cooperative studies state, local, governments many years. Indeed initial planning recognized, indicated included plan, flow severely diminished. 18 Op.Cal.Atty.Gen. 33—34 (1951). All parties recognized existence necessity accommodate extinguish them. Report 3, Calif. Water Authority, Definition Rights Waters Proposed Diversion Upper 1—2 (1936). principal alternative, shown reports subsequent appropriations Congress, purchase pay infringement these rights. As early 1939 entered negotiations ultimately culminating agreements substitute diversions periodic releases supra. 1952 215 contracts nature involving almost 12,000 acres, require maintain live stream river. 6 could reached with reach river, resulted. II. HISTORY LITIGATION. both costly protracted.3 involves 325,000 acres land including Fresno. map F.Supp., 40. Originally Superior enjoin or, obtain decree physical solution action removed Southern California. named plaintiffs represent class owners riparian well types addition two receiving originally made defendants later joined. complaint challenged constitutional authority operate A three-judge court impaneled 2282, decided issue presented no substantial question. 90 773 (D.C.S.D.Cal.1950). left undecided whether Secretary acquire involved. remained dormant until completed 1951, 45, began reduce By consent, temporary restraining orders controlling covering years 1952, 1953. June year withdrew consent approval Appeals, Court, 206 303. joined party basis McCarran amendment, July 10, 66 560, 43 666, infra, n. 5. has, however, operated without judicial interference since 30, announced case February 1956, 1, next year. declared all claimants, members intervenors, Tranquility officers did individual adjudicate priority among 36. 11 'have been, now are, will full natural past times * hereinelsewhere erected (by defendants) within reasonable time, thereafter set forth.' Transcript Record, Vol. III, p. 993. 12 series small dams built expense purpose keeping 'equivalent' flow, 166, simulate 2,000 feet per second. 169. 13 summary, held proper amendment; vested superior defendants; does permit pass down satisfy rights; seizure only eminent domain exercised proceedings; consequence impounding constitutes an unauthorized unlawful invasion damages adequate recompense; requires defendants, enjoined otherwise impeding time own Districts, build aforesaid them operation; county origin watershed statutes, Code 10505, §§ 11460—11463, first charge agricultural service needs Fresno before areas; finally also 106 106.5 domestic-use power municipalities hold rights.4 14 joinder holding consent. likewise found acquire, otherwise, needed restricted state law. occurred sufficiently identified what seizing, equivocation there trespass rather taking. concluded, petitioner acted injunctive features judgment. On rehearing, modified make inapplicable refused dismiss III. UNITED STATES AS PARTY. go directly party. agree do consider contention length. say provision 666,5 relied upon providing suits 'for adjudication system source,' applicable here. Rather general 'all various given stream,' S.Rep.No. 755, 82d Cong., 1st Sess. (1951), private determine solely parties, asked granted priorities established appropriative prescriptive asserted. But presence them, failure end matter. yet deal one States. IV. RELIEF GRANTED AGAINST FEDERAL OFFICERS 16 correctly empowered seizure. Rivers Harbors 850, provided 'may proceedings domain, lands, rights-of-way, rights, property necessary said *.' Likewise, implicitly when we others compensation therefor. specifically settled payment 'either condemnation already taken, courts.' U.S., 291, 1183, 1313. examining extent here, constituted trespass. observed 'will dried up' contracted 'a varies day never know take. 17 'A casual circumstances right. cloud cast prospectively assertion take creates present injury above suffered itself—a loss value cannot compensated can measured.' F.2d, 358. court, trespass, affirm, modification, 19 conclude was, respondents' allegations, partial believe incorrectly applied principle Larson Domestic & Foreign Corp., 337 682, 69 1457, 93 1628 (1949), field sovereign immunity. rule 'the expend itself treasury interfere administration,' Land Dollar, 330 731, 738, 67 1009, 1012, 91 1209 (1947), effect 'to restrain acting, compel act.' 704, 1468, 1628; Ex parte New York, 256 490, 502, 41 591, 65 1057 (1921). here enjoins impounding, diverting, diversion, obstructing 1021. found, 'could impairing, degree, river.' Experience over decade indicates clearly impairment most substantial—almost three-fourths To force abandonment fully paid continuing appropriations. Moreover, fulfillment would, indeed, 'stopped tracks 1628. 20 less direct effect. Interior, President operated. Its plans include additional required government expense. judgment, 'interfere administration' 'expend 1209. mandate Congress—to dispose valuable deprive control facilities. readily apparent operates 21 Nor falls exceptions reaffirmed last Term. Malone Bowdoin, 643, 980, 168. supra; Santa Fe Pac. R. Co. Fall, 259 197, 199, 42 466, 467, 896 (1922); Scranton Wheeler, 179 141, 152—153, 48, 52—53, 45 126 (1900). Those (1) powers (2) even though scope authority, themselves manner constitutionally void. 647, 983, officer's 'can specific officer Ibid. characterized 'trespass' establish unconstitutional unauthorized. Larson, 693, 1463, 1628: 22 'The mere allegation officer, officially, wrongfully holds plaintiff title meet (the) requirement (that appear restrained directed sovereign). True, establishes wrong plaintiff. committing wrong, exercising delegated him sovereign.' And, added: 23 (be holding, legally affecting plaintiff's property) regarded so 'illegal' powers, exercise particular case, void.' Id., 701—702, 1467, 24 Since Government, power, authorization seize respondents, several permissible, Ivanhoe, comes Malone, limitation placed bottom conclusion limitation. Having plenary whole carrying out congressional mandate, fortiori less. follows invaded amounted therewith thereof—not 25 find substance knowledge accept view absence specificity amount assessment case. From very beginning facilities entail dam. Indeed, obvious expressed construction dam—to store divert intention river.6 Pursuant enter numerous previously noted. While true, observed, announce specified 'gallons' matter, 'inches' see 340, 357—358, think quantitative uncertainty precludes ascertainment point error. 26 likely element undertainty drawn Interior's statement letter 'is administrative one, voluntarily assumed executed.' 356, 8. alone might picture spillway opened closed whim Secretary. statement, merely notice intended works fairly, his own, interference. Neither he Even introduce exactly do, proper. Despite caveat, ascertainable (see Collier Merced District, 213 Cal. 554, 571—572, P.2d 790, 797 (1931)), based partially Secretary's prior unequivocal regarding minimum released dam.7 Parenthetically, note petitioners, brief, 12, inform 'Friant accordance stated adjustments weather conditions.' 27 Damages instance measured difference market after Supreme 797. '* (T)he parcel legal sense, usufructuary intangible inhering therein complete produces disfigurement property. way measure done ascertain depreciation There distinct conflict evidence lands appellant greater respondent, law arising evidence.' 29 continued landowner's need necessarily land. occur upstream, Interference analogized air space land, recent Griggs Allegheny County, 84, 89—90, 531, 533—534, 585 (1962). Causby, 328 256, 261—263, 267, 1062, 1065—1067, 1068—1069, 1206 (1946); Portsmouth 260 327, 329, 135, 136—137, 287 (1922). Wiel, Western (3d ed. 1911), 15; Nichols, Eminent Domain 1950), 6.3. Therefore, 'with subordinating' Project's uses 'whenever saw fit,' result depriving owner profitable use, (there was) imposition servitude (as) constitute appropriation should made.' Peabody 231 530, 538, 34 159, 160, 58 351 (1913); 287. 30 appropriate proceeding determination thereof stoppage project, avenue redress open aside judgments clear indicate validity claims. V. AND UTILITY DISTRICTS. 32 Similar disposition petitioners Lake. noted, dissolved No appears action. event, dismissal order. 33 affirmed; remanded directions vacate remand instructions dismissed. ordered. Judgment directions. 35 CHIEF JUSTICE took consideration decision cases. procedure whereby existing protected excess use. Feasibility Ickes Franklin D. Roosevelt, dated November 1935, approved December 2, reprinted 823—827 Engle, Documents, H.R.Doc.No.416, 84th 2d 562—567 (1956). trial, lasted days, 30,000 pages record produced hundreds orders. Opinions (C.A.9th 1961); (Krug), (D.C.S.D.Cal.1956). Related intermediate (D.C.S.D.Cal.1950); 303 1953); 818 1954); F.R.D. 310 (D.C.S.D.Cal.1954); Edmonston, 131 421 (D.C.S.D.Cal.1955). sections dealt cause 51, 627, 996. 666: '(a) Consent join defendant source, administration process acquiring law, purchase, exchange, suit. shall deemed waived plead laws amenable thereto sovereignty, judgments, orders, decrees jurisdiction, review thereof, like circumstances: Provided, That costs '(b) Summons served Attorney General designated representative. '(c) Nothing section construed authorizing controversy interstate stream.' c. 651, Title II, 208, 560. March 1953, response request district judge clarify position, written expressing 'administrative intent respect relates Friant-to-Gravelly Ford River.' that: '. . release Reservoir quantity valid requirements surface underground, methods diversion area, provide, thereto, continuous flowing rate five cubic second points throughout one-half mile head Canal.' VII, 388, n

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