Legal Document

357 U.S. 275 78 Supreme Court Reporter 1174 2 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1313 The IVANHOE IRRIGATION DISTRICT and the State of California, Appellants,v.Courtney McCRACKEN et al. MADERA Appellants, versus Carl Federal KF105 F3 STEINER DISTRICT, Appellant, Phillip Jane E. ALBONICO. SANTA BARBARA COUNTY WATER AGENCY, Maurice Atlantic BALAAM Nos. 122—125. Argued April 29, 1958. Decided June 23, Rehearing Denied Oct. 13, See 79 10. [Syllabus from pages 275-276 intentionally omitted] Mr. baron Abbott Goldberg, San Francisco, Cal., for appellants. John Davis, Washington, D.C., States, amicus curiae. Messrs. Harry W. Horton, El Centro, Alvin Judge Rockwell, Denslow Green, Madera, appellees. Justice CLARK delivered opinion Court. 1 These four cases present issues basic importance to federal reclamation laws. California has refused confirm certain contracts entered into between two state irrigation districts a water agency on one hand other,1 finding invalid several grounds. Ivanhoe Irrigation District All Parties Persons, 47 Cal.2d 597, 306 Pacific Reporter, 2nd 824; Santa Barbara County Water Agency Persons Parties, 699, 875; Madera 681, 886; Albonico District, 695, 894. Specifically involved are parts statutory enactments: Section 5 Reclamation Act 1902,2 providing generally that no right use shall be sold lands in excess 160 acres single ownership, § 9 Project 1939,3 providing, inter alia, repayment funds expended construction works, authorizing Secretary Interior make furnish at appropriate rates irrigation. turned an interpretation third provision, 8 1902.4 That section provides is not construed as interfering with laws 'relating control, appropriation, use, or distribution used irrigation.' It further administering 'shall proceed conformity such * *.' court held this provision required application law, provisions contrary thereto, it confirmation. involved, joined by appealed, we postponed question jurisdiction merits. 1957, 355 803, 12, 26. We have concluded, reasons hereinafter set forth, over appeals. Treating papers petitions certiorari, 28 Code KF62 2103, Annotated KF65 U5 grant certiorari. On merits, deem controlled law valid against objections made. I. Background Litigation. This litigation involves dispute landowners combined Governments other. As Attorney General points out, there clash here California. Quite contrary, various agencies, commendable faith steadfastness another, embarked upon nearly completed most complicated joint venture known Central Valley Project. There times been differences, but these inevitable everyday implementation giant undertaking. whole parties kept ultimate goal firmly centered their vision. 3 largest undertaking yet under program. was born minds far-seeing Californians endeavor bring State's parched supply sufficiently permanent transform them veritable gardens benefit mankind. Failing its efforts finance undertaking, almost quarter century ago petitioned join enterprise. Congress approved adopted project, pursuant repeated requests State, thus far half billion dollars. total cost estimated high 4 saga project fascinating. somewhat parallel ranges mountains running south northern border two-thirds length State. Known Sierra Nevada east Coast Range west, they converge north Mount Shasta Tehachapi Mountains south, thereby forming Basin. basin extends 500 miles ranges, Bakersfield, average width 120 miles, including more than area main valley floor, comprising about area, alluvial plain some 400 long averaging 45 width. Sacramento River, headwaters near Shasta, flows Francisco Bay, draining portion basin. Joaquin which rises above Friant runs first west then River Sacramento-San Delta, both common outlet ocean through Bay. Gerlach Live Stock Co., 1950, 339 725, 70 955, 94 L.Ed. 1231. Rainfall floor comes during winter months 85% November April—and summers quite dry. At Red Bluff, just 23 inches, while Bakersfield scant 6 inches fall. climate ideal frost-free period seven mild permitting production citrus well deciduous fruits other specialized crops. absence rain, however, makes essential, particularly southern region. In mountain precipitation greater, winters severe. Northern Sierras 80 rainfall Southern 35 inches. experiences much less. higher recesses largely snow which, when melts, joins runoff areas up annual 33,000,000 acre-feet coming regions. Nature regulated timing water, occurs three April, May, June. Resulting floods cause great damage, waste phenomenal accumulation so vital valley's rich soil. object plan arrest flow regulate seasonal year-to-year variations, creating salinity control avoid gradual encroachment adequate municipal purposes, facilitating navigation, generating power. now nearing completion actually partial operation areas. 7 built around rivers, includes series dams, which— Folsom, Trinity River—will electric contemplates eventually 38 major reservoirs scattered part will store 30,000,000 water. Dam Reservoir sits head table north. With capacity 4,500,000 it, along tributary dams reservoirs, area. western slope Range, drains Ocean. A dam Lewiston impound three-quarters million means tunnel, partially diverted supplement waters lying across mountains. facilities flow, surplus Valley, maintain navigation channel, protect Delta salt intrusion Pacific, provide Contra Costa Delta-Mendota Canals, generate deal hydroelectric energy. Canal services shore Suisun Bay Antioch Martinez domestic, industrial, use. transports Mendota Pool Delta. pumped canal foothills gravity pool Mendota. exchange replaces Friant. latter forces entire Millerton Lake 520,000 lake Friant-Kern south. former 37 supplies others extend point foot Valley's enormous table. power will, finally completed, kilowatts. Transmission lines, steam plants, essential constructed obtain maximum utilization. sale receive reimbursement reimbursable expenditures. over-all allocation costs definitely determined. ultimately allocated reimbursed 4% interest, interest. Moreover, Government numerous aspects flood prevention, fish wild life preservation, recreation. irrigators therefore, chargeable small fraction project. 10 hasten correct any impression had reclaimed irrigated inception since Union worked diligently arid lands. Working districts, private interests ingenious constructing smaller tapping underground sources, attempting prevent saline would destroy soil agricultural purposes. called 'the blood State.' Competition natural resource provoked controversy amendments Constitution continual legislative activity. all surprising, putting together mosaic ensue. supra. 11 II. Scope Appeals Contracts. 12 appeals contest complete reap rewards therefrom provided respective 13 should noted appeal involving Agency, Number 125, does involve Project, lie within concerns uses coastal County. Ynez impounding Cachuma Reservoir. river slopes Pacific. Tecolote Tunnel deliver range lateral systems Goleta Carpenteria Districts. adoption 1948 based recommendation Division Resources Report stating 'an urgent immediate need substantial supplemental *. city critical situation time. county being seriously overdrawn. localities wells damaged intrusion.' H.R.Doc. 587, 80th Cong., Sess. While contract authorized 9(c) 1939 Act,5 our purposes identical discussed them. 14 remaining Lake, sites purchased outright. rights surrounding were supra, acquired States. installations are, course, valley. furnished Canal. supplied interesting note district never nor able right. 15 took exception provide, outline, after system 40 years. Incorporating requirements 1902,6 ownership. limitation applies only 'project water' previously existing unaffected thereby. 'Large landowners,' i.e., those who own land, wish must agree sell large years price, fixed appraisers, exclude potential enhancement price reason available. Large electing may sources. if designate holdings considered nonexcess, land terms contracts. 16 'distribution systems' require liquidation stated expenditure installments spread years, without accordance 9(d) 1939. 'water facilities,' employ liberal 9(e) Act.7 Repayment, included charge term and, using language 9(e), rate calculated return 'revenues least sufficient cover share maintenance charges deems proper, due consideration given works connected supplemented July 2, 1956, Statutes-at-Large 483, 43 485h—1. 'credit each year' 'so amount paid finds properly retroactive contract, equal owing expenditures irrigation, 'no component made furnishing also permits renewal reflect 'increases decreases construction, operation, improvement deterioration (district's) capacity.' addition, (to holders type subordinate) quantity project's available beneficial irrigable (within district) payment amount' III. Action Courts. 17 confirmation suits 122, 123, trial found proceedings leading execution invalid. reasoned 1902 'whenever conflict prevail.' light origin trustee express trust among beneficiaries. concluded applications beneficiaries incomplete, incipient conditional applied for' vested land. declared unenforceable conflicting Act. Application irrigator would, found, unconstitutional. 18 litigation, 124, mandatory order excluding 320 owned Albonicos District. unconstitutional issue. 19 case, action cases, upheld granted Master Contract ratified confirmed Department's Appropriation 1951. 64 595, 679. 20 4—3 vote, reversed judgment validating affirmed judgments. principal case confine discussion. majority agreed law. inapplicable improper therefore conclusion posited theory placed users. held, stood shoes grounds transfer title thereof, members. appears reached created 'debtor-creditor' relationship acting public utility conforming IV. Jurisdictional Question. 21 face dual jurisdictional question: California's statute unconstitutional, decision rest ground? Flournoy Wiener, 1944, 321 253, 262, 548, 552, 88 708. 22 read reasons, heretofore mentioned, invalidated contracts, conclude neither ground. duties matters final word, Clearfield Trust company 1943, 318 363, 63 573, 87 838. Our might dispel features thereof offensive. ground, namely, 160-acre limitation, alone requires consideration. Appellants claim statutes, 1902, re-enacted 46 Omnibus Adjustment 1926, relating limitation. us, court's effect, overrides sections Act, requiring affecting Turning applying 'trust theory' could acquire appropriative free people 'limited measure control' said, Cal.2d, page 620, 837, prevented imposition because trust, deprived acreage district. think holding unconstitutionality. This, basis appeal, earlier noted, certiorari granted. 24 equally clear judgments do gave nullified specific mandate 5, re-enactment 1926 even though doing play, immunize Court's review. Basically opens door leads striking down Secretary. 25 Nor suggestion agencies entering change conclusion. determine whether manner frustrate consummation behest. fact remains was, fact, invoked 8. 26 V. Laws 27 outset aside necessary unappropriated Cf. Nebraska Wyoming, 1945, 325 589, 611—616, 65 1332, 1347—1349, 89 1815. If insufficient, carry 739, 962, paying compensation therefor, either condemnation or, already taken, owners courts. see authority impose conditions condition funds, projects compliance reasonable requirements. And, again, enforcement impairs compensable property rights, recourse open absolute, statutes having thereunder believe erroneous insofar substantive concerned. 8, merely comply when, becomes therein. But acquisition confused projects. said 615, 1349: 'We suggest where regulation give way before inconsistent system.' prerequisite laid binding projects, '(n)o tract exceeding hundred sixty landowner nothing compels imposed To violate see, national policy century. Without passing coverage delicate federal-state relations field, intended override repeatedly reaffirmed 5. 29 From beginning program benefits number people, consistent, good. accomplished limiting ownership supplied. opened entry privately lands, Taylor, Excess Land Law: Execution Public Policy, Yale L.J. 477. 30 Significantly, particular exempted peculiar circumstances, always exemption enactment. September 3, 1954, 68 1190, exempting Maria applicability 'excess laws.'8 31 respect again taken thereunder. late 1944 Rivers Harbors Bill Senate refused, vigorous debate, concur conference report 90 Cong.Rec. 9493—9499. next Session disputed deleted bill promptly passed. Likewise, reported time similar here, wherein limitations fully incorporated form.' His 1950 1951 related Ivanhoe, here. he mentions individual users laws, advising 'given active attention. Five recordable delivery 3,570 executed project.' During reauthorized additional units added, October 14, 1949, 852; 416, 84th Sess., Pages 620—622; tember 26, 1036, August 1955, 69 719; 937—940, appropriations thereto annually. 32 congressional actions, cannot possibility foreclosed subsequent continuing ever Such record constitutes ratification administrative approval Fleming Mohawk Wrecking & Lumber 1947, 331 111, 119, 67 1129, 1133, 91 1375; Brooks Dewar, 1941, 313 354, 361, 61 979, 982, 85 1399; Swayne Hoyt Ltd., 1937, 300 297, 302, 57 478, 480, 81 659. 33 VI. Constitutional Issues. 34 Appellees urge, insertion denial process protection Fifth Fourteenth Amendments. They assert taking discriminate nonexcess landowner. agree. can doubt Government's general establish execute 'elected treat (the Project) 962. pursue 'clear' 'ample,' exercise 'to promote welfare large-scale reclamation, internal improvement.' Id., 738, supportable same Butler, 1936, 297 1, 65—67, 56 312, 319, developing expending acquiring purpose, promotion agriculture. Clause Article I, Constitution, IV, management disposal property. City 1940, 310 16, 29—30, 60 749, 756, 84 1050, 'power entrusted limitations. 'And courts say how administered. determine." 332 19, 27, 1658, 1662, 1889, Alabama Texas, 347 272, 273—274, 74 481, 482, 98 689. 36 Also beyond challenge property, privileges. Berman Parker, 348 75 98, 99 Power Comm. Idaho 1952, 344 17, 73 85, 97 15. lesson relevant interest objectives thereof. Conversely, compel prescribed Congress. Utilities 1958, 534, 446, 470. VI forbids supremacy action. considering appellees' constitutional contentions, recapitulate. multi-purpose nature. expense attributable recreation wildlife preservation nonreimbursable. remainder expense, reimbursable, divided estimates indicate 50 percent plus representing plants servic. pays charge. short, subsidy, recovered full. argue reasoning facilities, operating itself base item purpose. Hence true debtorcreditor maintained. facts Wickard Filburn, 1942, 317 131, 82, 92, apposite: 'It hardly lack subsidizes.' event, attack entirely deprive appellees benefited neighboring nearby recognized case. 712, 875, 883. Furthermore Chief Engineer testified Committee Lands 1944.9 themselves indirectly refer accrue, improvement, owners, declare words, level owner acreage, still his find substance contention 'possible severance' result damage constituting compensation. unnecessary discuss claims repeat connection therewith takes redress. 39 discrimination overlooks purpose designed. designed classification limit distributed greatest good individuals. insures go disproportionate few individuals holdings. prevents service speculative acts ceiling, participants, subsidy bestowed. necessary. pointed out answered lodged Secretary, passage, (1) include (2) contracting 'first supply,' (3) soon feasible obligation parties, crediting until, liquidated. negotiate incorporate foregoing amendments. view declarations privileges room objection ground infer entitled 40-year become indebtedness repayment. 41 leaves objections, failure recite definite sum facilities. possible executing today, exact reservoirs. shows original often bore little resemblance cost. accurately bound advance what proportion attributed uncertainties highly impractical, impossible, contract. Since charged due, difficult harm inconvenience occasioned delay. amounts credited obligations districts. district's 42 Second, effect therefor totally discharged. understand contend bearing renders untenable. For defect guarantee passage local distributing end contemplated regarding repaid. reality, repay systems. likely remain indebted Under circumstances retention systems, until discharged, seems consistent thought relationship. considerations, altogether defer another day. Any arbitrary accounting, trample appellees, improbable. seem untoward recipients huge bounty depend continued beneficience donor. physical impossibility withdraw administration farfetched foresee 'turning back it' allowing revert desert.10 prospect too improbable figure decision. 44 forth above, reversed. Reversed. FRANKFURTER decree competent jurisdiction. 649, amended, 524, 423e, 423e. applicable procedure, Cal.Water Code, 23225 (irrigation districts), Cal.Stat. 2780, 2798, Cal.Stat.1949, Page 18, West's Ann.Water Appendix (water agency). 5: '* No landowner, unless actual bona fide resident occupant residing neighborhood permanently attach payments made.' 389, 431, 431. substantially 53 1193, 59 75, 485h, 485h. 9(c), pertinent authorizes enter supply. alternative method repayment, whereby (T)he new division plemental covered subsection (d).' 8: 'That affect interfere Territory thereunder, Interior, carrying herein appropriator, user in, to, interstate stream thereof: Provided, appurtenant irrigated, basis, measure, right.' 390, §§ 372, 383, 383. recites: special project' utilized pumping reservoir.' H.R.Rep. 1098, 83d 2—3. 'There doubt, introduction surface consequent cessation direct table, quality, lower costs, all, assurance fall danger point.' Hearings S. 912, 1st 1221. Senator Gore (then Representative) compelling answer trepidations 1947: 'I conceive spend $384,000,000 building reclamation-irrigation world suddenly evil agent gotten bureau, turning turn greatly Nation stuffs wealth. N Dec. Immigration Nationality Decisions kind. *' Subcommittee House Appropriations Department 1948, 737, U.S.Code Cong.Service 467.

Classification Label: 3