Legal Document

381 U.S. 90 85 Supreme Court Reporter 1253 14 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 239 FEDERAL POWER COMMISSION, Petitioner,v.UNION ELECTRIC COMPANY. Number 123. Argued March 2, 1965. Decided May 3, Rehearing Denied June 7, See 956, 1796. Ralph S. Spritzer, Washington, D.C., for petitioner. Robert Judge Keefe, St. Louis, Mo., respondent. Mr. Justice WHITE delivered the opinion of Court. 1 Section 23(b)1 Federal Power Act2 requires any person desiring to construct a dam or other project on nonnavigable stream, but one over which Congress has jurisdiction under its authority regulate commerce, file declaration intention with Commission. If Commission finds that 'the interests interstate foreign commerce would be affected by such proposed construction,' declarant may not operate without license. The issue here is whether construction pumped storage hydroelectric generating energy transmission affect 'interests commerce' within intendment Act. I. 2 Respondent Union Electric company (Union), operating plants and an interconnected distribution system in Missouri, Illinois, Iowa, filed pursuant § 23(b) facility, Taum Sauk installation, as part Union's system. plant, engineering innovation growing use, supplement produced during periods peak demands. During it generates through use units driven water falling from elevated reservoir into lower pool.3 off-peak uses sources pump pool back headwater pool.4 capable creating up 350 megawatts created will utilized possibly Iowa. located East Fork Black River, about four miles above confluence these waters.5 tributary itself navigable stream along White River flows. 3 FPC found was 'over commerce,' since river require license, also held, both because contemplated utilization power electricity downstream navigability, 27 F.P.C. 801. Appeals reversed, 326 Reporter, 2nd 535 (C.A.8th Cir.) holding only 'commerce' relevant FPC's determination waterway question have no significant impact commerce.6 Absent effect irrigation development, flood control projects planned resources, matters might headwaters 'local' activity beyond licensing consequent regulatory controls FPC. Because unresolved important class projects, we granted certiorari, 379 812, 41, 13 26, now reverse judgment Appeals. We determined limitation affecting waters founded upon erroneous reading language design purposes Water II. 4 To focus inquiry, well state what involved this case. There electric fully subject powers Congress. Public Utilities commission Rhode Island versus Attleboro Steam & Co., 273 83, 86, 47 294, 295, 71 L.Ed. 549; Bond Share Securities Exchange Comm'n, 303 419, 432—433, 58 678, 681—682, 82 936. Nor there doubt today transmission, Sauk, among therefore are purview power, quite regard federal streams navigation. National Labor Relations Board Jones Laughlin Steel Corp., 301 1, 40—41, 57 615, 625—626, 81 893; Fruehauf Trailer 49, S.Ct.642, 918; Consolidated Edison New York Board, 305 197, 59 206, 83 126; Katzenbach McClung, 301—304, 377, 382—384, 290. But see Appalachian Cir., 107 769, rev'd grounds, 311 61 291, 243.7 Thus, constitutional doubts barriers interpretation. required license utilizing generate think affirmative answer 5 Act, our view, plainly circumstances 23(b)8 prohibits nonlicensed streams, regardless effect, detrimental beneficial, navigation those proposing come before affected,' obviously does speak terms commerce. Plainly provision where affected.' Although transportation waterways phrase 'affect face hardly supports claim sought transportation. Rather, strongly implies drew full Commerce Clause, including limited '(H)alf dozen enactments, than Act sufficient illustrate when (Congress) wants bring aspects sweep constiutional authority, manifests purpose regulating 'affect', 'interrupt,' 'promote' * In so describing range control, indulging stylistic preferences.' Polish Alliance States, etc. 322 643, 647, 64 1196, 1198, 88 1509. 6 scope restricted earlier clause limiting filing requirements is, tributaries systems necessitating supervisory preserve improve navigability generally. Rio Grande Dam Irrigation 174 690, 19 770, 43 1136; State Oklahoma ex rel. Phillips Guy KF105 F3 Atkinson 313 508, 1050, 1487. This merely designates who must intention—al locate declare their determine necessity then proceeds invoke qualification, define licensed. asserts mean same thing 23(b); allusion provision, Commission's inquiry source Congress' stream. Nothing structure syntax compels conclusion. Indeed, distinct standard licensed,9 more compelling inference intended project's include, to, navigability.10 7 Turning enacted 1920, Cong.Rec. 1932, 1936—1940; 241, 1039—1042, 1173—1174. indicates restrict considerations navigability. much indicate contrary. 8 central provide comprehensive Nation's resources Government had legitimate interest; included navigation, irrigation, and, very prominently, power—uses which, while unregulated, contradictory rather harmonious.11 Prior legislation 1890 Rivers Harbors 1899,12 prohibiting erection obstruction feeders, Irrivation 1136, requiring consent approval Secretary War constructing bridge, dam, dike waters, thought inadequate, accommodated interest As occasion note before, 1920 'was outgrowth widely supported effort conservationists secure enactment complete scheme national regulation promote development Nation, far reach do *.' First Iowa Hydro-Electric 33 Code KF62 §§ 401, 403 (1958 ed.). 152, 180, 66 906, 919, 1143. principal developed regulated title indicates, meet needs expanding economy.13 9 provisions reflect objectives. preface states besides creation Commission, 'to power; public lands relation thereto purposes.' 41 Statutes-at-Large 1063. 10(a), amended, condition obtaining 'be best adapted plan improving developing benefit improvement water-power beneficial *.'14 Other operations, services, charges, duration plants,15 'provisions essential even concerned such,' 'have obvious relationship exercise power.' 424, 427, 307, 308, 243. order insure waterways, 'navigable stream' broadly defined include interrupting falls, shallows, rapids authorized recommended improvements;16 recognized were invoked, forests.17 10 'in so,' Coop. 328 U.S., at thrust little merit argument dispenses vitally involved. served if must, held case, consider spectrum interests. III. 11 earnest position, however, legislative history reveals narrower 23(b). core basis generally particular invoked other, accordingly provides greater necessary protect On matters, said, conservations opponents agreed. Moreover, continues, confined repeated references congressional course committee hearings reports 1935 amendments 12 cannot distill long intense struggle enact decided policy. unquestionably invocation build defined,18 actual was, consequently, considerable debate extent definition waters' impose conditions having relevance protection navigation.19 Some Clause did extend anything mainstream itself, preserving broad objection expression remarks directed assertions save perhaps substantially affected.20 Since mounted major attack well-recognized proponents defended ground. Navigation hence permeated debates, statements reflecting understandings disagreements issues understandably constitute context enacted. none can fairly said meet, less determine, presented here. That exercised most assuredly did, enacting jurisdiction. fact debates sheds light not, intend rely effects commerce.' It true 23(b), taking they contain express electrical energy, production goods destined shipment understood time, Hammer Dagenhart, 247 251, 38 529, 62 1101, 1918, inclined inject ongoing debates.21 emerged particular, couched reached forms support proposition equate navigation.22 differentiating between two. House version permission provided justified 'for commerce.'23 Senate Committee, expansion amended make immediate investigation prohibit affected.'24 Only find compliance laws. No offered explanation substitution inclusive term commerce.'25 seemed agree embodied measure projects.26 And evidence sponsors prevailed securing drafted, counterparts. numerous objections significance adopted refrained writing reference 15 materials concerning alter Here contained streams.27 Report, example, stated 'every intending States.' H.R.Rep. 1318, 74th Cong., 1st Sess., 26. S.Rep. 621, 46—47. Such clearly refer requirement amendment. persons feeders need intention. thus accurate respect, illuminate requirement, nor resolve They explicitly implicitly, exempt 16 connection intent deliberations all involving systems. 17 'The act greatly strengthened enabling ann valid concern.' 47. 18 floor similar voiced again rejected inconsistent effective regulation. 79 10568. promptly eliminated amendment 23 directly burdened construction.'28 ignore added 1935. applicable prior amendment, 30 1151, forbidding obstructions adequate substantial brought Persons likely some pure installations, could decline impunity. Thus made difference principally predictably little, any, us assume intended, although Committees enable S.Rep.No. 47; purport breadth expressed preoccupation committees significance, overcome clear import 20 respondent anomalous consequence flows view steam large amounts rests solely distinguishing plant facility use. Appeals, after noting generation local intrastate activity, concluded '(t)he logically rest delegated waters.' F.2d, 551. reasoning either should, situated should does, otherwise, demonstrable conundrum unlike Part II Title Utility 1935, regulates various sale I, original particularly potential water. concern Act,29 distinction obvious, meaningful, produce transmission.30 21 Reversed. 22 GOLDBERG, whom HARLAN STEWART join, dissenting. N Dec. Immigration Nationality Decisions 'is Congress,' steam, 'are navigation.' Ante, 94. basic presented, statutory interpretation: licenses whose built way, wished waters. From time until 1962 believed latter interpretation correct attempt unless affected. 1962, 'ruled first (a) constructed utilize used supply markets (other States).' 'New Regulatory Policies,' Forty-second Annual Report (1962).1 believe interpretation, consistently followed many years, correctly reflected intent. 24 Court's conclusion, supporting new theory affects way seems based overly literal statute. statute construction.' With deference, establishes maintained, refers Statements others, affected.2 period interpreted accordance intent, re-enacted At drafters Act3 Act4 indicated apply 25 be, intimates, Act's constitutionally affected.5 showed extent, notwithstanding accept given However, history, my limit application irrespective power. indication anyone envisaged desired type crosses lines. 26 interpret produces anomaly, manner identical obtain yet one. attempts explain away stating water,' transmission.' 110. 'power fail artificially pumps allowing fall heats create electricity. justifies producing anomaly scheme. Under course, affected, neither. here, satisfaction neither involved, affected.6 APPENDIX A TO OPINION OF MR. JUSTICE DISSENTING. 28 Excerpts 27, 7730. 29 'Mr. KING. bill, it, every navigable, smallest snow line, melts trickles rivulets For instance, language, Senator pardon me_ _ NELSON. Let me call attention reads: 31 'Navigable means parts bodies nations several States_ 32 regulate. When confers et cetera, streams. understand, tributaries, final cognizance Government. carry line. court's decision goes facts case considered—that main law prevent being dammed thereby preventing running ought inevitable, great rivers, Mississippi, kept them cease navigable. 34 am arguing question. 35 So cut off 36 Obviously, then, Senator's contention, Colorado (Mr. Thomas) sotto voce says, clouds spring flowing stretch out powerful omnipotent hand grasp mountains say, 'We that.' 37 forced construction. position leads that. 39 lead that, position. few moments ago referred court intimated incidentally extended comes applying principles each measured facts. decide What meant say shall destroyed diminished reflection whatever possible, conceive possible individuals drop dry destroy it. Except sections exhausted dams matter fact, Middle West, diminish water, another enters arid West divert entirely 40 'To done? take kind court, rights farmers, needed Does diversion certain feeder quantity stream? whatever. Furthermore, subserve real ,'we seeking interfere present situation, put Maine excuse moment longer, change dicisions words stream.' undo legislation, effort, decided. attempt. simply natural improved conditions, forth, considered said. left courts it; undertook nevigable overrule us.' (Emphasis added.) 42 B memorandum prepared submitted Committee Interstate Foreign explaining states: 44 'Section 210 bill amends section subsection (b) undertake discretion changed duty proceeding construction, maintenance operation inserted expressly making unlawful act. substance result achieved Harbor 1899 read desirable together regulations dealing single conceivably coming Hearings Commerce, 391. Dozier DeVane, Solicitor testified follows prepared: 45 MARTIN. form repetition, impresses contention Mapes broader, standpoint 4. 46 'It occurred you just leave States' add 3. DEVANE. No, sir; attempting cases arise 48 addition States,' incorporate 49 Of exists 50 Ryan calls applies well. 51 extends rivers 52 CROSSER. last statement? hear 53 done 54 CHAIRMAN. your You pass on. 55 MAPES. arrive Engineers therefore, people desire bridge across get it? 56 instance declarations Department, Engineer Corps recommendation report made, holds hearings, takes evidence, makes findings. according shown. ever controversy. Are two expressions synonymous, not: Mapes, are. Do want side not? 60 knowledge least been debated, 'tweedledee tweedledum.' legal processes refinement. difference; yes, sir. conceivable, somebody's mind, possibility future man spending money 'Now runs. 63 propose enlarge control. HOLMES. were, 65 today. Then misunderstood regard. 67 Well, like perfectly clear. 68 extending today—not all. 69 'At point, difficulty answering asked Saturday. 70 'You observe 23, jurisdiction, looked such, advance necessary. 'That broader used, asking about, Staturday. 72 73 74 Yes. Has sustained Commission? 75 waters? 76 77 navigation? 78 Yes; upheld 1136. 1899, act.' 80 471—472, 474, 476, 489, 490. 838, 846, 817 originally 791—823 ed.), Parts III, utility companies, added. distinguish largely intact, title. likened battery, sources, usually steam-electric plants, hours day, supplying integrated hours. upper regarded equivalent stored energy. Pumped installations categories, facilities conventional hydro exclusively storage, circulating higher reservoir. Within categories vary mode operation. F.P.C., 1964 Survey, 120—124. Existing combined Rocky Conn. (1929); Buchanan, Tex. (1950); Flatiron, Colo. (1954); Hiwassee, N.C. (1956); Lewiston, N.Y. (1961). recent vintage, following recently constructed: Yards Creek, N.J.; Cabin Colo.; Muddy Run, Pa.; Ludington, Mich.; Cornwall, N.Y.; project. id., 122—123. 32-acre atop mountain, 1,500 feet sea level, reservoir, impounded 60-foot covers 370 acres usable capacity $4,350 acre-feet connected pressure tunnel conduit, pumping station open channel pool. normal operations project, increase decrease stage flow below dam. event malfunction abnormal flows, level River. trial examiner transmitted concurred examiner's finding may, reversed ground evidence. petition certiorari reserved footnote right argue correctness alternative holding. properly navigability; discussion assumption determining not. Utah Light Pfost, 286 165, 548, 1038, cited opposed. tax This, Cf. 649, 1199, 1509: '(F)ederal preclude taxation regulation.' construct, operate, maintain house, works incidental across, along, reservations (including Territories), surplus except Any over, thereof, herein whereupon cause maintain, applied received find, hereby laws.' sure delimits inquire leaving theoretical licensed Clause. shown theoretical. nothing narrow exemption typical underscores directive 'proposed construction' urges Whether generally, intelligible perforce entails consideration nature physical Further, 'shall works' 61, 66th Sess.; Cong. Rec. 6968; S.Doc. 325, 60th 25. movement toward taken keynote President Roosevelt's veto turned private sites Rainy He said: beginning Its entering element daily life people. Already evils monopoly becoming manifest; already experience past shows caution unrestricted grants designated official approving plans maximum assured, ultimately better 4698. objectives recounted Kerwin. Water-Power Legislation 105—293 (hereafter Kerwin); Pinchot, Long Struggle Effective Legislation, Geo.Wash.L.Rev. (1945). 453, 454; 1121, 1151; (1958) increasing resulting participation war shortage coal oil supply, compelled urgency legislation. (T)he set forth Houston report.' 'If years ago, instead restrictive laws prohibited powers, invited fair reasonable terms, World 20,000,000 5,000,000. paramount importance further delay 244 (remarks introducing bill). 1222-1224, 1039, 1042, 1048; Sess. 842, 803(a) These maintained good repair operated amortization reserves twentieth year excess return net investment, annual charges paid excessive profits, unregulated expropriated 10, 803(b), (c), (d), (e) rates services absent regulation, adequate, 19, 1073, 812 14, 844, 807 recapture expiration payment investment property. 3(8), 796(8) 4(e), 840, 797(e) Earlier versions thereof ordinary property improvements become 1419, 65th H.R. 3184, noted excluded shallows rapids, valuable projects. 4638. filibuster closing session 1919 prevented Kerwin 253—254, 3184 falls improvement. See, e.g., 1041—1042, 1430—1432, 1472, 6529 6531, 6536, 7723—7729. bills narrowly granted. Cong.1st 8917, 9038; 4638; 2032. representative: 'Stripped covering, proposal relates nations, authorizes corporations erect houses industrial purposes. strained proper limits. fact. demands profits industry recognize impracticability developments law, unusual exceptional conditions. Limit go verge inhibition. know fundamental th building dams, houses, commercial profess incident sound mind limits *' 6531 Representative White). 'As aside different belongs insisted this: sell charge belong 1430 Nelson). '* decisions attempt.' 7723—7730. 4636—4638, 9038. Especially time. technique, sufficiently serve enough portions. reservations. 'if affected' 19. Ibid., 910, managers separate statement amendment: 'This seeks prescribe how doubtful ascertain affected; Id., 13. afford method located. 1935; 241—244, 1173 1174, 6529—6531, 5423, 383—391, 471—490; 46—47; 25—26. Pittman discussion. 9053. deleted explanation. 42. 14473. notes heart matter, explained why differentiates precisely transmits perceive difficulty. sales, novel 'represents departure administrative (the) statute' 'one acknowledged adhered throughout years.' 552. deemed accepted concistently view. previously markets, existence number doubted. small relatively development. early days novel. dealt 1939, (C.A.4th Cir.). relied below, untenable 'either authority,' resting conclusion Court, underpinning Appeals' explicit posed sales. unsettled decision, evidened ruling 1954 transmission. cursory dictum, traditional California Oregon one, stating, reaching 'an allowed unresoved longer country ahead over- whelmingly dependent uses.' 801, 806—807. jurisdictional American Trucking Ass'ns 344 298, 97 337. provisions. long-standing re-enactment factor construing Helvering Reynolds, 428, 432, 971, 973, 1438; Commissioner Estate Noel, 380 1238; Davis, Administrative Law 5.07 (1958). Appendix Atlantic 4638—4639; 7723, 7725, baron Both 'Under Commission.' expresses views. n. supra. majority feel deal erred

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