Legal Document

426 U.S. 529 96 Supreme Court Reporter 2285 49 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 34 Thomas S. KLEPPE, Secretary of the Interior, Appellant,v.State NEW MEXICO et al. Number 74-1488. Argued March 23, 1976. Decided June 17, Rehearing Denied Oct. 4, See 429 873, 97 189. Syllabus The Wild Free-roaming Horses and Burros Act (Act) was enacted to protect "all unbranded unclaimed horses burros on public lands States" from "capture, branding, harassment, or death," accomplish which "they are be considered in area where presently found, as an integral part natural system lands." provides that all such animals administered by Interior through Bureau Land Management (BLM) Agriculture Forest Service committed jurisdiction respective Secretaries, who "directed manage (the animals) components . a manner is designed achieve maintain thriving ecological balance lands," if stray those onto privately owned land, private landowners may inform federal officials, shall arrange have removed. Appellees, State New Mexico, its Livestock Board director, purchaser three seized (pursuant Mexico Estray Law) sold at auction, whose return had been demanded BLM, brought this suit for injunctive relief declaratory judgment unconstitutional. A three-judge District held unconstitutional enjoined enforcement. Held : As applied case, constitutional exercise congressional power under Property Clause Constitution, "Congress Power dispose make needful Rules Regulations respecting Territory other belonging States." Article IV, § 3, cl. 2. Pp. 535-547. (a) Clause, broad terms, empowers Congress determine what "needful" rules "respecting" lands, there no merit appellees' narrow reading provision grants only of, incidental regarding use property. must given expansive reading, "(t)he over thus entrusted without limitations," versus San Francisco, 310 16, 29, 60 749, 756, 84 L.Ed. 1050, Congress' complete authority includes regulate wildlife living there. 536-541. (b) In arguing encroaches upon state sovereignty can obtain exclusive legislative consent (absent it not act contrary law), appellees confused derivative pursuant I, 8, with powers Clause. Federal legislation necessarily, Supremacy overrides conflicting laws. And here, though does establish Law insofar statute attempts federally protected animals. 541-546. (c) question Act's permissible reach wild free-roaming strayed land need be, not, decided context case. 546-547. D.C., 406 F.Supp. 1237, reversed remanded. Atlantic Raymond Randolph, Jr., Washington, D. C., appellant. George T. Harris, Albuquerque, N. M., appellees. Mr. Justice MARSHALL delivered opinion Court. 1 At issue case whether exceeded Constitution enacting Act. 2 * Act, 85 Statutes-at-Large 649, 16 Code KF62 §§ 1331-1340 (1970 ed., Supp. IV), 1971 States," 2(b) 1332(b) death." 1, 1331 IV). 3(a), 1333(a) If "stray owners nearest marshal agent Secretary, removed."1 1334 3 Section 6, 1336 authorizes Secretaries promulgate regulations, see 36 231.11 (1975) (Agriculture); 43 pt. 4710 (Interior), enter into cooperative agreements local governmental agencies furtherance purposes. On August 7, 1973, executed agreement Board, agency charged enforcing Law, N.M.Stat.Ann. 47-14-1 Et seq. (1966).2 acknowledged within established procedure evaluating claims parties ownership 4 terminated months later. Asserting Government lacked control unless were moving interstate commerce damaging neither these bases regulation available notified intent 5 "to regulatory, impoundment sale derives estray horses, mules asses found running large This right go take possession said burros, should so desire." App. 67, 72. 6 differences between came head February 1974. 1974, rancher, Kelley Stephenson, informed BLM several seen near Taylor Well, Stephenson watered his cattle. Well property, access some 8,000 surrounding acres grazing permit issued Grazing 48 1270, amended, 315b. After made clear would remove after he personally inspected area, complained interfering livestock operation molesting cattle eating their feed. 7 Thereupon rounded up removed 19 Law. Each burro States3 and, director conceded, each fit definition othe 43. 18, usual practice, auction. sale, asserted recover them lands. 8 appellees4 filed complaint seeking injunction against court convened 28 2282. 9 Following evidentiary hearing, permanently (Secretary) provisions.5 "conflicts traditional doctrines concerning animals," Morton, 1238 (1975), excess That enables "Protection damage kind." F.Supp., 1239 (emphasis original). Accordingly, because aimed protecting they live on." Ibid.6 noted probable jurisdiction, 423 818, 31, 46 we now reverse. II 10 U.S.Const., passing deemed regulated "an lands" States, management necessary "for achievement H.R.Conf.Rep.No.92-681, Page (1971), U.S.Code Cong. & Admin.News 1971, 2159. According Congress, animals, preserved native habitats, "contribute diversity life forms Nation enrich lives American people." Hearing Protection Public Lands before Subcommittee Senate Committee Insular Affairs, 92d Cong., 1st Sess., 69, 122, 128, 138, 169, 183 (1971). Indeed, concluded, "are symbols historic pioneer spirit West." Despite importance, committee found: 11 "(These cruelly captured slain carcasses used production pet food fertilizer. They target practice harassed 'sport' profit. spite outrage, bloody traffic continues unabated, firm belief senseless slaughter end." S.Rep.No.92-242, Pages 1-2 2149. 12 For reasons, determined preserve States. determination sustained answering question, remain mindful that, while courts eventually pass them, determinations primarily Congress. 29-30, 1050 (1940); Light 220 523, 537, 31 485, 488, 55 570 (1911); Gratiot, 14 Pet. 526, 537-538, 573 (1840). 13 Appellees argue cannot supported contend essentially two kinds power: (1) property; (2) appellees, first enough support second implicated since themselves initial matter, far passed States7 assert property interest superior State.8 But consider upheld either grounds, reject ground argument number cases analysis, provide position. Like Court, cite Hunt 278 96, 38, 73 200 (1928), proposition gives limited order damage. Hunt, Government's kill deer foliage national forests, holds sufficient basis regulation; contains suggestion one. 15 Next, refer Kansas Colorado, 206 46, 89, 27 655, 664, 51 956 (1907). referenced passage states "clearly grant any states, must, concerned, limits." more than articulate obvious: It indication kind "authority" Camfield 167 518, 17 864, 42 260 (1897), even less help rely following language "While do undertake say congress has unlimited legislate nuisances territory, think admission territory deprives legislating protection thereby involve ordinarily known 'police power,' So long directed solely own protection." Id., 525-526, 867 added). 18 mistakenly read limit activity lands; fact, quoted refers scope conduct Private affects fences built adjoining when limitation sole message granted beyond territorial limits. Lastly, point dicta effect agreed rights "only ordinary proprietor ." Fort Leavenworth R. company Lowe, 114 525, 527, 995, 996, 29 264 (1885). also Paul 371 245, 264, 83 426, 437, 292 (1963). see, fail account raft broader construction.9 20 brief, dicta, presented position failure hardly surprising, U.S., S.Ct., 756; 488; Pet., 537-538. furthest reaches yet definitively resolved, repeatedly observed limitations." supra, 756. Ivanhoe Irr. Dist. McCracken, 357 275, 294-295, 78 1174, 1185, 1313 (1958); Alabama Texas, 347 272, 273, 74 481, 98 689 (1954); FPC Idaho Co., 344 21, 85, 87, (1952); California, 332 19, 27, 67 1658, 1662, 91 1889 (1947); Gibson Chouteau, Wall 92, 99, 534 (1872); 537. 21 reading. instance, governing Territories Hooven Allison Evatt, 324 2, 673-674, 65 870, 880-81, 89 1252 (1945); Balzac Porto Rico, 258 298, 305, 343, 345, 66 627 (1922); Dorr 195 149, 24 808, 813, 128 (1904); 537; Sere Pitot, Cranch 332, 336-337, 240 (1810). Vermilya-Brown Connell, 335 377, 381, 69 140, 142, 93 76 (1948). general government doubtless analogous police extent measured exigencies particular case." 867. We noted, example, occupancy use, trespass injury, prescribe conditions others Utah 243 389, 405, 37 387, 61 791 (1917). approved "(i)f necessary, intending settlers (on lands)." short, exercises both legislature domain. 481; Sinclair 279 263, 297, 268, 692 (1929); Midwest Oil 236 459, 474, 35 309, 313, 59 673 (1915). Although authorize policy State," it." 30, 757. (footnote omitted). our view, "complete power" necessarily there.10 III 22 approve valid then sanctioned impermissible intrusion sovereignty, authority, wrongly infringed State's trustee appears could consent, absence lacks law. merit. 23 Appellees' claim confuses powers, involved i acquire consensual acquisition nonconsensual followed subsequent cession land. 437; 541-542, 1003-1004.11 acquired range residual power, E. g., Pacific Coast Dairy Dept. Cal., 318 285, 63 628, 87 761 (1943), concurrent, partial, allow certain authority. 265, 438; Collins Yosemite Park 304 528-530, 58 1009, 1013-14, 82 1502 (1938); James Dravo Contracting 302 134, 147-149, 208, 215-16, 155 (1937). partial cession, presence nothing Absent undoubtedly retains but equally surely enact tthe Mason Tax commission 186, 197, 233, 238, 187 (1937); 403-405, 389; Ohio Thomas, 173 276, 283, 453, 455, 699 (1899). acts, laws VI, 100, 38; McKelvey 353, 359, 132, 301 (1922). 867, response somewhat different claim: "A rule place domain completely mercy legislation." 25 Thus, assertion "(a)bsent accrue landowner regard borders state," Brief 24, beside point; fear Secretary's "the totally exempts states," unfounded. free enforce criminal civil conflict law clear: recede. 134. 26 Again, none relied contrary. Surplus Trading Cook, 281 647, 650, 50 456, 1091 (1930), merely outlined above "without more," withdraw State. Likewise, Wilson 327 487-488, 663, 669-70, 90 793 (1946), did forest reserve Arkansas retained No raised reserves Colorado Toll, 268 228, 230-231, 45 505, 506, 927 (1925), purported assume highways Rocky Mountain National Park, Clause.12 upholding sanction sovereignty. Mexico; consequence contention violates stands footing. Unquestionably jurisdictions. Toomer Witsell, 334 385, 402, 68 1156, 1165, 92 1460 (1948); Lacoste Department Conservation, 263 545, 549, 44 187, 437 (1924); Geer Connecticut, 161 519, 528, 600, 604, 40 (1896). But, Connecticut cautions, exist "in (their) incompatible with, restrained by, conveyed constitution." Ibid. "No doubt true inhabitants killing (wildlife), follow paramount powers." Missouri Holland, 252 416, 434, 382, 384, 64 641 (1920). Privileges Immunities precludes imposing prohibitory licensing fees nonresidents shrimping waters, supra ; Treaty II, permits treaty migratory birds despite objections, thin overpopulated herds (19). hold today notwithstanding. IV entered burros. These actions provisions find decide sustain conceivable applications. 30 concerned extension will every horse time sets foot While regulations otherwise control, appropriate proceeding extent, any, attempted often declined important questions constitutionality advance immediate adverse concrete case", Longshoremen Boyd, 222, 224, 447, 448, 650 (1954), adequate full-bodied record." Affairs Press Rickover, 369 111, 113, 580, 582, 604 (1962). Cf. Eccles Peoples Bank, 641, 784 course leave open reasons stated, reversed, remanded further proceedings consistent opinion. 32 ordered. elect straying notify relevant Secretary. He destroy however. Under law, defined as: "Any bovine animal, horse, mule ass, fenced unfenced, owner unknown section fifty (50) miles limits pasture, branded brand record office sanitary board (1966). disputed estrays meaning unclear point, conceded oral Tr. Oral Arg. 35. Board's Well. Since file Agriculture, Court's appellant Commerce evidence establishes here migrate across lines" findings indicate way relying statute." 1239. argues sustainable occasion address applied, expressly ordered managed (1928). Infra, 545-546. makes however, owns inconsistent notion respect An game nor prohibit fencing assistance able Camfield. ask us declare "fast disappearing scene." outset, reason suggests itself why "from capture, Ibid., depend finding decreasing number. responding directly contention, note weighed judgment. House 1-2, 11-14, 26-32, 80, 87-88, 101, 103, 134-136, 139-141 What reweigh substitute decline do. Clark Gray, Inc., 306 583, 594, 744, 750, 1001 (1939). event, provided periodic review administration 10, 1340 "To Legislation Cases whatsoever, (not exceeding ten Miles square) may, Cession Particular Acceptance become Seat like Authority Places purchased Consent Legislature Same Erection Forts, Magazines, Arsenals, dock-Yards, Buildings broadly construed, properties legitimate purpose itemized permissible. (1938). Referring creating said: "There attempt give roads left unaffected terms. Apart terms denies curtail acceptance thenational government. establishing park construed result. (park superintendent) undertaking monopoly matter which, allegations bill maintained, surrendered cause action disclosed look bill, dismissed." 231, 506. (citations absent park, entitled prove most purport override official

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