Legal Document

357 U.S. 320 78 Supreme Court Reporter 1209 2 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1345 CITY OF TACOMA, Petitioner,v.The TAXPAYERS and Robert Schoettler, as Director of Fisheries, John Atlantic Biggs, Game, the State Washington, Washington. Number 509. Argued April 30, 1958. Decided June 23, [Syllabus from pages 320-321 intentionally omitted] Mr. Northcutt Ely, D.C., for petitioner. Oscar or Haw. Hawai‘i KFH45 A2 Davis, Federal Power Commission amicus curiae, by leave Court. S. Lynch, Jr., E. Pacific KF135 P2 Donnelly, Olympia, Wash., respondents. Justice WHITTAKER delivered opinion 1 This is latest episode in litigation beginning 1948 which has been waged five tribunals produced more than 125 printed administrative judicial opinions. It concerns plan City Tacoma, a municipal corporation to construct power project on Cowlitz River, navigable water States, accordance with license issued under Act.1 The question presented decision here whether facts this case Tacoma acquired federal eminent domain capacity take, upon payment just compensation, fish hatchery owned operated virtue Act particularly § 21 thereof.2 cannot be built without taking because it necessarily must inundated reservoir that will created one project's dams. arisen following circumstances proceedings. Having earlier filed its declaration intention project,3 'municipality'4 December 28, 1948, Commission, s 4(e) Act,5 an application6 project, including two dams (known Mossyrock Mayfield) appurtenant facilities, River.7 3 development was proposed located at Mile 65 consist concrete dam across rising 510 feet above bedrock (creating covering about 10,000 acres extending miles upstream) integral powerhouse containing, initially, three generators each 75,000-kilowatt provisions fourth generator like capacity. Mayfield 52 240 reservoir, 2,200 13.5 upstream tailwaters Dam, would inundate State's hatchery) 40,000 kilowatt-capacity project—estimated cost $146,000,000, $9,465,000 devices enable anadromous pass spawning grounds their young sea, new hatcheries—would thus have initial produce 345,000 kilowatts 474,000 horsepower, eventually 460,000 632,000 electrical energy. 4 ordered public hearing determine should issue, gave notice Governor In response, Attorney General intervening petition, names Directors Fisheries alleging substance Departments Game are subdivisions sovereign State, respective charged duty enforcing laws concerning conservation game; fish-handling facilities destroy fishery resources State; construction violate R.C.W. 90.28.060, requiring permission any storage 10 acre-feet water, 75.20.010, prohibiting higher 25 river tributary Columbia, downstream McNary within migratory range fish; '(t)hat reservoirs valuable irreplaceable well * productive areas.' City's answer admitted Reservoir. also appointed Special Assistant represent all persons whose views were conflict official position. 5 Upon issues framed hearing, consuming 24 days, conducted examiner, throughout his designated assistant, actively participated opposition application, General, purpose stated, proceedings before Commission. Thereafter November 1951, rendered opinion,8 findings,9 order granting license.10 Matter 92 P.U.R.(n.s.) 79. petitioned rehearing denied. 6 Pursuant 313 Act, 16 Code KF62 825l, Annotated KF65 U5 proper name behalf review Commission's Appeals Ninth Circuit. intervened. there challenged authority issue principally had not complied applicable state nor obtained permits approvals required statutes;11 'Tacoma, creature act policy derogation laws' (emphasis added); evidence sufficient sustain findings order. Appeals, holding 'state prevent issuing bar licensee acting build stream since dominion States' ample order, affirmed. Department versus Comm., 9 Cir., 207 Reporter, 2nd 391, 396. (Emphasis added.) then writ certiorari 347 936, 74 626, 98 L.Ed. 1087. 7 While petition pending Circuit, City, February 3, 1952, commenced action Superior Pierce County, against taxpayers seeking judgment declaring valid large revenue bonds, authorized ordinance (No. 14386) January 9, sold finance project—a proceeding specifically 7.25.010 through 7.25.040. As those statutes court named representative class defendants counsel who demurred complaint. cross-complaint (reasserting substantially same objections they made in, rejected by, review) demurred. judge sustained Taxpayers' demurrer dismissed suit.12 appealed That court, justices dissenting, reversed remanded cause instructions overrule proceed further consistently court's opinion. Taxpayers 43 Wash.2d 468, 262 214.13 8 Following 21, 1955, accepted bids block bonds totaling $15,000,000, next day awarded contracts Dam aggregating $16,120,870. Two days later, 24, 'acting State' moved for, obtained, ex parte, enjoining determination suit, sell bonds. modified permit such work manner interfere bed waters River. Promptly thereafter began limits injunction, expended $7,000,000 thereon time completely enjoined later stated. On July 27, amended complaint merely assert application opposed had, basis delays entailed litigation, entered 1954, amending Articles 28 33 commencing completing 31, 1958, respectively, pertinent accordingly other minor respects. August 8, motion (in Game), 'in capacity,' formally defendant action. answered, again reviving previously navigation River violation 80.40.010. pretrial conference found only open trial limited issue. 11, 1956, tried testimony taken solely March 6, proscribing (note 11) 'inapplicable,' but 'is illegally excess presently reason said impede, obstruct contrary proviso 80.40.010 et seq.,' favor project. appealed, Taxpayers, cross-appealed, 7, 1957, court,14 49 781, 307 567. agreed Washington 'inapplicable insofar terms conditions (the City's) License officials exercise veto over project' (id., page 801, 577), disapproved sustaining objection However, declared premise though based erroneous ground if correct pleadings established proof, held that, Legislature given right operate production distribution electric general condemnation purposes, 'the legislature (not) expressly condemn state-owned land dedicated use (and) city endowed (State) statutory hatchery)'; (may not) receive use, absence statutes' 'inability so can remedied legislation expands capacity.' original.) Id., 798, 799, 576, 577. This, said, government control phases activity streams, power, act, delegate right. questions when requires property use.' 576. We granted certiorari. 355 888, 262, 188. 11 At outset respondents ask dismissal our moot. They argue evident completed date now stated completion. There no merit contention 13 41 Statutes-at-Large 1071, 806, provides period completion carried good faith reasonable diligence may extended commission incompatible interests,' extension these 12 come core controversy between parties, namely, constructing delegated take hatchery—essential project—in conferring authority. threshold petitioner, asserts express 313(b) 825l(b), finally determined (State Dept. 391) Court's denial (347 1087); respondents' cross-complaints, thereon, subsequent bond validation suit courts impermissible collateral attacks final Appeals. If assertion correct, us reversed, obviously one, not, case, re-examine decide competent jurisdiction parties. turn examination petitioner's contention. 14 longer Government Commerce Clause Constitution (Art. I, cl. 3) dominion, exclusion States. Gibbons Ogden, Wheat. 1, 196, 23; New Jersey Sargent, 269 328, 337, 46 122, 124, 70 289; Appalachian Electric Co., 311 377, 424, 61 291, 307, 85 243; First Iowa Hydro-Electric Cooperative 328 152, 173, 66 906, 916, 90 1143; Twin 350 222, 224—225, 76 259, 260 261, 100 240. Congress elected detailed comprehensive plan15 Nation's resources, prescribed administered supra; supra. 15 Section claim finality depends, provides, part: '(b) Any party chapter aggrieved obtain appeals circuit wherein utility relates filing 60 after rehearing, written praying set aside whole part. A copy shall forthwith served member thereupon certify file transcript record complained entered. exclusive affirm, modify, No considered unless urged failure do. finding facts, supported substantial evidence, conclusive. decree affirming, modifying, setting aside, part, final, subject certification provided sections 346 Title 28.' 825l(b). 17 statute simple words plain meaning leaves room doubt congressional intent. hardly doubted Congress, constitutional powers, prescribe procedures which, orders had. Cf. National Labor Relations Board Cheney California Lumber 327 385, 388, 553, 554, 739. So acting, specific, complete mode orders. Safe Harbor Water Corporation 124 800, 804, denied 316 663, 62 943, 86 1740. review, raised 'shall part,' '(t)he *.' thereby precluded de novo parties inhering controversy, modes review.16 Hence, directs issued, legal competence execute terms, all. For 'exclusive jurisdiction' orders, final,' certification. Such need labeled res judicata, estoppel, waiver either courts. 18 vigorously objected issuance grounds, among others, and, hence, require sought; respecting performance acts incident thereto 11); engage business. contentions support 9) that: 19 'The applicant submitted satisfactory compliance requirements necessary effect purposes project;17 municipality 3(7) Act.'18 20 foregoing raising others. Thereafter, 313(b), After full did disturb findings, affirmed modification. 391. particular mention of, approved, finding, rephrased 'such law as, judgment, 'appropriate States." 22 Moreover, briefs reversal 'has shown, could show, (it) availed itself (and that) (under license) laws.' rejecting contentions—that does 'any 'cannot act' license—the said: 23 'Again, we There, too, chief came itself. Yet, permitted inconsistently creator, prevail obtaining license. 'Consistent supra, conclude domination States.' think recitals show very stand litigated decided judgment. But even might thought been, aside' And reserve point, another round piecemeal remaining silent while reverse court—which therein Appeals' rendered, 26 These precisely resulted affirmance. result, declared, final.' 27 say therefore, question, left litigation. rely language opinion: 'However, do touch initiate once granted. limitations Charter, instance, indebtedness limitations. Questions nature inquired into relevant practicability plan, adjudicate them.' 396—397. 29 believe error. questioned refers possible 'indebtedness limitations' Charter 'questions nature,' perform, rights specified otherwise doubtful, certain single findings; modification; sentence immediately preceding language: 30 effective, citizens, they, common citizens represented proceedings, it, bound Wyoming Colorado, 286 494, 506—509, 621, 624—627, 1245; cf. missouri Illinois, 180 208, 241, 331, 45 497; Kansas 185 125, 142, 552, 558, 838, 206 46, 49, 655, 656, 51 956; Georgia Tennessee Copper 230, 237, 618, 619, 1038; Hudson County company McCarter, 209 349, 355, 529, 531, 828; Com. Pennsylvania West Virginia, 591, 595, 658, 663—664, 67 1117; North Dakota Minnesota, 263 365, 373, 44 138, 139, 68 342. 31 certiorari, became binding Tacoma; claims asserted cross-complaints upon, Therefore, inconsistent 32 Reversed remanded. HARLAN, concurring. 34 & N Dec. Immigration Nationality Decisions join opinion, deem appropriate my understanding what held. governed Tacoma's hatchery, question. therefore foreclosed relitigation present case. understand suggest deemed controlling, undertaken so, re-examination 1063 seq., 791a seq. 1074, 814, 814. 18, 1949, ruled below affect interstate commerce Act. 1075, 816, 816. "Municipality' (as used Act) means city, county, irrigation district, drainage political subdivision agency thereof carry business developing, transmitting, utilizing, distributing power.' 3(7), 1063, 796(7), 796(7). By cities towns legally 'construct, purchase, acquire, add to, maintain, works, plants, furnishing town inhabitants, persons, gas, electricity, lighting, heating, fuel, 80.40.050. exercised powers 1893. 1065, 797(e), 797(e). subsection, far pertinent, provides: hereby empowered— '(e) To licenses association organized thereof, constructing, operating, maintaining dams, conduits, reservoirs, powerhouses, transmission lines, works convenient improvement development, transmission, utilization across, along, from, streams bodies regulate foreign nations several accompanied maps, plans, specifications estimates 9(a) 1068, 802(a), 802(a). Those plans clear Columbia Southwestern drains area 2,490 square western slope Cascade Range, flows westerly thence southerly confluence Longview mouth Columbia. conceded points projected point tidal average flow cubic per second. discussed length basic natural unobstructed propagation contention, concluded: posed appear rather benefits (needed defense purposes), important flood benefits, incidental recreation intangible balanced some losses, retention condition until fairly near future economic pressures force utilization. With testing experimentation cooperation interested agencies, protective program evolved undue loss values relation values. reasons forth accompanying order.' 79, 85. things, site interests (see §§ 797(e) 816); critical shortage exists west side Range; 'will exceptionally addition Northwest Region supply'; 'none hydroelectric projects suggested lieu Project constructed quickly economically Project'; approved Chief Engineers Secretary Army 4(e), 797(e)); financially feasible; 9(b), 802(b), 802(b)) Act'; '(u)nder hereinafter included license, best adapted improving developing waterway involved benefit commerce, water-power preservation wildlife beneficial uses recreational purposes.' See 10(a), 803(a), 803(a). 50 years 1952—the first month ordinance, 14386, enacted accepting conditions. 1067, 799. incorporated specifications, 9(a), 802(a)); reference 799); effective 36 months 13, 806); construct, maintain hatcheries but, doing make studies, tests experiments Fish Wildlife Service effectiveness submit therefor approval. relied 75.20.050, diversion permit; 75.20.100, approval protection connection dams; migration fish. Thurston transferred. answering note 'are (State's) police power' 483, 222) 'must City) 477, 219), '(T)hese direct invalid supremacy clause contained Article VI constitution (w)here, here, reconciled together, give way.' 222. 'being state, defy creator' 491, 227), defines term authorizes entity. Appellant respect transmitting power. commission, hold appellant position act.' 492, 227. somewhat differently constituted October 14, 1953, reversing 214. summary see 181, 25, 920. Cf., e.g., Myers Bethlehem Shipbuilding Corp., 303 41, 48—50, 58 459, 462—463, 82 638; Corrick, 298 435, 56 829, 80 1263; Terminal Boswell, 75 U.S.App.D.C. 235. 9(b) 802(b). Under 'municipality' means, 'competent (of State) disputed 80.40.050 business, done many years. fact brief goes much further, saying '(i)mplicit ruling licensed, necessitate destruction state's hatchery,' 'Tacoma way damaged.'

Classification Label: 9