Document: 484 U.S. 495 108 S.Ct. 805 98 L.Ed.2d 898 ETSI PIPELINE PROJECT, Petitioner,v.MISSOURI et al. Donald P. HODEL, Secretary of the Interior, al., Petitioners, v. MISSOURI Nos. 86-939, 86-941. Argued Nov. 3, 1987. Decided Feb. 23, 1988. Syllabus In 1982, petitioner Pipeline Project entered into a 40-year contract with Interior to withdraw up certain amount water per year from Lake Oahe, reservoir located on Missouri River in South Dakota, for use an interstate coal slurry pipeline. Respondents Missouri, Iowa, and Nebraska filed suit Federal District Court enjoin performance contract, alleging that, under Flood Control Act 1944 (Act), lacked authority execute provide industrial uses without obtaining approval Army. Pursuant Act, Oahe Reservoir was built by Corps Engineers, now part Department Army (successor War), which has always maintained operated reservoir. The directed both flood control navigation matters that concerned War Department, reclamation irrigation problems thus also implicating tensions between Upper Basin States' interests Lower States (including respondents) control. ruled respondents, Appeals affirmed. Held: exceeded Congress delegated him Act. Pp. 505-517. (a) light Act's provisions specifying powers particularly former's as disposal at any Department's control—as well general background, does not possess Secretary's approval. Under language, if wishes remove purpose, must be secured. As long ample remains purposes embodied absent allocation pursuant terms—the record supporting Court's findings there no such or reservoir's irrigation—the exclusive use. 505-509. (b) There is merit petitioners' contention approving comprehensive plans projects Departments represent congressional functional division those allows unilaterally reservoirs other related uses. Such wide mark view specific jurisdictional discussed above reservoirs, grounded misuse legislative history. indication over individual divided among various Government. Nor argument supported provision stating power developments undertaken shall governed federal laws, authorize reallocate his applies only itself may undertake But found, project engineered neither development nor Secretary. Moreover, although consult before withdrawing Reservoir, can proceed latter object. 509-515. (c) It unnecessary consider deference interpretation appropriate here, their arguments about history relations even would entitled these circumstances, Executive Branch permitted administer manner inconsistent administrative structure enacted law. speaks directly dispute, intent expressed indicates clearly enter Department. 515-517. 787 F.2d 270, WHITE, J., delivered opinion Court, all Members joined, except KENNEDY, who took consideration decision case. Jeffrey Minear, Washington, D.C., petitioners. Elizabeth M. Osenbaugh, Des Moines, respondents. Justice WHITE Court. 1 We decide whether circumstances this case 1944. 2 * dispute centers enormous capacity more than 23 million acre-feet water. 20,000 40 years.1 Dakota already had granted state permit pipeline transport Wyoming southeastern United States. Soon after signed, brought approved violated several statutes. particular, plaintiffs contended lacks statutory 58 Stat. 887, Army.2 3 plaintiffs. Andrews, 586 F.Supp. 1268 (Neb.1984). concluded Dam Secretary, clear authority. Instead, dam (formerly War, but renamed July 26, 1947, 61 495), No block been specifically set aside constructed works Oahe. On facts, held empower furnish 4 affirmed, one judge dissenting. 270 (CA8 1986). upheld conclusion primarily because controls its operation. Accordingly, cannot own Neither language thought support claim ceded broad reservoir, it claims designated available future purposes. Indeed, were found convincing enough point refused defer contrary interpretation. 5 denied petition rehearing en banc equally vote judges. certiorari, 480 905, 107 1346, 94 517 (1987), we affirm. II A. 6 watershed covers vast area midwestern topography area, however, reveals two distinct regions experience very different problems. upper Basin, includes large sections Montana, Wyoming, North mostly arid semiarid; there, tributaries are important they major resource developing agricultural potential area. lower territory Nebraska, Kansas, humid, rivers used chiefly navigation, though critical problem region flooding. See generally Ridgeway, Basin's Pick-Sloan Plan 47-55 (1955). early 1940's, focused attention prompted especially severe floods devastated 1943 7 At behest Congress, Engineers prepared report described plan develop entire known Pick author, colonel Corps. proposed construction 12 multiple-purpose works, including main stem River, approximate initial cost $480 million, estimated carry out proposal might close $1 billion. stressed primary objective, noted list "would most efficient utilization waters purposes, irrigation, power, domestic sanitary wildlife, recreation," intangible benefits. H.R.Doc. No. 475, 78th Cong., 2d Sess., 29 (1944) (H.R.Doc.). gross storage 8 almost same time, Bureau Reclamation independently completed begun earlier, Sloan Montana engineer much analysis. total 90 many them smaller tributary streams, included projected $1.2 billion, figure repayable. proposal, emphasized irrigating land, Basin. hold 19,600,000 contained section comparing suggesting modifications "which appear necessary satisfy water-use requirements throughout Basin." S.Doc. 191, 120 (S.Doc.). This "the aggregate capacities, remain determined greater detail," "Army needs composed." Id., 122-123. 9 Plans differed another objectives, respects, expenditures number projects. engineering features dissimilar. called numbers divergent sizes, amounts storage. Even where agreed need particular location, did Fort Randall, envisioned differently; above, example, three times Plan, additional $20 million. 10 Obviously could once. order arrive single Committee composed representatives each appointed review plans. essentially combined determinations made needed irrigation. After meeting days, produced recommended provided six main-stem River. created high have 19 stated allow 750,000 acres land James useful control, hydroelectric purposes." 247, (1944). possible system canals, canal approximately 125 miles long. S.Doc., 115-116. With last, less months later. B 11 accomplished tasks. First, authorized "general forth [the Plans] revised coordinated Senate Document 247." § 9(a), 891. stages hereby prosecuted speedily consistent budgetary requirements." Ibid. Second, appropriated funds pay work done Two separate allotments authorized: $200 "for partial accomplishment said expanded Engineers," 9(d), Interior." 9(e). Third, adopted framework within go forward. task involved areas controversy. evoked federalism concerns anxious keep lands valuable resources. response, declared policy "recogniz[ing] rights determining watersheds borders likewise control." 1, 33 U.S.C. 701-1 (1952 ed.). implicated States, whose markedly different. addressed providing when undertook required share information affected depending west 97th 98th meridians. §§ 1(a) (b). All involve "works irrigation" subject similar requirement, regard geographical location. 1(c). 13 Finally, relevant case, deal jurisdictions agencies Among interested Agriculture Power Commission, whom joined submitting comments touched H.R.Doc., 1-3, 10-13; 2, 5, 11-15, 889, 890, 903-907. crucial allotted key part, five central follows: 14 (1) "The Chief supervision construct, maintain, operate public park recreational facilities construction, maintenance, operation facilities. grant leases lands, thereon, periods upon terms he deem reasonable." 4, 16 460d (1946 Ed.). 15 (2) "Electric energy generated transmit dispose energy." 825s (3) "That make contracts municipalities, private concerns, individuals, prices reasonable, surplus Department." 6, 708 17 (4) "Hereafter, duty prescribe regulations allocated wholly basis accordance regulations." 7. 709 18 (5) whenever determines, recommendation direction utilized operate, laws,] . connection therewith Dams hereafter conformity section." 8. 43 390 III provisions, background beyond question claimed case: Nobody disputed by, true matter fact. F.Supp., 1273-1274. says explicitly "under of" 4-6, Only exercise whatsoever instances states subordinate "control" reservoirs. "transmit electric "in Army] projects." 5. recommend "be purposes," "construct, maintain comes play "determines" "any Secretary's] direction" plain every respect, unavoidable 20 precise Army, devoted Nowhere authority, fact show independent instance. Section gives "to individuals reservoir" "Provided, That adversely affect then existing lawful water." enough: "surplus water" affecting 8, light, factual take special significance. evidence space assigned irrigation," "there allocations Oahe." 1277. ever will near future." 1274. so.3 21 details procedures utilizing followed least If determines "is "specific authorization" works. Water "may recalled substantial approach; massive comprising canals. By means, through bring laws sees fit, "it impair efficiency 485h(c) ed.).4 begin later cancel did. stated, ibid., unaware future. therefore otherwise. likely contains water, Interior.5 22 petitioners seek avert pointing 9(a) approves plans" final Document, authorizes "prosecuted contend statement represents aspects suggested plans; suggest To with, surprising established jurisdiction last indirectly further refinements how yet offer slightest doing so. event, reason think incorporates indications proper Interior. contrary, location intended anything authorization working listed Document. parts merely harmonize appropriations plans," 9(d) (e), encompasses ministerial action specified 24 room believing implicitly modified plainly preceding doubting instead item puts supposition entirely rest. original House version identical suggestions plans, see infra, ----, obliged regulations" stored Hearings H.R. 4485 Subcommittee Commerce, Ickes testified bill approach relate "disregards allocating costs serving addition irrigation." 458. He replacing currently eventually Congress. 313. provides maintain" site One draw inferences justified piece decisive refutes notion effect changes Plan. 25 adopt aspect Plans, flat contradiction Contrary nothing departments willing coordinate activities serve responsibilities" agencies, "[i]t essential, built, operated, Engineers." 3-4. retain projects, accepted "utilization reserved "should [Interior] 4.6 accession dividing contemplated basically recognizing agency "with interest dominant function feature should construct feature, giving full recognition, design, operation, minor interests." 11. recognized "dominant function" come Engineers. 4.7 write law, therefore, extended unilateral 26 9(c) lending argument. Laws." already, fit. n. supra. terms, developments" Act: is, "transmission lines facilities" acquire" transmitting disposing "irrigation works" laws. stipulates typically apply 371 seq. ed.), readily apparent, "power development" "reclamation 1273-1278.8 facts extend means Act.9 27 Not do structure, fail substance position difficult fathom. divides novel fashion considerably what appears face possibility, disavow, ultimate navigational obviously founder, give rise endless squabbles, unless uses, "no Oahe," "one wonders identified." actually urged straightforward foregoing: argue requires objects, require obtain Tr. Oral Arg. 14-15. Army's understood closely analogous executive veto legislation: be, say least, unusual jurisdiction, gains text unwilling read implicit modification otherwise sensible intelligible provisions. C 28 finally apparently acquiesced litigation. describe tradition cooperation period 1975 1978 joint agreement allowed "both behalf agent [to] marketing uses" reservoirs.10 disagreed historical account subject, chief attorneys statute disagree, enjoys deference." 1280. issue briefly, gist holding simply Interior's constitute reasonable reading F.2d, 287.11 recent limits agency's administers: "If clear, end matter; court, agency, unambiguously Congress." Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 842-843, 104 2778, 2781, 81 694 (1984). matter." 842, S.Ct., 2781. 30 31 so ordered. 32 KENNEDY Although "after consultation Army," App. 226, party expressly approve sign signed regional director Reclamation. 234. procedural issues, ancillary issues validity contract. Those presented here relative run generators produce words, existed themselves—apparently assumed being used" Memorandum Marketing Coal Gasification, AR900407 (Dec. 16, 1974), 133. More recently, abandoned assumption "this constitutes unnecessarily narrow." Susan Crawford, General Counsel Assistant Proposed Contracts Municipal Industrial Withdrawals Main Stem Reservoirs (March 13, 1986), Brief Respondent 14a. Its current "water fulfill purpose reservoirs" possesses namely, Crawford 16a. Circular EC 1105-2-181, pp. 3-4 (Oct. 30, 1987). term never include themselves, caveat "adversely water"—would irrelevant 521 operations law supply .: Provided ., furnished aforesaid delivery detrimental service project." determination sale accorded deference. See, e.g., Environmental Fund Morton, 420 1037 (Mont.1976), aff'd rev'd Andrus, 596 848 (CA9 1979). Nothing today's decision, emphasized, prevents put beneficial Of far none foreseeable 1274, considerable leeway designate some affect[ing]" "existing 6. Certainly whole use, complying endorsed approach, "Corps considerations, [Interior's] functions restoration surface ground levels, dominant," "advise with" extent overlapped controlled Doc., self-styled "joint report" effected reconciliation shed circumscribed, observed applying principles responsibility capacities navigation," passage seems explanation reached Departments. developmen[t]" encompass either suggestion tenable. fact; developmen[t] And refer rather wrong reasons. These developments, identifies undertaking: ("transmission facilities") identified ("irrigation works") linked 1939, 53 1193, "impair (emphasis added). Thus relates "development" "project." integral nature relation shown 2(i ), 485a(i ) defines "development unit" "a which, orderly development, unit Secretary." project" synonymously 485f(b). Petitioners Congress' enactment 212 Reform 390ll. provision, change substantive purport modify withdrawn 212(a) eliminate shadow applicability concerning language," S.Rep. 97-373, p. (1982), U.S.Code Cong. & Admin.News 1982 2570, 2580, 212(b) ensures "authority user entities deliveries collect charges deliveries, continues effect." exercises contracts, prescribed point, indicate way asserted "Memorandum Understanding" "shall operational managerial reservoirs." Understanding Between AR900072 (Feb. 24, 1975), 136. Over four years effect, executed it, expire 1978. appears, accounts, instance exercising Both mentioned reasons why since like Appeals, "reasonable," 1280, comments, pure dictum, address here.

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