Document: 349 U.S. 435 75 S.Ct. 832 99 L.Ed. 1215 FEDERAL POWER COMMISSION, Petitioner,v.The STATE OF OREGON, The Fish Commission of Oregon, Oregon State GameCommission. No. 367. Argued March 2, 3, 1955. Decided June 6, [Syllabus from pages 435-437 intentionally omitted] Mr. Willard W. Gatchell, Washington, D.C., for petitioner. Arthur G. Higgs, Portland, Or., respondent. Rollin E. Bowles, the Division Izaak Walton League America, as amicus curiae. Justice BURTON delivered opinion Court. 1 As in First Iowa Hydro-Electric Coop. v. Federal Power Commission, 328 152, 66 906, 90 1143, this case illustrates integration federal and state jurisdictions licensing water power projects under Act.1 In we sustained authority to license a project use navigable waters United States located Iowa. Here, without finding that are navigable, has issued comparable on lands constituting reservations Oregon. questions do adequacy provisions approved by conservation anadromous fish.2 For reasons hereafter stated, sustain Commission. 2 1949, Northwest Supply Company applied construct, operate maintain hydroelectric plant, Pelton Project 2030, reserved Deschutes River Oregon,3 and, 1951, Portland General Electric succeeded supplementary application license. 3 is designed include concrete dam 205 feet high powerhouse containing three 36,000-kilowatt generators. It be built across below junction its Metolius Crooked tributaries.4 western terminus occupy lands, within Warm Springs Indian Reservation, which have been purposes since 1910 1913.5 eastern which, at least 1909, withdrawn entry public land laws purposes.6 calls no permanent diversion entire flow river will run through or over into natural bed stream. This make available head volume required impounded it create narrow reservoir, submerging title States. Variations interruptions stream, caused temporary storage purposes, controlled 'reregulating dam' private property, acquired, about miles dam. No objection made reregulating To extent access existing spawning grounds fish cut off dam, other facilities constructed maintained terms develop an equal greater population. Opportunities recreational uses area enhanced issue pollution before us. 4 Game intervened each filed objections granting Some their related grant others suitability proposed facilities. 5 Following extended hearings, Commission's presiding examiner recommended After exceptions recommendation order 10 F.P.C. 445, 450, 92 P.U.R. (N.S.) 247. found need exists early completion meet severe shortage Pacific Northwest. also interest, provide comprehensive development affected stretch River, consistent with further stream Columbia Basin. held improvements contribute valuable benefits not if present condition.7 stated subject all rights river, whether perfected not. prescribed measures taken needs during construction certain facilities, practices expenditures relation such fish. 'that substantial evidence brought forward show conserving runs. Moreover, there indications runs can increaed.' F.P.C., (N.S.), 252. 6 A rehearing being denied, agencies sought review Court Appeals Ninth Circuit intervened. That court, one judge dissenting, set aside order. 211 F.2d 347. recognized necessity but Congress, legislation, long ago had transferred control nonnavigable sponsor must secure permission State. We granted certiorari because significance issues denied leave intervene here. 348 868, 112. 28 U.S.C. § 1254(1); 49 Stat. 860—861, 16 825l(b), U.S.C.A. 825l(b). Several briefs amici curiae, usually adopting own brief respondents. 7 divide our consideration parts. I. Applicability Act 8 On face, applies specifically did case. There jurisdiction turned almost entirely upon navigability applied. Here turns ownership licensed located.8 licenses springs Commerce Clause Constitution. so Property Clause—'The Congress shall dispose needful Rules Regulations respecting Territory belonging * *.' Art. IV, 3.9 9 instant come term 'reservations,' distinguished 'public lands.' Act, established meaning. 'Public lands' appropriation disposal laws. 'Reservations' subject.10 rest cession Great Britain now comprising Even formerly they may open lands,' were availability any vested interests conflicting acquired.11 Title States.12 Since Treaty 1855, reservation, end rest, Indians. More recently purposes13 Indians given consent Accordingly, here tribal States.14 thus remains question constitutional statutory valid States, provided that, does conflict others.15 allow veto use, requiring State's additional permission, would result very duplication regulatory precluded decision. 177 179, 918. called Act.16 agrees. page 351. And see Washington Department Cir., 207 391, 395—396. Authorization project, therefore, exclusive unless modified legislation. See Rio Grande Dam & Irrigation Co., 174 690, 703, 19 770, 775, 43 1136; Gutierres Albuquerque Land 188 545, 554, 23 338, 341, 47 588. 11 II. Inapplicability Desert 1877 Related Acts 12 argues July 26, 1866,17 9, 1870,18 187719 constitute express congressional delegation conveyance regulate these waters. argument preclude restrict scope jurisdiction, otherwise apparent face require 13 nature effect discussed previously purpose 1866 1870 was governmental recognition sanction possessory asserted local customs. Jennison Kirk, 98 453, 25 240. severed, acquisition, soil acquired manner law location. California-Oregon Co. Beaver Cement 295 142, 55 725, 79 1356. also, Nebraska Wyoming, 325 589, 611—616, 65 1332, 1347—1350, 89 1815. 14 necessary us, case, pass legislation constitutes claimed State, applicable involved. covers 'sources supply us 'reservations.' restriction sources apply lands. 'It familiar principle statutes providing generally domain inapplicable unqualifiedly sale disposition appropriated some purpose.' O'Donnell, 303 501, 510, 58 708, 714, 82 980. Minnesota, 270 181, 206, 46 298, 305, 70 539. certainly 'are enough, recognize license, relates only 15 III. Application Finally, respondents discretion used They point consequences beyond limits located. 17 first consequence inevitable variation in, interruption of, satisfied overcome provision technical features involved site accordance property Oregon.20 reregulation acts behalf people well others, seeing concerned acequately protected. 18 grounds. All agree 205-foot above cannot ladders.21 However, flatly prohibit dams breeding grounds.22 One alternative, recognized, supplying new pools removed appropriate times.23 permit carry out proposal appears disagreement underlying involved.24 applicant agreed plans capital cost borne applicant, estimated $4,430,000. total annual due $795,000. estimates reasonable. Of $795,000 cost, bear $410,000 (cost borrowed money, depreciation taxes investment), $10,000 maintenance addition, offered $100,000 annually toward $375,000 operation retained fix amount applicant's contribution sum upon. 20 care preparation program large investment impressive. interest already operating somewhat smaller kind River. 21 against goes conserve argued carrying Basin contemplate greatly enlarging population area, concentrating using river. While properly directed answer basis legal rights. 22 conclude, facts presented, terms, acted powers judgment Appeals, accordingly, reversed. 24 Reversed. HARLAN took part decision 26 DOUGLAS, dissenting. 27 I suppose could erect obtaining law. If am right assumption, then satisfying Oregon's water-rights licensee who build acquires give what have.1 pressed akin urged 611 et seq., 1347, struggled rid rule streams West dependent owned unappropriated basin North Platte Reclamation 1902, 32 388, 1877, 377, circumstances might owner But those like landowners, viz., pursuant governing appropriation. 29 Unless depart ruling, accept claim 30 position support two decisions Court, both construing Act. 728, 1356, construed crucial here, reads: 31 'all surplus actual together lakes, rivers remain free irrigation, mining manufacturing rights.' interpreted follows: 33 'The fair intended establish future should patented separately; non-navigable thereon states territories named.' 162, 731. 34 sure, contest between owners. announced shortly stream.2 Ickes Fox, 300 82, 57 412, 81 525, 'if before, severed separately. Acquisition government parcel right; various arid-land states.' Id., 95, 417. 35 Fox farmers irrigation system, rejected looked determine rights; them, indispensable party litigation concerning them. 36 Those cases lands'; 41 1063, amended, 791a grants 'upon States.' 4(e). definition says nothing rights.3 And, pointed out, long-term policy separate wastern 37 final resort 25, 1910, 847, providing: 38 'That President may, time his discretion, temporarily withdraw settlement, location, sale, including District Alaska reserve same water-power sites, classification specified orders withdrawals, withdrawals force until revoked him Congress.' 39 site. more than 'from entry.' purport touch change way pertains words control, remained undisturbed. save settlers locate assume recalled rights, saving, course, expressly done so; construe achieving clear. 40 reason adopted profoundly affects economy many ten whom protest. West, owns vast 50 percent land. mere Executive action appurtenant them returned dislocations economies Western follow. withdrawal 'water-power sites' host projects—'irrigation, purposes.' officials authority. consistently deny again. Certainly definance law, when makes group. 838, §§ 825r, 791a—825r. ascending sea purposes. instance, especially salmon steelhead trout. outline general problem Schwartz, Federalism Anadromous Fish, Geo. Wash.L.Rev. 535. 1924, Valley Company, Inc., substantially but, licensee's failure proceed canceled 1936. drains slope Cascade Range flows northward, involved, meets Dalles. findings streams. Throughout lower 130 miles, site, canyon average fall 17.6 per mile apparently, incapable sustaining navigation. throughout litigation, treated 'navigable waters' defined 3(8) 796(8), 796(8). either relationship interstate commerce Reservation Middle Ratified Senate 8, 1859, proclaimed April 18, secured 'the taking running bordering said reservation 963, 964. bound Treaty. Anthony Veatch, 189 Or. 462, 483—485, 220 P.2d 493, 502—503, 221 575. Winans, 198 371, 662, 1089. Site Reserve created November 1, 294 October 1913, Secretary Interior 855, 858. December 30, Order 847. occurred connection 57. Comparable 1949 1951 application. 1075—1076, amendments, 818, 818. '(44) Under conditions, conditions hereinafter best adapted plan improvement utilization development, preservation wildlife resources, beneficial '(45) corporation organized submitted satisfactory compliance requirements insofar project.' 456. 9(b) 10(a) 1068, 802(b), 842, 803(a), 803(a). 'Sec. 4. commission hereby authorized empowered '(e) thereof constructing, operating, maintaining dams, conduits, reservoirs, houses, transmission lines, works convenient navigation transmission, across, along, from, bodies foreign nations among several *: Provided, after interfere inconsistent contain department whose supervision falls deem adequate protection reservation: *. 23. '(b) unlawful person, municipality, developing electric power, operate, conduit, house, incidental thereto (including Territories), utilize Government except right-of-way prior 10, 1920, Any association, corporation, municipality intending construct over, thereof, herein waters, file declaration intention whereupon cause immediate investigation made, find construction, maintain, received find, affected, laws.' (Italics supplied initial word proviso.) 839, 840, 846, 797(e), 817, 817. companion despite contentions conservancy Basin, effective much proposed, 391. 5, 1954. 347 936, 74 626, 1087. 3. section following meanings wit: '(1) means 'reservations', defined; '(2) 'reservations' national forests, embraced reservations, military withdrawn, reserved, withheld laws; purposes; monuments parks; 796(1) (2), 796(1, 2). note supra. Utah, 283 64, 75, 51 438, 440, 844. Hynes Grimes Packing 337 86, 103—104, 69 968, 979, 93 1231; Minnesota 305 382, 386, 59 292, 294, 83 235. 27. contained affecting affect respective relating appropriation, distribution municipal uses, therein.' 1077, 821, 821. 'To petitioner condition precedent securing vest Council project. Such easily destroy effectiveness act. subordinate 'comprehensive' planning provides depend representatives Government. 'In separation subjects Constitution delegates vests separation, establishes dual system control. duality consists merely division common enterprise cooperating government, jurisdiction. share issue. Where supersedes suggestion leaves traditional admittedly superior Government, commerce, administer cases, exercise treaties Hydro Co-op. 164, 167—168, 171, 911, 1143. 9. enacted, whenever, priority possession, mining, agricultural, manufacturing, accrued, acknowledged customs, laws, courts, possessors owners protected same; ditches canals aforesaid confirmed: however, passage act, person persons shall, ditch canal, injure damage possession settler domain, committing injury liable injured damage.' enacting clause 253, 661, 661. 17. patents granted, preemption homesteads allowed, accrued reservoirs ninth act (14 supra) amendatory. *' supplied.) 218, '* lawful citizen requisite age 'who entitled become citizen, such' payment twenty five cents acre—to oath register receiver district desert situated, he intends reclaim tract exceeding section, conducting same, period years thereafter, Provided however six hundred forty acres bona fide appropriation: exceed actually appropriated, necessarily reclamation: Said describe particularly surveyed, unsurveyed, nearly possible survey. At filing declaration, making proof reclamation aforesaid, dollar acre patent him. permitted enter compact form.' provisos.) 321, 321. approval engineering feature rests why desires seek mutually solution. fact, submit proposals authorities. rough estimate spring chinook passing en route upstream, 2,500 summer trout 5,000. escapement past value fishery attributable $177,375. 449, P.U.R.(N.S.), event height ladder fishway thereover impracticable, (Fish) commission, applying convey size dimensions place selected hatchery residence, according specifications furnished agreement good sufficient bond, furnish light, expense, hatchery; conveyed erected residence specifications. Ore.Comp.Laws, 1940, 83—316. that: '(29) novel, unusual ordinary respect applicant. '(30) proposes arrange methods. '(31) Construction, detrimental resources '(32) record prepared runs, possibility increased.' 455. addition Hydroelectric hold necessary, company referred simultaneous proceedings, reach conclusion sought. pertinent 'From involving rivers, concurrent generation electricity, begun conformity hereof. (Oregon Hydroelectric) power: licenses, provided, citizens associations citizens, corporations appropriate, initiate, perfect, acquire state, structures electricity.' 119—103, 119—106. 119—101. is, indeed, direct tributary Columbia. Control important flood-control Clause. Oklahoma ex rel. Phillips Guy F. Atkinson 313 508, 61 1050, 1059, 85 1487. lost nonuse intervening exercised, way. demand compensation loss possessed. Niagara Mohawk Corp., 239, 254—255, 487, 496—497, 686. assert defeat program, Supremacy prevent her. effort bring inadequate purpose. proprietor. complete reference Chandler-Dunbar Water 229 53, 667, 1063; Chicago, M., St. P. P.R. 312 592, 543, 772, 1064; Commodore Park, 324 803, 1017. authorizes proceed, irrespective where dealing execution. room left degree situation: iin issue.' 913. follows 3:

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