Document: 466 U.S. 765 104 S.Ct. 2105 80 L.Ed.2d 753 ESCONDIDO MUTUAL WATER COMPANY, et al., Petitionersv.LA JOLLA BAND OF MISSION INDIANS al. No. 82-2056. Supreme Court of the United States Argued March 26, 1984. Decided May 15, Rehearing Denied June 25, Syllabus Section 4(e) Federal Power Act (FPA) authorizes Energy Regulatory Commission (Commission) to issue licenses for construction, operation, and maintenance hydroelectric project works located on public lands reservations States, including held in trust Indians. The section contains a proviso that such shall be issued "within any reservation" only after finding by license will not interfere or inconsistent with purpose which reservation was created acquired, "shall subject contain conditions as Secretary department under whose supervision falls deem necessary adequate protection utilization reservations." 8 Mission Indian Relief 1891 (MIRA), pursuant six were established respondent Bands (respondents), provides citizen, firm, corporation may contract right construct flume, ditch, canal, pipe, other appliances conveyance water over, across, through their reservations, valid unless approved Interior (Secretary) he see fit impose. When original covering facilities near canal crosses La Jolla, Rincon, San Pasqual Bands' about expire, petitioner Escondido Mutual Water Co. (Mutual) city filed an application new license. Thereafter requested recommend federal takeover project, respondents applied nonpower After hearings competing applications, Administrative Law Judge concluded Commission's licensing jurisdiction. reversed granted Mutual, Escondido, Vista Irrigation District, had been using question. Appeals turn Commission, holding, contrary (1) § FPA required accept without modification recommended Secretary; (2) satisfy its obligations respect all just three passes; (3) MIRA licensees obtain right-of-way permits from before reservations. Held: 1. plain command requires deems Nothing legislative history statutory scheme is this command. Pp. 772-779. 2. But must make "no inconsistency interference" findings include Secretary's projects "within" geographical boundaries reservation. It clear Congress entitled 4(e)'s some licensed actually within Thus, erred holding obligation no located. 780-784. 3. does require respondents' consent they operate lands. While gave authority determine whether grant rights-of-way projects, did power override Congress' subsequent decision enacting lands, tribal land, could, upon compliance FPA, utilized facilitate projects. 784-787. 692 F.2d 1223 (9th Cir.1982) 701 826 Cir.1983), affirmed part, remanded. Paul D. Engstrand, Diego, Cal., petitioners. Jerome M. Feit, Washington, D.C., Com'n, urging reversal. Elliott Schulder, Interior. Robert S. Pelcyger, Boulder, Colo., Bands. Justice WHITE delivered opinion Court. 1 (FPA), 41 Stat. 1066, amended, 16 U.S.C. 797(e), (Commission)1 operation are contained provisions FPA. present case involves dispute among (Secretary), several Indians over role each play determining what applicant meet order utilize Reservations. 2 * Luis Rey River originates Palomar Mountains northern Diego County, Cal. In natural condition, it flows Pala Pauma, Yuima,2 three-quarters river's watershed. These permanently ch. 65, 26 712. 3 Since 1895, predecessor interest have diverted out municipal uses around cities Escondido. point diversion Jolla Reservation, upstream conveys Lake Wohlford, artificial storage facility, means parts Reservations.3 4 1915, constructed Bear Valley powerhouse downstream Wohlford. Neither Wohlford nor plant 1916, completed construction Rincon powerhouse, Reservation. Both these powerhouses generate electricity utilizing waters river canal. 5 Following enactment 1920, 285, 1063 (codified Part I 791a seq.), two facilities. 1924, 50-year dam powerhouses. 6 began when 1924 expire. 1971, 1972, expired.4 Later year, Bands, acting 15(b) FPA,5 Interior, take effect expired. Pauma eventually joined application. 7 lengthy applications,6 jurisdiction because aspects insignificant comparison project's primary purpose—conveying domestic irrigation consumption. FERC ¶ 63,008 (1979).7 however, 30-year time convey pumped Henshaw, lake nine miles above Mutual's dam. 61,189 (1979). decision, made rulings focal case. First, ruled deemed reservations.8 Accordingly, despite insistence, refused prohibit interfering use specified quantity water, id., at 61,415, n. 146, particular groundwater basin9 transported written five 61,145, 147. Other proposed similarly rejected modified. See 147-155. Second, although imposed "preclude possible interference . created,"10 61,424-61,425, impose similar benefit Pala, Yuima Reservations, ruling applies physically occupied Finally, arguments variety statutes, MIRA, "consent" could issue. 9 On appeal, Ninth Circuit rulings. v. FERC, 1223, (1983). court Secretary, judicial review propriety conditions, affected passes, reservations.11 petition certiorari, we granted, 464 913, 272, 78 253 (1983), challenging Appeals' rulings.12 We address turn. II 10 797(e). mandatory nature language chosen appears even if disagrees them. Nonetheless, petitioners13 argue examination shows meant said. disagree. 11 first note difficult task facing should generally assumed expresses purposes ordinary meaning words uses, often stated " '[a]bsent clearly expressed intention contrary, [statutory] ordinarily regarded conclusive.' North Dakota 460 300, 312, 103 1095, 1102-1103, 75 77 (1983) (quoting Consumer Product Safety Comm'n GTE Sylvania, Inc., 447 102, 108, 100 2051, 2056, 64 766 (1980)). apparent desire "shall" included therefore given there expressions intent contrary. Petitioners initially focus legislation became relevant portion passed eliminate inefficiency confusion caused "piecemeal, restrictive, negative approach" prevailing prior law. First Iowa Hydro-Electric Cooperative FPC, 328 152, 180, 66 906, 919, 90 L.Ed. 1143 (1946). H.R.Rep. 61, 66th Cong., 1st Sess., 4-5 (1919). Prior passage Act, Secretaries War, Agriculture his respective centralized creating consisting Secretaries,14 vested exclusive licenses. contend intended empower objection would frustrate centralizing procedures. 12 doubt interested into one agency, but intend relieve responsibility ensuring adequately protected. memorandum explaining administration bill, enacted substantive change,15 O.C. Merrill, chief draftsmen later explained creation "will special responsibilities Departments National Forests, navigable rivers." Memorandum Legislation Chief Engineer, Forest Service, dated October 31, 1917, App. 371. With regard 4(e), wrote: 13 "4. Licenses sites Forests necessary. Similarly, parks control War. Plans structures involving streams approval 14 "This provision preserving administrative matters jurisdiction." Id., 373-374. 15 during Houston Grand Canyon need exempted provisions, stating: "I can reason why matter might handled safely measure, developments Government proceed except heads departments—the commission—with safeguards head immediately charged wise." Power: Hearings House Committee Power, 65th 2d 677 (1918) (emphasis added). 17 Members understood possessed members. Senator Walsh Montana, supporter explained: 18 "[W]hen reservation, goes commission, consists Agriculture. They agree majority them so agree. Furthermore, agree; say, issued." 59 Cong.Rec. 1564 (1920) 19 thus enough while licenses, wanted individual continue major protect resources jurisdictions. concerning plainly supports conclusion said reservations."16 20 next literal reading conditioning cannot squared portions scheme. particular, same grants qualify also "the acquired." Requiring objection, petitioners maintain, granting result issuance allow "veto" reached Commission. 'paralyze hand sought promote other,' American Paper Institute, Inc. Electric Service Corp., 461 402, 421, 1921, 1932, 76 22 Clark Uebersee Finanz-Korporation, A.G., 332 480, 489, 68 174, 178, 92 88 (1947)), contend. 21 This argument unpersuasive assumes very question decided. All parties limits types license:17 has veto hence insists reasonably related people.18 real empowered decide exceed permissible limits. Petitioners' decision. However, conclusively indicate not; then up courts appeals valid.19 traditional principles action. If though them, argue, position deference conclusions those apparently exactly intended. concludes adopt own, obligated sustain goal, otherwise consistent supported substantial evidence.20 fact reality Secretary's, Commission's, judgment giving surprising since statute directs reservation.21 There nothing second-guess matter.22 23 short, failed comply case, correctly respect.23 III 24 reservation's Yuima, Reservations erroneous. 25 Again, informative largely dispositive. Commission: "To constructing dams part Provided, That ." 27 inconsistency" "such" about, protect, than imposes somehow by, of, works. 28 Appeals, purported discover ambiguity term "within." Positing "reservations" includes rights, reasoned right, one. effort circumvent where none exists unpersuasive. 29 "interests owned States"24 many rights considered interests R. Clark, Waters Rights 53.1 p. 345 (1967). follow spoken rights.25 deals "upon" As itself indicated, tend "paint picture mind reader," F.2d, 1236, find quite untenable. apply specific project. 30 bolster noting leave gap afforded "a potentially useful barren waste ever crossing sense—e.g., diverting flow percolate it." Ibid. unlikely event, protected deprived legal right. expressly forbidden adjudicate 821, submit satisfactory evidence obtained sufficient authorized license, 802(b). applicant, let condition determines constitutes overriding beneficial use. 803(a). California 917, 923-924 (CA9), cert. denied, 382 941, 86 394, 351 (1965). continued accordingly requiring every 31 Respondents additionally "affected" rely 23(b), nonnavigable Commerce Clause powers if, things,26 affected." 817. sense conclude exercise afford protections outlined 4(e). compels, and, argument, illogical 32 Under general situations—when (navigable nonnavigable) determination latter situation—when reservation." person former situation affects indicates circumstances disruptive effects great regulate powers. not, seem imply, meaningless gesture do apply. 33 Even requirements issues still shape best adapted, things, improvement water-power development "other recreational purposes." complying duty, consider how affect licensee structure avoid undue injury Udall 387 428, 450, 87 1712, 1724, 869 noted supra, 782, that, surrender action interest. added provided 34 crafted sufficiently us hold IV 35 final presented part: 36 "Subsequent patent,27 patent ., citizen tribe, band, impose." 714. 37 provision, terms private enter precludes occupy land histories considered, interpretation stand. 38 appeared passage. Several companies seeking across ditches flumes both settlers 3282, 50th 3-4 (1888). Two Attorneys General, authorize alienation Lemhi Op.Atty.Gen. 563 (1887); Dam Winnibigoshish, 552 (1880). light opinions, prepared amendment authorizing sale rights-of-way, Interior's approval. designed third parties; act limit sovereign acquire 39 essence, increased almost landowners.28 negotiate party wishing agreement parties, something previously unable do. And, until invoked, like landowners, complete discretion indication once exercised more stop landowner situation—both permit payment compensation.29 Therefore, decided answer inquiry articulated somewhat different context years ago. 40 "The comprehensive plan development, transmission electric bodies commerce powers, property neither overlooks excludes Instead, shown, specifically defines treats Indians—'tribal embraced reservations.' §§ 3(2) 10(e). gives plan, persons, Indians." FPC Tuscarora Nation, 362 99, 118, 543, 554, 584 (1960). equally give sort prevent exercising receiving Congress. Indeed, squarely proposal. During course debate legislation, Senate amended bill version "in ceded treaty, council tribe." 1534 (1920). stricken Conference, conferees stating "saw waterpower singled H.R.Conf.Rep. 910, 42 extensive duty safeguard veto, believe nevertheless concerned tribe tribes. therefore, seek permission exercises lands.30 V 43 determined error, concluding fulfill court's remanded further proceedings opinion. 44 ordered. "Commission" refers 1, 1977, thereafter. 7172(a), 7295(b). tracts Band. involved dispute, represented. Various agreements, dating back 1894, traverses, purportedly exchange supplying certain amounts validity agreements separate, pending litigation instituted 1969. Band Co., Nos. 69-217S, 72-276-S, 72-271-S (SD Cal.). addition, sued Claims 959, 60 1049, 70 seq. (1976 ed.), failure rights. Long 80-A1 (Cl.Ct.). proceeding pending. 14(b), 807(b), following expiration enacts effect, operated net investment severance damages. 15(b), 808(b), "nonpower" facility finds longer adapted production. payments 14(b). 4, supra. Earlier, complaints alleging violated permitting District divert sought, increase annual charges paid conjunction awarded readjusted resolution us. generating capacity 520 kilowatts. capable producing 240 "[t]he horsepower generated entire equivalent produced half dozen modern automobiles." 65,093. "to weight judgments proposals Agriculture" 10(a) retained ultimate extent licenses." 61,414. Groundwater beneath surface earth. suggested Warner basin underlying Henshaw headwaters augment lake. For example, quantities circumstances. 61,424-61,432. Anderson dissented entered rehearing, 827-831, Reorganization 476, used He reasonable reasonableness ruling. brief oral parallel Vista, our 1930, reorganized five-person body, independent Secretaries. 23, 572, 46 797. Between 1914 four bills dealing introduced Congress, successfully. 1918, Agriculture, direction President Wilson, introduced. H.R.8716, Sess. (1918). basically now framed. Because press World War concerns, 1920. J. Kerwin, Water-Power 217-263 (1926). changed, 14, James Lawson, Acting Counsel existence, consistency Investigation Regulation S.Res. S.3619 Interstate Commerce, 71st 358 (1930). snippet postenactment help petitioners' cause all. 797(e) separate Lawson's statement former. contemporaneous staff (of Lawson head), 'to prescribe inserted reservation.' Brief 33, quoting Sept. 20, 1929, 23. well unduly undermine judgment. infra, 777, 19, make. Similarly misplaced reliance passed, request withheld signature agreed pass session removing national monuments scope Act. Contrary assertion, show knew him "conditioning" Rather, objected inclusion believed case-by-case basis occur areas. 1299, 3d (1921). concedes "reasonable record." 37. Tr. Oral Arg. 20. By terms, "necessary At ultimately sustained "are protected, utilized." 22. 313(b) orders, reviewed circuit wherein principal place business, Columbia." 825l(b). Of course, support objects free express disagreement connection review. refuse conditioned, either appeals, law parties. event seeks review, go notwithstanding own decisions. possibility dissuade interpreting accordance meaning. differences between resolved nonjudicial forum. adopted uses." Our discussion alleged conflict equal force contention. belongs issues. Any assertion outside invalid (something decide), instance reserved participation inclined views. longstanding deference, citing early E.g., Pigeon Lumber F.P.C. 206, 209 (1935); Southern Edison 364, 386 (1949). concede, never 1975. Pacific Gas & 53 523, 526 (1975). then, proceeding. far More importantly, agency's interpretation, established, conflicts statute. assert relicensing procedure governed 15(a). view dealt covered being relicensed "so materially [p]roject little number remains same." 61,189, 61,411 object rehearing challenge now. proceedings. provides: '[R]eservations' forests, military withdrawn, reserved, appropriation disposal laws. 796(2). another "project" "all water-rights occupancy appropriate maintenance" "unit development." 796(11). Had thought always land," felt refer interstate foreign [not] Trust patents September 13, 1892, July 10, 1910, secure contracts. involve fix charge thereof." 803(e). negotiation eminent domain. 814. suggest absence consent. 37-39. highly questionable inherent agency carrying status. Oliphant Suquamish Tribe, 435 191, 208-209, 98 1011, 1020-1021, 55 (1978). sovereignty defeasance Wheeler, 313, 323, 1079, 1086, 303 (1978), 787, tribes involved.

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