Document: 451 U.S. 287 101 S.Ct. 1775 68 L.Ed.2d State of CALIFORNIA et al., Petitioners,v.SIERRA CLUB al. KERN COUNTY WATER AGENCY Petitioners, v. SIERRA Nos. 79-1252, 79-1502. Argued Jan. 21, 1981. Decided April 28, Syllabus Section 10 the Rivers and Harbors Appropriation Act 1899 (Act) prohibits "[t]he creation any obstruction not affirmatively authorized by Congress, to navigable capacity waters United States." An environmental organization two private citizens (hereafter respondents) brought an action in Federal District Court seeking enjoin, as a violation § 10, construction operation water diversion facilities which are part California Water Project, series storage transportation designed transport from northern central southern California. The held, inter alia, that respondents could avail themselves "private cause action" enforce Appeals agreed, concluding was for especial benefit parties who may suffer "special injury" caused unauthorized waterway. Held: 1. No can be implied on behalf those allegedly injured claimed 10. Pp. 292-298. (a) 10's language, states no more than general proscription certain activities, does indicate intent Congress provide rights action. is kind ban carries with it implication confer particular class persons. P. 294. (b) Nor there anything legislative history suggesting created class. On contrary, suggests view public at large empowering Government exercise its authority over interstate commerce respect obstructions rivers bridges similar structures. 294-296. 2. question merits, raised petitioner California, whether requires permits state allocation projects involved these cases, will reached, above ruling disposes cases. This cannot consider merits claim has raise. 298. 610 F.2d 581, (CA 9) reversed remanded. Roderick E. Walston, San Francisco, Cal., petitioners. Elinor H. Stillman, Washington, D. C., respondents. John B. Clark, Sierra Club, Justice WHITE delivered opinion Court. 1 Under review here decision Ninth Circuit holding sue under Act. respondents),1 seek enjoin Project (CWP). They rely upon Act, States. . ."2 Since explicitly create enforcement mechanism, initial presented consolidated cases such right Petitioner also asks us decide 2 * consists primarily relatively moist climate arid portions State. used CWP initially stored behind dams Sacramento River and, needed, released into Sacramento-San Joaquin Delta. then diverts quantity this Delta directs canals aqueducts carry south. project both federal components. component, Central Valley constant source irrigation diverted Tracy Pumping Plant 115-mile Delta-Mendota Canal transports Mendota Pool California's Valley. supplies way Aqueduct. drawn deposited terminus Aqueduct, through flows destinations 3 present system quality captured north degraded intruding salt Pacific Ocean. As consequence or Aqueduct potentially lesser transported proposed 42-mile Peripheral along eastern edge area, would avoid mixing saline Instead depositing Delta, canal high directly Plants. 4 Respondents commenced 1971 States Northern Club Morton, 400 F.Supp. (1975). Named defendants were various officials administered agencies responsible overseeing operation, construction, regulation question.3 agencies, had contracted incurred extensive financial obligations reliance thereon, permitted intervene.4 alleged diversions water, violated 1899. sought further until consent Army Corps Engineers obtained required 5 concluded ruled approval Plants Canal. supra. agreed existed. Andrus, 581 (1979). It Plant, however, consented operation.5 We granted petitions certiorari filed 449 818, 68, 66 2019 (1980). II 6 Cort Ash, 422 66, 95 2080, 45 26 (1975), outlined "preferred approach determining should statute. ." Transamerica Mortgage Advisors, Inc. Lewis, 444 11, 26, 100 242, 250, 62 146 (1979) (WHITE, J., dissenting); see Cannon University Chicago, 441 677, 99 1946, 60 560 listed four factors thought relevant inquiry: 7 "First, plaintiff 'one whose statute enacted,' .—that is, favor plaintiff? Second, indication intent, explicit implicit, either remedy deny one? Third, consistent underlying purposes scheme imply And finally, one traditionally relegated law, area basically concern States, so inappropriate infer based solely law?" U.S., 78, S.Ct., 2087. 8 Combined, inquiries pursue answering recurring causes Cases subsequent have explained ultimate issue intended action, Universities Research Assn., Coutu, 450 754, 771-772, 1451, 1461-1462, 67 662 (1981); supra, 23-24, 249; Touche Ross & Co. Redington, 442 560, 568, 575-576, 2479, 2485, 2489, 61 82 (1979); but specified remain "criteria discerned." Davis Passman, 228, 241, 2264, 846 27, 250 dissenting). 9 Cort, consideration member " 'whose enacted.' 80-82, 2087, 2089; 569-570, 2485-2486; 689-694, 1953-1956. Without analyzing language apparently reasoned since enacted forbids waters, person "especially harmed" beneficiary But definition "especial" makes factor meaningless. view, victim crime deemed criminal statute's proscription. did adopt broad-gauge approach. 2089. simply beneficiaries. See Cannon, 690-693, n. 13, 1954-1956, 13. In ascertaining first Here, activities; unmistakably focus beneficiaries welfare further. Such "There far less reason individual persons if instead drafting Title IX [of Education Amendments 1972] unmistakable benefited class, written discriminatory conduct recipients funds prohibition against disbursement educational institutions engaged practices." 1954-1956; 569, 2485; 11 Neither nor identified supports part, passed response Court's Willamette Iron Bridge Hatch, 125 1, 811, 31 L.Ed. 629 (1888). There held common law "which nuisances rivers." Id., 8, 814. Although parties, clear absence specific legislation party, including Government, empowered take obstructions. enable Secretary War action.6 21 Cong.Rec. 8603, 8605, 8607 (1890); Pennsylvania Industrial Chemical Corp., 411 655, 663-664, 93 1804, 1811, 36 567 (1973); Standard Oil Co., 384 224, 227-229, 86 1427, 1428-1429, 16 492 (1966); Republic Steel 362 482, 485-488, 499-500, 80 884, 886-888, 894, 903 (1960). concerned individuals. 12 surprising, therefore, "indication one." 84, 2089-2090; 571, 2486; 694-703, 1956-1961. recognized much: "The reflect congressional afford F.2d, 588. silence serves confirm enacting Government's ability respond waterways.7 13 recently emphasized, inquiry remedy. 1462; 2489. judiciary engraft statute, matter how salutary, intend provide. Here dispositive. do suggest rather regulatory War. evidence anticipated being case, unnecessary inquire determine purpose advanced judicial within domain interest. These only relevance give 574-576, 2488-2489. indication, judgment must reversed. III 14 urges we reach cases—whether projects—regardless our disposition cause-of-action issue. decline do. Our permitting commence cases: 15 accordingly reversed, remanded proceedings opinion. ordered. 17 STEVENS, concurring. 18 1888 decree enjoining bridge river. 629. case relief court; rather, rule prohibited waterway.1 responded 1890 creating absent permit Stat. 426, 454. At time enacted, I believe lawyers assumed position comparable litigants injury suffered new statute.2 For well-known practice American courts.3 Therefore, my Members merely courts follow ancient maxim "ubi jus, ibi remedium" Texas Ry. Rigsby, 241 33, 39-40, 484, 874.4 Accordingly, writing clean slate, hold available 19 clean. Because problem expressed often difficult, wisely developed rules guide judges deciding implicitly all colleagues subscribed unanimous formulation rules, majority joined attempt explain application case. Ash analysis therefore law.5 20 correctly concludes indicates available. think important adhere analytical adopted base vote own about what probably 1890. Cf. Florida Dept. Health Rehabilitative Services Nursing Home 147, 151, 1032, 1034, 132 (STEVENS, concurring). join WHITE's REHNQUIST, whom THE CHIEF JUSTICE, STEWART, POWELL join, concurring judgment. 22 agree completely conclusion "Congress individuals" "[i]t 'indication [private] one.' Ante, 295. 23 analysis, ante, 297, where says: 24 "As 771-772 [101 1462]; 23-24 [100 249]; [442 U.S.], 575-576 [99 2489]. provide." 25 My difference, difference leads me write separate concurrence judgment, places somewhat emphasis warranted light several recent "implied decisions limit it. make so-called guides task 15, 245, 739-740, 1979-1980, (POWELL, dissenting), they equal weight, Transamerica, Ross, 2489 implied-right-of-action need mechanically trudge when dispositive been resolved. 24, 2489; Kissinger Reporters Committee Freedom Press, 445 136, 148-149, 960, 967-968, 63 267 Surely seriously argued mechanical lends "predictability" jurisprudence: today's decision, five last six statutory reviewed Courts after resulted reversal erroneous decisions. supra; Northwest Airlines, Transport Workers, 77, 1571, 750. While predictability sort, sort other guidance intended. am happy because persons," 297-298, "evidence remedy." nonprofit corporation; Hank Schramm commercial fisherman active Francisco Bay Ocean; William Dixon landowner. 610, 619 (N.D.Cal.1975). provides: prohibited; shall lawful build building wharf, pier, dolphin, boom, weir, breakwater, bulkhead, jetty, structures port, roadstead, haven, harbor, canal, river, outside established harbor lines, lines established, except plans recommended Chief Army; excavate fill, manner alter modify course, location, condition, of, lake, refuge, inclosure limits channel unless work prior beginning same." 30 1151, 33 U.S.C. 403. Interior, Commissioner Bureau Reclamation, Army, Engineers, Division Engineer Corps' South Division. Resources Director Department Resources. F.Supp., 620. According affidavits 1974 support motions intervene, Kern County Agency purchase up 1,153,000 acre-feet annually, resold agricultural users. Metropolitan Southern 2,011,500 annually serve needs some 4,900 square miles million inhabitants. Tulare Lake Basin Storage Santa Clara amounts. App. 99a-112a. Judge Tang wrote separately why conflict Circuit's Libby Rod Gun Poteat, 594 742 607. addition, 406, provides penalties violations provisions sections 10; 413, legal necessary [§ 10]." mode complementary remedies. 82-83, 14, 2089-2090, (1975); 29, 6, 252, However, here, considering waterways, mechanism respondents, certainly reinforces remedies designing legislation. read historical context during measure considered. 698-699, 1958, That context, argue, included awareness stream addressed nuisance nature. Furthermore, argue contemporary abrogation (1888), undermine accepted enactment streams resurrect Congressional interpreted, acquiescing view. positions heavily Wheeling Belmont How. 518, 249 (1852). There, equitable across Ohio River. took original jurisdiction, plaintiff, having done so, issues well federal. regularly entertain actions rivers. nothing discussion entitled before Indeed, establish waterways point reiterated Willamette, 15-17, 818-819. short, although common-law federalize law. cited did. Equally unavailing respondents' assertion stands broad proposition legislated automatically extrapolated discussions Bridge, 604-607 Gilman Philadelphia, Wall. 713, 722-724, 96 (1866). agreement court equity sustained injury. Whether prohibiting rise discussed most legitimately understanding preceding aware Supreme anyone contest 8604-8607 (1890). assume automatic basis nature nuisance. doubt decision. empower supported without support. follows: gravamen bill was, navigation defendants, erection building. pleaded legislature bridge. conformity requirements law; not, lacked assent provision act admitting Oregon State, referred to. tantamount declaration obstructed interfered with; interference, sanction Congress; complained said act. principal namely, Portland Congress. If be, apply kind, arise constitution laws bill." 7-8, then-current edition Cooley's treatise Law Torts 790 (2d ed. 1888) described breach duty way: "[W]hen imposed manifestly protection individuals, duty, supply remedy, gives none." A few years earlier quoted Cooley railroad's fence right-of-way gave party damages Hayes Michigan R. 111 240, 369, 374, 28 410. Anonymous, Mod. 87 Eng.Rep. 791 (1703) (per Holt, C. J.); Coke, Institutes Laws England 55 (6th 1681); W. Blackstone, Commentaries *23, *51, *109, *123; Comyns' Digest 433-445 (1822); Couch Steel, El. Bl. 402, 118 1193 (1854). Digest, 442, broadly stated: "So, every enacts, thing person, he same his advantage, recompence wrong him contrary law." Frankfurter stated dissent Montana-Dakota Utilities Northwestern Public Service 341 246, 261-262, 71 692, 700, 912: "Courts, unlike administrative organs historic antecedents bring them well-defined powers. require authorization familiar obligations. N. O. Brotherhood Clerks, 281 548, 50 427, 74 1034; Virginian System Federation, 300 515, 57 592, 81 789; Deckert Independence Shares 311 282, 229, 85 189. declared evaporate want formulated sanction. When 'left determination,' function appropriate traditional modes compel performance Board Comm'rs 308 343, 351, 285, 288, 84 313. civil liability effectuate denied specifically authorized. Pac. 874; Steele Louisville 323 192, 65 226, 89 173; Tunstall Locomotive Firemen Enginemen, 210, 235, 187; cf. De Lima Bidwell, 182 743, 1041." undertaken effect opinions decided Ash. noted Regents Bakke, 438 265, 408, 98 2733, 2808, 750, "it hardly speak Court" authoritative explanation meaning judgments.

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