Legal Document

438 U.S. 696 98 Supreme Court Reporter 3012 57 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1052 UNITED STATES, Petitioner,v.State of NEW MEXICO. Number 77-510. Argued April 24, 25, 1978. Decided July 3, Syllabus The States, in setting aside the Gila National Forest from other public lands, held to have reserved use water out Rio Mimbres only where necessary preserve timber forest or secure favorable flows, and hence not a right for aesthetic, recreational, wildlife-preservation, stockwatering purposes. That this was Congress' intent is revealed limited purposes which national system created deference state law Organic Administration Act 1897 legislation. While Multiple-Use Sustained-Yield 1960 intended broaden forests had previously been administered, Congress did intend thereby reserve additional withdrawn under Act. Pp. 698-718. 90 N.M. 410, 564 Pacific Reporter, 2nd 615, affirmed. James W. Moorman, Washington, D.C., petitioner. Richard Atlantic Simms, Santa Fe, N.M., respondent. John U. Carlson, Denver, Colo., Twin Lakes Reservoir & Canal Co., et al., as amici curiae. Mr. Justice REHNQUIST delivered opinion Court. 1 rises southwestern highlands New Mexico flows generally southward, finally disappearing desert sink just north Mexican border. river originates upper reaches Forest, but during its course it winds more than 50 miles past privately owned lands provides substantial both irrigation mining. In 1970, stream adjudication begun by State determine exact rights each user Mimbres.1 claimed Forest. District that such "as may be [the land was] withdrawn," these include recreation, aesthetics, wildlife preservation, cattle grazing. appealed unsuccessfully Mexico. Valley Irrigation company versus Salopek, 615 (1977). We granted certiorari consider whether applied correct principles federal determining petitioner's Mimbres. 434 1008, 716, 54 750. now affirm. 2 * question posed case—what quantity water, if any, when set 1899—is implied power. California 645, at 653-663, 2985, 2990-2995, 1018, we occasion discuss respective authority Federal Governments over waters Western States.2 has concluded whatever powers acquired their result congressional Acts admission into Union, however, relinquish unappropriated future on appurtenant domain specific Winters 207 564, 577, 28 207, 211, 52 L.Ed. 340 (1908); Arizona California, 373 546, 597-598, 83 1468, 1496-1497, 10 542 (1963); Cappaert 426 128, 143-146, 96 2062, 2071-2073, 48 523 (1976). 3 Recognition power itself apart domain, does answer amount used. Substantial portions Indian reservations, reserves, parks, monuments. And frequently achieve reservations are made. But seldom expressly lands. If were abundant, silence would pose no problem. arid parts West, claims inescapably vie with private quantities found rivers streams. This competition compounded sheer form brightly colored swaths across maps States.3 4 Congress, giving President purposes, impliedly authorized him "appurtenant extent needed accomplish purpose reservation." Cappaert, supra, 138, S.Ct., 2069 (emphasis added). See U.S., 595-601, 1495-1498; Eagle County, 401 520, 522-523, 91 998, 1000-1001, 278 (1971); Colorado River Water Cons. Dist. 424 800, 805, 1236, 1240, 47 483 many contours what come called "implied-reservation-of-water doctrine" remain unspecified, repeatedly emphasized "only fulfill reservation, more." 141, 2071. 600-601, 1497-1498; 523, 1001. Each time doctrine," carefully examined asserted reserved, without reservation entirely defeated.4 5 careful examination required because implied, rather expressed, history field federal-state jurisdiction respect allocation water. Where addressed entities must abide law, almost invariably deferred law.5 653-670, 678-679, 2990-2998, 3002-3003. very created, reasonable conclude, even face express areas, valuable secondary there arises contrary inference intended, consistent views, acquire same manner any appropriator. 6 indeed appropriated funds acquisition used reservations. Thus, Park Service Aug. 7, 1946, 60 Statutes-at-Large 885, amended, 16 Code KF62 § 17j-2 (1976 ed.), appropriations "[i]nvestigation establishment accordance local custom, laws, decisions courts, including interests rights-of-way protection beneficial administration parks monuments." (Emphasis added.)6 agencies respons ble administering also recognized essential reservation.7 7 referred issues case Special Master, who diverting 6.9 acre-feet per annum domestic-residential use, 6.5 road-water 3.23 domestic-recreational .10 acre-foot "wildlife" purposes.8 Master specified amounts being stock watering an "instream flow" six cubic feet second "used" fish preservation. apparently believed all uses fell within doctrine, might needs, ordering submit report requirements one year his decision. 8 Luna County disagreed Master's legal conclusions, agreed Government should prepare covering support claim established minimum instream flow established, arising grazing permittees adjudicated "to permittee prior appropriation States." 9 decision contended entitled "aesthetic, environmental, recreational 'fish' purposes." 412, P.2d, 617. that, least before ultiple-Use 1960, 74 215, 528 seq. could insure conditions furnish continuous supply timber" upon basing flow. 412-413, 617-619. argued again disagreed, holding created. Id., 414, 619. II quantification critical importance where, noted earlier, scarce 50% available either through forests.9 When, Mimbres, fully appropriated, will require gallon-for-gallon reduction water-needy appropriators. reality escaped attention weighed what, forests. 11 contends fish-preservation An creation forests, claim. mid late 1800's, ravaged fear arose soon disappear, leaving shortage watersheds encourage while preventing floods.10 It fears 1891 "set reserve, . Territory having bearing part wholly covered undergrowth, commercial value not, reservations." Creative Mar. 1891, 26 1103, 471 (repealed 1976). 12 unfortunately solve problems expanding Nation. To dismay conservationists, new adequately attended regulated; fires indiscriminate cutting continued toll.11 anguish settlers, made indiscriminately. Cleveland, particular, responded pleas conservationists greater protective measures reserving some 21 million acres "generally settled" February 22, 1897.12 Cleveland's action drew immediate strong protest Congressmen felt "hasty ill considered" prove disastrous settlers living near lands.13 13 continuing three-fold. suspended President's Executive Order 22 1897; defined reserved; provided charter management economic June 4, 1897, 30 34, 473 ed.). provided: 14 "No shall except improve protect boundaries, securing necessities citizens ; provisions, 1891], authorize inclusion therein mineral therein, agricultural 35, codified, 475 ed.) 15 legislative debates surrounding predecessor bills demonstrate two purposes—"[t]o conserve people."14 Cong.Rec. 967 (1897) (Cong. McRae). Grimaud, 220 506, 515, 31 480, 482, 55 563 (1911). wildlife-preservation purposes.15 "The objects growth against destruction fire ax, preservation dependent. purpose, therefore, bill maintain conditions, excluding They nonuse, reasons." 966 17 Administrative regulations turn century confirmed purposes.16 18 Any doubt relatively narrow removed comparing broader language parks.17 1916, 19 "fundamental said monuments, scenery natural historic wild life provide enjoyment unimpaired generations." 39 535, 1, ed.).18 20 When confines forest, so directed, Lake Superior Forest: "In order shore lines, rapids, waterfalls, beaches features region unmodified nature, further alteration level lake authorized." 577b park legislation instructive comparison. 10, 1934, 400, 694 individual game sanctuaries, consent legislatures. specifically 23 "For providing breeding places birds, animals, chiefly suitable agriculture, authorized, recommendation Secretary Agriculture Commerce approval legislatures situated, establish proclamation certain areas sanctuaries refuges devoted increase kinds naturally adapted thereto." added.) 24 If, dissent contends, post, 722, "improve protect" wildlife, 1934 unnecessary. Nor dissent's position concern preserves "with legislatures." 25 As notes, creating ultimately become Yosemite Park, 1890 explicitly instructed Interior wanton inside taking "for merchandise profit." Oct. 1890, 2, 651. "the curiosities, wonders condition." By comparison, expressed generally. comments debate Cf. H.R. 119, 54th Cong., 1st Sess., 6410 (1896).19 B Not Government's recreation inconsistent failure recognize goals defeat create system.20 27 "[F]orests exert most important regulating influence rivers, reducing floods increasing low stages. conservation mountainous collect scanty regions North America can hardly overstated. With regimen streams replaced destructive spring, dry beds months irrigating needed, wide proposed impossible, supporting prosperous communities depopulated." S. Doc. 105, 55th (1897). "insured" "be domestic, mining, milling, laws wherein rules thereunder." 36, 481 provision evidence, principally means enhancing West. Government, us believe partially goal significant quite goal. Contract 29 passed "It policy administered outdoor range, timber, watershed, sections 531 title declared supplemental to, derogation of, forth [Organic 1897.]" give rise 1897. retroactive effect nor 1897." 413, 618. conclude agree expand States.21 32 establishes "are administered." directs administer those multiple-use sustained-yield basis. 10572, 86th (1960). benefits accruing 33 House Report accompanying legislation, indicates "fish" established" 34 addition sentence follow first section make clear declaration enumerated improving protecting cited act present exist listed bill. words, reason act." H.R.Rep. 1551, (1960), U.S.Code Cong. Admin.News Page 2380. 35 discussed "reserved doctrine built implication exception explicit areas. Without contrary, led enacting established.22 A mean loss domestic defeating principal after indication crucial reaffirming primacy flow, indicated opposite intent. III 36 What answers contention Mimbr permits owners graze various locations along since clearly foresaw purpose. courts allocated stockwaterers. agree. 37 put variety uses, stockwatering, direct land.23 take place defeated. course, enhanced placed probably stockwatering. among appropriators law. ed.).24 There histories need allocate task well suited. IV 38 principled faithful therefore Affirmed. 40 POWELL, whom BRENNAN, WHITE, MARSHALL join, dissenting part. 41 N Dec. Immigration Nationality Decisions implied-reservation sensitivity impact obtained general ante, 699, 701-702, 705. 11, cannot fairly read evidencing forests.1 42 do agree, still, silent, lifeless envisioned my view, consist fish—the wildlife—that inhabit them, trees, flowers, shrubs, grasses. hold much sustain plants. add word concerning Court's today particular flows. 43 My analysis begins statute. 475, pertinent part: 44 ." 45 Although statute artful, reading attribute three discerned gave wrote: 46 limits to: 1) 2) 3) furnishing timber." 617 given reading, stating 2380, quoted 714-715; accord, S.Rep. 1407, Note, Mexico's Forests Implied Reservation Doctrine, Natural Resources Judge 975, 991-992 "[T]he surprisingly attempts keep background, addressing footnote," Sotelo, 436 268, 283, 1795, 1804, 56 275 (1978) (REHNQUIST, J., dissenting), decides 'to boundaries,' or, ther 'for timber.' " Ante, 707 n.14 original).2 then concludes usable flora watershed. This, said. 49 believes "reading history." Ibid. matter me. From early times English included creatures live there. Manwood, Treatise Discourse Laws Forrest 1-7 (1598); Blackstone, Commentaries *289. themselves transplanted shores continent, see Lund, Early American Wildlife Law, 51 N.Y.U.L.Rev. 703 (1976), understanding includes remained mind. establishing passage exhibited directing "provide capture destruction, 651.3 Similarly, introduced Representative McRae relies construing statute, 707-708 n.14, directed resources, curiosities injury, waste, fire, spoliation, (1896). became substituted independent forest" clause together direction "make service namely, regulate occupancy thereon 551 Despite rephrasing, view Act, implement "forest agents, superintendents, supervisors, persons employed connection ways practicable, aid enforcement relation 1899, 1095. May 23, 1908, 259, 553 down day. See, e. g., 1928, 5, 701, 581d (authorizing annual "[f]or experiments investigations habits orest wildlife"); 29, 1944, 58 132, 583 units "in ample products; maintenance supply, regulation prevention soil erosion, amelioration climate, .") supplied.)4 53 One enactment simply serve preserves. wished generations. inconceivable sought inanimate components flora. Insofar holds otherwise, maligned Nation poorer, dissent.5 Contrary intimations, cf. 711-713, inconsistency between views underlying water—which system," 711-712—only benefit downstream reservation. consumptive use; subtract perfectly construed Court.6 dwell point, never concedes, correctly own theory, barred asserting erosion control basis watershed Brief Respondent n.11. proves, others, Court, find nothing bars right. suit initially filed 1966 enjoin alleged illegal diversions Mexico, pursuant Stat.Ann. 75-4-4 (1953), complaint-in-intervention seeking Rex Regina o tributaries. Under 666(a), "[c]onsent join defendant source," States. Div. 527, 1003, 284 (1971). Andrus Charlestone Stone Products 604, 2002, 570 (1978). percentage federally (excluding trust properties) ranges 29.5% Washington 86.5% Nevada, average about 46%. Of 33.6% owned. General Services Administration, Inventory Real Property Owned Throughout World 30, 1974, Pages 17, App. table 4. Because normally uplands flat originating flowing impressive. More 60% yield percentages range 56% Columbia-North resource high 96% Upper region. Grande region, lies, 77% runoff C. Wheatley, Corker, T. Stetson, D. Reed, Study Development, Management Use Public Lands 402-406, (1969). (1908), faced questions. First, Fort Belknap treaty, guaranteed Indians second, repealed admitted Montana Union later "upon equal footing original answering question, formed change Indians' "nomadic uncivilized" them "a pastoral civilized people." 576, 211. irrigate "practically valueless" "civilized thereon." thus "impair[ed] defeat[ed]." "it extreme destroyed took consideration grant, barren waste—took old habits, yet leave ones." finding lack evidence showing them." 598, 1497. disagreed: impossible great Department they unaware kind—hot, scorching sands—and people animals hunted crops raised." 598-599, pointed 599, "objects scientific interest situated controlled Government." Antiquities Pr servation 225, 431 Pursuant power, Devil's Hole monument. Hole, according Presidential Proclamation, 'a unique subsurface remnant prehistoric chain lakes Pleistocene Death System' "; contains peculiar race fish, zoologists demonstrated nowhere else world, evolved gradual drying up System isolated population ancestral common entire region.' 2066. concluded, pool interest, pupfish. able spawn die. monument proclaimed. 2070. went note "need preserved, intention interest. tailored injunction, appropriately, minimal need, curtailing pumping adequate implementing stated objectives Proclamation." Hearings 1275 Subcommittee Reclamation Senate Committee Insular Affairs, 88th 302-310 (1964) (App. B, supplementary material submitted Sen. Kuchel), listing statutes deferring Mining 1866, 9, 253, 28, 1958, 202, 72 1059, "recognize Texas development utilization control." 737, 526 authorizing investigation rights, purchase thereof forests." Before FPC Oregon, 349 435, 75 832, 99 1215 (1955) recognizing outside "Rights law." Manual (1936). modified decisions, still wherever possible. appropriate otherwise recognized, applicable relating use. programs, improvements, taken promptly rights. Handbook 2514 (Feb. 1960). based (16 [§] 481)." 2514.1 (Jan. facts, list current 226-227. object deletion court challenge brief Stetson n. Ise, Policy 62-118 (1972). 120-122. 129. doubled acreage then-existing reserves. id., 120. 130-139. objected viewed 129-130. major complaint rampant "no opportunity enlargement civilization agriculture mining." 1281 (Sen. Cannon). notes forbids timber," argues wording "improvement" "protection" third separate system. close reveals boundaries," history. Nothing suggests extremely broad. Indeed, primarily concerned limiting West merely boundaries"; improvement protection, supply. construction Congress; 1896 "That provisions approved March flow." Sess. (1896) Earlier bills, like less Explanations sponsors, Compare, example, 53d (1893) ("[N]o supplies people") sponsor's description bill, 2375 McRae) ("The authorizes people' "). 986 Bell); 987 Jones); 1593, (1896); 2435 McRae); 2437, 52d (1893); 1002, (1892). According 1901 Regulations Department, "Public permanent insuring Circular, L.D. (1900). Twelve years later, Chief Forester elaborated forests: resources production aim essentially different park, comes aesthetic grounds." Agriculture, 10-11 (1913). Congressman introducing "not dealing vast difference." (1893). 1906 transferred Transfer 1905, 628, exclusively Interior. difference points explained Act: unanimous committee conflict departments [of Agriculture] nature interfere organization operation entertainment, assets, strictly utilitarian vastly known segregation national-park necessarily involves exists, en oyment privileges requires moderate-priced transportation hotel facilities. always kept mind primary land, contributing wealth 700, 64th (1916). enabling intimate latter statutes. several spoke floor save supply." 1007 Ellis). 1399 Loud). assured ditches carry agricultural, milling uses. Right-of-Way Permit 946 seq.; 1901, 959; 524 evidenced nonforest sources municipal supplies. 1940, 224, 552a 1924, "streams navigation irrigation"). argue Instead, confirms broad 53-56. demonstrates, enhancement supply—and administered. 2377. Even expanded subordinate dating 1960. subsequent apply. non-use," McRae), instead opened forests' "pasturage." 1006 Ellis); 1011 De Vries). hopefully permitted Acts, "any lawful subject Agriculture. pasture sheep will, restraint, seriously accomplishment established. regulated pasturage attained statute." 515-516, Light 485, "All boundaries seizing italicized wording, users—in case, ranchers—outside structure Contemporaneous preclude 481. system, 18, 1101, "public irrigation, "Provided, way located proper occupation privilege herein co trol Territories." administrative reflected "control water" Territorial 168, 169-170 (1894). Haw. Hawai‘i KFH45 A2 Sinclair, 573, 574 Only few reaffirmed state-law Feb. 26, ch. 335, reservoir sites charges coming whole occupied Territories reservoirs situate." 661, 2994, "was majority [this proviso] unnecessary excess caution." belief exclusive distribution 661-662, n.16, 2994-2995 n.16. officials responsible confirm began charging length ditches, flooded, advantageous locations, "water State, R.Doc. 6, 59th 273 (1907). States' Act's passage. purports 713-715, portion appears dicta. "[t]he 713 n.21. Likewise, "[n]o 12, supplied); ("questions presented"). gone far suggest presumably priority date Opposition 16-17. Read context, statement "does 1897," 618 (1977), 713, —a proposition think 713-714 fact, show ambivalence whether, one. 711-713. "An tracts 650 supplied). carved until 1905. 702-703, designated Sierra modern interdependent, dynamic community plants animals: community, then, consists assemblage environment air, soil, organisms interrelated directly indirectly virtually every organism community. health welfare dependent factors them; conditioned considerable degree biotic itself. plants, environment—including water—constitute complex ecological factor by, comprising complex." Spurr, Ecology 155 (1964). Gosz, Holmes, Likens, Bormann, Flow Energy Ecosystem, 238 Scientific 92-102 doubtful prizes highly flourish complement wildlife. recognition science vital interdependence discovery. (1598). No waterflow sufficient true situations. opinion, it, recognizes increased powerless act. upstream allowed divert survival wildlife—including streams—would endangered. rue circumstances adversely affect forest. manifestly

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