Legal Document

446 U.S. 500 100 Supreme Court Reporter 1803 64 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 458 Cecil D. ANDRUS, Secretary of the Interior, Petitioner,v.State UTAH. Number 78-1522. Argued Dec. 5, 1979. Decided May 19, 1980. Rehearing Denied June 30, See 448 907, 3051. Syllabus * Section 7 Taylor Grazing Act, as amended in 1936, authorizes Interior (Secretary), his discretion, to classify, proper not only for homesteading but also satisfaction any outstanding "lieu" rights, both lands within federal grazing districts and unappropriated unreserved public withdrawn by Executive Order from "settlement, location, sale or entry" pending a determination best use lands, open all such "selection." further provides that shall be subject disposition until they have been classified. Pursuant § 7, refused Utah's selection extremely valuable oil shale located lieu indemnification original school land grants significantly lesser value were frustrated pre-emption private entry prior being surveyed. In so acting, followed policy that, exercise discretion under indemnity applications involving grossly disparate values would refused. Utah filed suit Federal District Court, which, upon stipulated facts, entered summary judgment State. The Appeals affirmed, holding gave no authority classify eligible had right select equal acreage without regard relative selections. Held : confers on authority, district selection. His "grossly value" is lawful broad vested him valid ground refusing accept Such wholly faithful Congress' consistent purpose, providing selections, giving rough equivalent place lost through survey. Pp. 506-520. 586 Reporter, 2nd 756, reversed. Peter Buscemi, Washington, C., pro hac vice, special leave petitioner. Richard L. Dewsnup, Salt Lake City, Utah, respondent. Mr. Justice STEVENS delivered opinion Court. 1 State claims pre-emption, entry, question presented whether obliged selections substitute tracts 2 [Amicus Curiae Information page 501 intentionally omitted] same size originally designated sections even though there gross disparity between selected substitutes. We hold Secretary's Act 1934, 48 Statutes-at-Large 1272, 49 Stat.1976, 43 Code KF62 315f, 3 became 1896. Enabling 1894, Congress granted admission, four numbered each township support schools. statute provided if already "been sold otherwise disposed of" pursuant another Congress, "other thereto . are hereby granted." grants, denominated "indemnity lands" "to [the] manner [its] legislature may provide with approval Interior."1 4 Because much was surveyed long after its admission Union, "in lieu" made promptly. On September 10, 1965, first 194 lists Bureau Land Management Department covering dispute this litigation. include 157,255.90 acres Uintah County, which created Act. 5 January 1974, before approved disapproved, Governor agreed could two comprising 10,240 an leasing program, understanding rental proceeds ultimately paid approved. leases substantial value.2 6 February advised he approve involved values."3 He wrote: "As you know, has yet acted State's [indemnity] applications. principal 1272 (1934), amended, 315f (1972), refuse convey applied-for where those greatly exceeds seeks indemnity. 1967, then adopted under, inter alia, involve values. That remains effect. 8 "In present case, although precisely determined, it appears values, meaning Department's policy. While prepared adjudicate applications, & N Immigration Nationality Decisions feel appropriate at time advise we will apply above-mentioned adjudication."4 9 promptly action Utah. facts stipulated, Judge Ritter favor held satisfy statutory criteria governing when filed,5 them Tenth Circuit versus Kleppe, 756 (1978), 10 parties involves significant issue regarding vast amounts lands,6 certiorari. 442 928, 99 2857, 61 296. believe failed give effect congressional underlying provision selection, specifically misconstrued 1936. therefore reverse. 11 public-land admitted into Union since 1802 included purpose supporting schools.7 Whether contained words future grant, title did vest completion official Prior survey, Government remained free dispose applicable statutes."8 recognition fact essentially random might unavailable survey variety reasons,9 authorized acreage. 12 As correctly emphasizes, grant "solemn agreement" some ways analogized contract parties. cede exchange commitment revenues derived educate citizenry. 13 viewed remedy Government's failure perform entirely promise specific sections. used phrase "lands thereto" described substituted implies roughly resources schools actually received place.10 Thus, typical remedies, make benefit bargain. 14 history general statutes relating purposes confirms view. example, 1859, confronted many settlers occupied unsurveyed confirmed settlers' like quantity." Ch. 58, 385. substitution quantity measure value. 15 subject, however, one important exception. general, particular, known mineral character Sweet, 245 563, 38 193, 62 L.Ed. 473. This "neither expressly includes nor excludes them." Id., 567, 193. Court's stressed "the practice distinction other deal along different lines, withhold disposal save laws specially including Ibid. Mineral thus excluded selections.11 Since most potential source greatest variation generally arid western total exclusion intent States' approximate lost. 16 1927, nine years decision supra, changed allow embrace character.12 But 1927 expand kinds available selections.13 character, prohibited selecting It 1958 replace conditioned character. 72 852. n. supra. For 30 years, then, permitted lands. condition statute, indemnity, rather clearly reflects intention restore value.14 17 Throughout consideration related subjects—a discussed great length voluminous briefs submitted us—we find evidence whatever desire do anything more than whole loss resulting unavailability cross section There certainly suggestion time, 1958, obtain substantially greater process land. 18 viewing program historical perspective, difficult identify sensible justification position entitled chooses regardless Nevertheless, quite correct arguing power reject unless given him. doubt has. II 19 1930's, cases perfectly clear retained embraced timely fashion. hand, equally defeated their rejected satisfied made, appropriated purposes. limited determining met relevant criteria. Wyoming States, 255 489, 41 393, 65 742; Payne New Mexico, 367, 371, 333, 334, 680. 20 dissatisfaction loose regime prompted mostly waste caused unregulated stock grazing,15 led series executive actions critical case. By means these actions, every form withdrawal affect place, surveyed, thereafter discretion. 21 sequence events follows. enacted "[t]o stop injury preventing overgrazing soil deterioration, orderly use, improvement, development, stabilize livestock industry dependent range, purposes." 1269. establish up 80 million lands; establishment withdrawing boundaries "from forms settlement."16 "Nothing construed way heretofore hereafter except provisions part ." preserved identified selections.17 22 passed 1934 applied less half need regulation,18 President Roosevelt issued 691019 Western affected covered well statute. President's 6910 conferred Pickett Act.20 23 responded amending 1936 respects First, expanded see Second, revised 17, recent homesteading, also, section, pertinent part:21 24 "The authorized, examine reserved order district, acquisition lieu, script rights location accordance classification laws. classified (Emphasis added.) 25 changes apparently while version expressed concern restrict selections."22 omission passed—since about affected—by consequence 6910, domain reasonable infer amendments least response complaint hearings 1935, current law selections.23 26 amendment rectified problem, completely choice making selections.24 Rather, decided route thereby acceptance dominant exert firm control over Nation's Interior. sum, coupled withdrawals Order, "locked up" President, specified 7. 27 permit Both House Senate noted Interior's assumption " 'that nothing bill intended duties laws' and, change (43 U.S.C., sec. 315f).' H.R.Rep.No. 2347, 85th Cong., Sess., (1958).25 dealing deemed And manifest intend windfall. approximation what n.14, 28 merit argument constitutes abuse conferred. contrary, Accordingly, 29 ordered. POWELL, whom THE CHIEF JUSTICE, BLACKMUN, REHNQUIST join, dissenting. 31 early days Republic, compact new education allowed deficiencies grant. Today, holds abrogated compacts approving requirements odds principle. Nothing persuades me meant lightly breach respected enforced throughout our history. dissent. 32 rests three fundamental misconceptions. reasons accepted proposition compensate gaps mistaken conclusion Ante, 507-510. ignores spanning centuries principle standard compensation. believes 513-519. belief manifests serious misunderstanding management language Third, assumes—without discussion—that gives standards inconsistent set out authorizing Every court considered assumption. 33 A case requires careful examination labyrinth dating back national Part reviews unbroken succession undercut construction statutes. explains development relationship Orders Finally, detailed Act's provisions, III demonstrates it. 34 When formed sovereign borders. These tax base governmental functions. sought carve Ohio Northwest Territory 1802, encountered situation. Vast proposed belonged Government. revenue restricted severely waived immunity taxation.1 footing compromise drawn Ordinance 17852 1787.3 pattern virtually State.4 Specific details varied State, basic plan persisted. pledge fixed proportion borders education. E. g., Apr. 175 (Ohio); Jan. 29, 1861, 3, 127-128 (Kansas); July 16, §§ 6, 108-109 (Utah); Morrison, 240 192, 201, 36 326, 329, 60 599 (1916).5 35 agreements solemn bilateral ante, 507; 201-202, 329; Cooper Roberts, How. 173, 177-179, 338 (1856). part, laid number ensure receive Title U.S., 207, 212, S.Ct., 331, 333; Beecher Wetherby, 95 517, 440 (1877). Should prove unavailable, promised return, required memorialize "by ordinance irrevocable consent States." 108 (Utah). imposed binding perpetual obligation All lease impressed trust No divert uses compensating full market interest taken. Lassen Arizona ex rel. Highway Dept., 385 458, 87 584, 515 (1967); Alamo Cattle company Arizona, 424 295, 96 910, 47 (1976). line 1800's evidences respect 329. 1826, additional fractional townships found contain granted. directed Treasury "out land" "quantity" entitled. 20, ch. 83, 179. against increased Nation moved west, indemnify settlers. earliest officials particular Territories amount occupied. Mar. 2, 1853, 179 (Washington Territory).6 37 second applicability quantity" pre-empted settlement, "fractional quantity," missing township, natural cause whatever." Feb. 26, Although incorporated reference 1826 day empowered local county own Upon filing register, declared, belong fund 59, (Sarpy Neb.). consolidated codified 2275 2276 Revised Statutes 1874, underwent extensive revision 1891. because reservation, "otherwise sections, [as] said 28, 1891, 384, 796. "any unappropriated, 797. 39 1891 effects. reaffirmed unquestioned removed restriction unavailable. appeared confirm earlier States.7 Fourth, conformed mid-19th-century enactments certain Even become submit Interior.8 Acts 1889 1890 sanctioned explicitly.9 mention approval, inclusion requirement later suggests departure practice. 109. 40 end 19th century, established nearly years. unsettled disapprove 680 (1921), resolved favor. Mexico alternative lying forest. Before restored domain. restoration basis held, equitable properly filed. If statutes, annul title. 370-371, 334-35. Three weeks later, point emphatically 742 (1921). forest "as possible land." 495, 394. again concluded chosen date not, said, 42 merely proposal [federal] officers reject. They option confided granting denying privilege existing lawfully exercised 496, 394, 395. Wyoming, declared 25, 1, 44 Stat., pt. Page 1026. places 851, 852, Aug. 27, 928. reflected ban denied fair contemplated grants.10 rule kept replacing nonmineral "amply protected" windfall States. declined depart 1802. H.R.Rep.No.2347, 3-4 (1958). Indeed, always adhered just indemnification. recently 1966, 852 land, import "equal concept" 24, Pub.L.No.89-470, 220; S.Rep.1213, 89th 4-5 (1966), U.S.Code Cong. Admin.News 2323.11 1894 "have Government, Act—like kind—directs provide, direction, alleges appear 45 Secretary, determine Instead, 315 et seq., "where indemnity." App. 61. today agrees. unprecedented departure, concludes abrogate repeatedly implausible face, belies review structure shows legislation affects exchanges. Act—analyzed closely opinion—expressly protects impairment whatever. 46 protect spoliation them. mid-1930's, ranges seriously endangered. Overgrazing destroyed better grasses, erosion bared steep hillsides, silt filled waterholes. Homesteading watered grounds aggravated situation leaving access water. disastrous decline prices during Great Depression drove stockmen depleted domain.12 background promote highest final vacant, ., chiefly raising forage corps Ibid.13 noticed "all [or] settlement" conducted. 1270. carefully provided, impede objected draft "upon theory [a] selections," recast declare "[n]othing diminish, restrict, impair initiated validly affecting 1269.14 reclassify "more suitable production agricultural crops native grasses plants 1272. reclassification, "subject settlement occupation homesteads 50 critically state value." 1272-1273. showed solicitude directing proceed state-initiated exchanges "at practicable date, cooperate fully end. 1273. discretionary provisions. opposed feared isolated inside reservation other, situated testimony Committee, argued enough removal federally administered areas. urged should mandatory.15 Testimony Board concerns.16 Commissioner suggested prevent citizens exercising legitimate district.17 argues witnesses impaired supports conclusion. remarkable suggest thought interfere 51 Five months went effect, (1934). Invoking 1910,18 withdrew useful put. far-reaching. activities continued claims, entries came halt. 55 I.D. 205 (1935). forestalled exchange, scrip, 249, 253-254 (1935).19 52 Only issued, Senators began broadening powers suffered pocket veto, almost identical I, 1976. meantime, 7274 (1936) operation now, be, districts. enacted, Act.21 53 enactment "within district" suitable" "proper [sic ] 1976.22 location" respond application classifying "until opened 54 mandatory state-owned land.23 receipt now "shall, hereby, 1977. Furthermore, exceptions exchanged "either acreage." Two resolution must demonstrate 315, does exclude reach satisfyall fails either hurdle neither permits plain Atlantic 56 "affect [otherwise] exemption transparently clear. unaffected "reservation" "disposition" can vesting 851. "unappropriated" terms 852(a) (d). simply unselected "[i]n disposal." 315. 57 unqualified stated concedes defeat place. 513.24 holds, appropriation 519. thinks nullify "disposal" express B 58 agree exempts unexplained allows comparative standard. 59 "[i] plants, [ii] [grazing], [iii] Courts conserve finds efficient uses. Bleamaster Morton, 1289 (CA9 1971); Carl Udall, 114 U.S.App.D.C. 33, 37-38, 309 653, 657-658 (1962). courts upheld administrative determinations Pallin 496 34-35 1974); Finch 387 13, 15-16 (CA10 1967), cert. denied, 390 1012, 88 1262, 162 (1968). fundamentally supra; Bronken 473 790, 795-796 (CA9), 414 828, 94 51, (1973); word "proper" third clause quoted above cannot mean sees fit devise. provision, concerned authorize beginning century. acreages, applying test based force quantities Union. acknowledged return value," 315g(b) (1970 ed.), take "land acreage," 315g(c). Having title, silently departures grants. permitting interest. sponsors conclude—as does—that secure unfair advantage. necessary guarantee "fair values." (report Interior); 104 Cong.Rec. 11921 (1958) (remarks Sen. Watkins); 527. receded view, despite invitation so. S.Rep.No. 1213, 2323; 527-528. 180 embodied surmising addressed issues adopt position. IV 63 citizens. Those require designate replaced empowers explicitly principles consistently Republic. decade longer, 851 all. claimed five took claim, registry swollen land—proceeds brought matter ordered duty. affirm judgment. syllabus convenience reader. Detroit Lumber Co., 200 321, 337, 282, 287, 499. [Utah] two, sixteen, thirty-two, thirty-six parts thereof thereto, legal subdivisions quarter contiguous taken, common schools, Interior: Provided, second, sixteenth, thirty-second, thirty-sixth permanent reservations Indian, military, extinguished domain." 109 (emphasis added). 1976, $48,291,840 accumulated. Pet. 62a. area 157,000 acres. Suggested guidelines estimated $100 per acre 25% whichever greater. using criteria, Washington office evaluation circumstances. 44-45. Letter 14, Rogers Calvin Rampton, provides, part: "§ Deficiencies reason settlements, etc., generally. "Where settlements view preemption homestead been, field, sixteen thirty-six, settlers; granted, reserved, pledged colleges lie, selected, taken are, pass States: waiver purposes, quantity, wanting fractional, duty awaiting extension surveys, ascertain determine, protraction otherwise, reservations, thereupon extent therein pledged; reservation: extinguishment taking therein." Selections supply "(a) [Restrictions] losses occur following restrictions: "(1) State; "(2) geologic producing gas field "(3) none producible status, restrictions conditions preceding paragraphs subsection." 852(a). 853 "sections thirty-six" thirty-two. "Because states ones particularly large remaining concentrated seven states. alone 70% rights. still (and potentially lawsuit) follows: 170,000 acres; California, 108,000 Colorado, 17,000 Idaho, 27,000 Montana, 22,900 225,000 1,100 acres." Brief Petitioner 4-5, n.2. territory setting apart maintenance (Ordinance 1785; 177 [, 338, 339]); carrying policy, Between 1846 thereafter, thirty-six. instances, 198, 328, (footnotes omitted). "It hitherto previous school-land vests previously Government." 331 440, 443-444, 67 1319, 1321-1322, 91 1590 (footnote Indians military individuals e. Wisconsin Lane, 427, 432-433, 135, 136-37, 377. Heydenfeldt Daney Gold Silver Mining 93 634, 639-640, 995: "Until status capable identification, absolute them; 16th 36th of, compensated near quality." Under "unappropriated, character." 796-797. 1026-1027, several aid extended 870. "[T]his Acts, effect." 1027, 871. "Under non-mineral forfeited mineralized. little equity situation." objective preempted sections." Remarks Senator Watkins H.R.Rep.No.903, 73d Sess. (1934); 78 11139 (1934) Adams Colorado). "Be Representatives America assembled, disposal, additions and/or modify thereof, exceeding aggregate eighty (exclusive Alaska), forests, parks monuments, Indian revested Oregon California Railroad Coos Bay Wagon Road crops: head department having jurisdiction thereof. maintained limiting restricting matters jurisdiction. Whenever owners adjacent owner, rights-of-way stock-driving convenient owner marketing facilities owned person stock-grazing Neither December 1916 (39 862; 43, secs. 291 following), commonly 'Stock Raising Homestead Act', forests March (26 1103; 471), forth 4, 1897 (30 35; 475), specify. herein hearing notice given, attendance officials, settlers, residents, vicinity, determined expiration ninety twenty held: publication exterior boundary settlement. altering hunt fish permittee whatsoever hunting fishing district." 1269-1270. ". hundred area. remain patents therefor, homesteader allowed, possession thereof: qualified laws, tract classified, entitle applicant preference enter provided." introduced Congressman (H.R.6462, Sess.) purported protection 173 range maximum figure 142 limitation 1954. 68 151. Withdrawal 205, 206-207 (1935), reads "WHEREAS, act (ch. 865, 1269), among things, prevention deterioration; improvement stabilization range; furtherance creation states; privately unreserved, States; disconnected domain; placed administration, if, opinion, adapted thereto; conservation propagation wild life; effective administration act; "NOW, THEREFORE, virtue 1910 421, 847), August 1912 369, 497), expressed, Nevada, North Dakota, Oregon, South is, temporarily classification, put resources. effected "This continue revoked Congress." 1910, withdraw entry": "[T]he may, sale, reserve water-power sites, irrigation, orders withdrawals, 847. description seems exception intended, express. 742, plainly indicated attempt selection's validity tested subsequent valid. preclude timeliness issue. repealed Policy 704(a), 90 2792, modified. 701(c), 2786. 7274, Once was, course, satisfied. entirety November (numbered 6910), 1935 6964), subchapter disposition, entry: locations mining 1920, areas subchapter. Where applicant, lands: application, enter, select, locate Fred W. Johnson, General Office, reprinted 903, statement John Haw. Hawai‘i KFH45 A2 Phoenix, Ariz.: "[T]oo features, very attention mechanics how functioning under. result tied everything contractual relations Government—and refer acts everything—they ceased function. "There acquired, purpose. "I think besides grazing. term distinguish grazing, industrial purposes; words, town sites smelter like; industry, usually acquired "When wrote us sympathy fear get too enthusiastic everything. forecasted resulted, responsible 80,000,000-acre in. You remember Hayden. "That immediately, commenced administered, lands." Hearing S. 2539 Committee Public Lands Surveys, 74th 1st understood Hayden hearings. Page's observation railroad-grant observed: thing true university selection." 15. Further, Roosevelt's 253 (1935): lost, obtained." (see dissenting post, 530, 14) "grant" phrase, LAND WHICH [is] state," correct, amend Moreover, reclassified 1735, (1958): "Reports 2517 H.R. 12117 [which Report] report." address problem 1796 Tennessee Carolina ceded Confederation. Consequently, contested vacant controversy ended exempt taxation. 18, 1806, 31, 381-382; Pacific KF135 P2 Gates, History Law Development 287-288 1785 "reserved lot township. Laws 565 (1815). Article 1787 declared: "Religion, morality, knowledge, good government happiness mankind, forever encouraged." 52. legislatures region "tax property States" 1803, 225; 175, organizing Maine, Texas, West Virginia, Hawaii. supra 285-339. Until shortly stopped selling credit, 1820, 566, exempted taxation period sale. enabling organization proscription banned taxes 288-296; 247 (California); 150 (Oregon). Consolidated 102 167, 126 (1880); 570-572, 194-95, (1918). Todd L.D. 106 (1897). assumed Treasury's responsibility 1849. 1849, 1890, 223 (Wyoming); 215 (Idaho); 22, 1889, 679 (North Washington). cosponsor bill). points American concept "wholly 520. 519-529, 607-613. rose disappeared 1954, last added Lands. Hearings 2835 6462 Lands, 195 At inserted, report indicating selections." (memorandum Office Johnson Ickes); H.R.Rep. S.Rep. 1182, Cong.2d exemption. 11147 Surveys conferees acceded amendment, inserting "validly behind "existing law." H.R.Conf.Rep. 2050, highly events. cites erroneous "no 517. Perhaps confusion arises saving covers needed 519, 24. logically untenable. conveyed grantee "part grant." 195-209 (testimony Gov. Miller Wyo.). 209-216 George Fisher). Not infra, 534. 6462, 161-174 Howland Smith). 847, "withdraw 2792. "previous disposition" prevents 454, 1321-22, 1326, (1947). 7599, Fed.Reg. 633 (1937), 6910. 1-2 1005, began, Exec. 7048 Participants accurately observed, left 518-519, 23; 532. scarcely mentions 7274. recognize affirmatively precludes Any implication continues mistaken. 515-516, 20; infra. Report says satisfactory method grazing." 2371, legislative inference complaints Act—as distinguished 6910—upon 517-518, (1936). Mandatory 531-532. Given concession point, reliance (1947), misplaced. 515, 533, 21. quiet section. prevented 433-444, 1326. unlike Act—does "dispose" notion

Classification Label: 7