Legal Document

529 U.S. 728120 S.Ct. 1815146 L.Ed.2d 753 SyllabusNOTE: Where it is feasible, a syllabus (headnote) will be released, as being done in connection with this case, at the time opinion issued. The constitutes no part of Court but has been prepared by Reporter Decisions for convenience reader. See United States v. Detroit Timber & Lumber Co., 200 321, 337. SUPREME COURT OF THE UNITED STATES PUBLIC LANDS COUNCIL et al.v.BABBITT, SECRETARY INTERIOR, al. CERTIORARI TO APPEALS FOR TENTH CIRCUIT No. 98_1991. Argued March 1, 2000 Decided May 15, Taylor Grazing Act, inter alia, grants Secretary Interior authority to divide public rangelands into grazing districts, specify amount permitted each district, and issue leases or permits "settlers, residents, other stock owners," 43 U.S.C. § 315 315a, 315b; gives preference respect "landowners engaged livestock business, bona fide occupants settlers, owners water rights," §315b; specifies that privileges "shall adequately safeguarded," creation district issuance permit does not create "any right, title, interest, estate lands," ibid. Since 1938, conditions placed on have reflected privileges' leasehold nature, regulations effect preserved Secretary's (1) cancel under certain circumstances, (2) reclassify withdraw land from devote more valuable suitable use, (3) suspend animal unit months (AUMs) event range depletion. Petitioners, ranching-related organizations, challenged several 1995 amendments regulations. District found four new unlawful. Tenth Circuit reversed three them, upholding changed definition "grazing preference," CFR 4100.0_5; those who are "engaged business" qualify permits, §4110.1(a); granted title all future "permanent" improvements, §4120.3_2. Held: regulatory changes do exceed Act authority. Pp. 10_21. (a) Section 4100.0_5's preference" violate 315b's requirement privileges" "be safeguarded." Before its amendment, §4100.0_5 defined "the total number [AUMs] lands apportioned attached base property owned controlled permittee lessee," version refers only priority, specific AUMs, adds term, "permitted use," which forage "allocated by, guidance an applicable use plan." definitions §315b. First, §315b's words "so far consistent purposes" "issuance permit" creates "right, estate" make clear ranchers' interest stability absolute free reasonably determine just how, extent which, safeguarded. Moreover, since Congress itself directed development plans, their allocation process, difficult see how definitional change simply using such plans could itself, without more. Given broad discretionary powers Secretary, must read here granting him least ordinary administrative leeway assess "safeguard[ing]" terms Act's purposes provisions. Second, pre-1995 AUM system petitioners seek "safeguard" did offer them anything like security, had well-established cancel, modify, decline review including power so pursuant plan. Third, themselves automatically bring about self-executing would significantly diminish security privileges. Department represents merely clarify terminology. seem tie explicitly than old. However, Bureau Land Management covered nearly 20 years, yet ranchers provided single example interaction plan jeopardized might jeopardize security. A particular lead denial provided, question whether "adequately They not. 10_15. (b) deletion phrase §4110.1(a) statutory limitation "stock owners." 315b, two sentences after business." This indicates intend phrases synonyms. Neither legislative history nor basic purpose suggests limit business was intended term owner." underlying concern amendment scheme end allowing individuals acquire few livestock, obtain conservation, then effectively mothball permit. remaining regulations, suspended encompass situation describe. 15_19. (c) 4120.3_2, permanent fences, wells, pipelines, made cooperative agreements Government shall name States, Act. Nothing statute denies decide when grant improvements. Any person remains negotiate upon he compensated his work, either 19_21. 167 F.3d 1287, affirmed. Breyer, J., delivered unanimous Court. O'Connor, filed concurring opinion, Thomas, joined. Opinion 1 NOTICE: subject formal revision before publication preliminary print Reports. Readers requested notify Decisions, Supreme Washington, D. C. 20543, any typographical errors, order corrections may goes press. 98_1991 2 COUNCIL, al., PETITIONERSv.BRUCE BABBITT, 3 ON WRIT 4 [May 2000] 5 Justice Breyer 6 case requires us interpret provisions 1934 48 Stat. 1269, seq. Petitioners claim §§4100.0_5, 4110.1(a), 4120.3_2 (1998), exceeds Interior. We disagree hold 7 * begin brief description background, provisions, related practice. 8 enactment marked turning point western rangelands, vast, dry grasslands desert stretch Nebraska, Kansas, Texas Sierra Nevada. Ranchers once freely grazed publicly herds moved place place, searching grass water. But population growth followed Civil War eventually doomed unregulated economic freedom. 9 era began 1867 first successful long drive cattle north Texas. Cowboys regularly driving large year through thousands miles federal railheads Abilene, Kansas. From there towns along rail line, trains carried live newly opened eastern markets. drives initially brought high profits, attracted home Indian tribes buffalo. Indeed, early-1880's boom market saw Great Plains grow well beyond million. R. White, "It's Your Misfortune None My Own": History American West 223 (1991); generally, E. Osgood, Day Cattleman 83_113 (1929); W. Webb, 205_268 (1931). 10 meant competition ever-scarcer grass. And intensified arrival sheep 1870's. Many believed were destroying range, killing fragile plants cropping too closely. increased forage, droughts, blizzards, homesteading, aggravated natural scarcity. led, turn, overgrazing, diminished hostility among competitors-to where violence "wars" broke out, between ranchers, homesteaders, fenced cut fences protect open range. Gard, Frontier 81_149 (1949). These circumstances led calls law regulate free. 11 early 1878 legendary southwestern explorer, Major John Wesley Powell, fearing monopoly, wrote homesteading laws work pressed enact "a general _ provide organization pasturage districts." Report Lands Arid Region H. Exec. Doc. 73, 45th Cong., 2d Sess., 28 (1878). 19th century on, Members introduced legislation kind, often Presidential support. In 1907, President Theodore Roosevelt reiterated Powell's request urged pass "provide control pasture West." S. 310, 59th (1907). political opposition regulation strong. attributed "those homes land, own wandering bands driven hither thither eat out render worthless real maker"; men already obtained great areas object because break these big now over they actually own." Ibid. Whatever opposition's source, bills reflecting approach become until 1934. 12 By 1930's, diminished. Population growth, competition, inadequate consequences both serious apparent. With horrifying drought came dawns day dust storms swept devastating Dust Bowl one Senator most tragic, impressive lobbyist, ha[s] ever come Capitol." 79 Cong. Rec. 6013 (1935). acted; June 28, 1934, Franklin signed law. B 13 act seeks "promote highest lands." 315. Its goals "stop injury" "overgrazing soil deterioration," improvement development," "to stabilize industry dependent range." 1269. graze livestock," charge "reasonable fees" land. 315b. It given within near" "who landowners rights." And, particularly relevant here, adds: 14 "So subchapter, recognized acknowledged safeguarded, C 15 delegated enormous task. To administer needed bounds capacity, capacity applicants. soon set encompassing 140 million acres, 1936 created 37 Ann. Rep. (1935); Calef, Private Public 58_59 (1960). advisory boards up local called further help. App. 809_811 (Rules Administration Districts (Mar. 2, 1936)). Limited department resources enormity task effective governing body district." supra, 60; accord, P. Foss, Politics Grass 199_200 16 1937 rules Those many maintained private during year, while farther afield times. consequently gave also "base property," i.e., (or rights) sufficient support herds, five years prior act's enactment. 818_819 (June 14, 1937)). second nearby "base" lacking use. third property, nomadic herder. lower categories divided left satisfaction higher claims, system, effect, awarded 63 (quoting Division Director F. Carpenter's remarks "not individuals, "build [the] give value"). 17 As allocations determined, measuring "animal months" (AUMs), right sustain cow sheep) month. Permits valid usually renewed, suggested Law Review Commission, One Third Nation's 109 (1970). nature privileges; fact landlord basically discretionary. 1938 present retained fail renew, lease various reasons. 18 if, example, holder persistently overgrazed lands, lost failed permit, comply Range Code. See, e.g., 160.26(a)_(f) (1938); Interior, Federal Code §§6(c)(6), (7), (10) (1942) (hereinafter 1942 Code); §§161.6(c)(6)_(7), (10)_(12) (1955); §§4115.2_1(d), (e)(7)_(11) (1964); (1977); 4170.1_2 (1994); (1998). 315f later planning mandated 1712 (discussed infra, 8_9) authorized altogether 160.22 §6(c)(4); 161.6(c)(5) §§4111.4_2(f), 4115.2_1(e)(6) §§4111.4_3(f), 4110.4_2(a) depletion, separate authority, take above, reduce allowed suspending AUMs "in whole part," "for necessary." 4115.2_1(e)(5) 160.30 (1938) (reservation (b)); §6(c)(8); 161.4(8) §§4111.4_3, 4110.3_2 19 reduced individual last 1964 notion "active AUMs," minus "suspended" due capacity. Thus, received, say, 3,000, 2,000, 1,000 respectively, find two-thirds 33% reduction district's "suspend" one-third allocation. "active/suspended" assured rancher, however, capacity-related proportionately holders, 4111.4_2(a)(3) (1964), try restore should increase, §4111.4_1. practice, active declined dramatically steadily (from 1953 1998) following chart shows: 21 [Graphic omitted; printed opinion.] 22 Despite reductions grazing, some improvements passage act, 374_379 (Department 50 Years 1934_1984), remained what considered unsatisfactory condition. 1962, congressionally survey 16.6% excellent good condition, 53.1% fair 30.3% poor 62 (1962). 1978 determined "vast segments condition." 92 1803 (codified 1901(a)(1)). D 23 1960's, recover, fees 50% cents 30 per AUM/year), thereby helping capture little costs imposed 66 (1963). 1976, enacted law, Policy 1976 (FLPMA), 90 2744, 1701 seq., instructed develop districtwide based concepts "multiple use" (use purposes, recreation, timber, minerals, watershed, wildlife fish, scenic, scientific, historical usage), §1702(c), "sustained yield" (regular renewable resource output perpetuity), §1702(h). FLPMA strengthened Department's existing remove add modification plan, §§1712, 1714, specifying holders retain "first priority" renewal continued "available domestic grazing." §1752(c). 24 1978, were, substantially amended Fed. Reg. 29067. tied validity giving suspend, modify increases decreases acreage available planning. §§4110.3_2(b), 4110.4_2 (1978); 25 That same again period 1979 1986. Rangelands Improvement 1905. However neither Acts 1970's modified case. E 26 arises 60 9894 (1995) (Final Rule). represent stated effort "accelerate restoration" rangeland, rangeland management program "more compatible ecosystem management," "streamline functions," "obtain reasonable compensation 58 43208 (1993) (Proposed final form emphasize "stewardship" increasing accountability holders; broaden membership boards; rules; practice closer conformity Forest Service practices. 9900_9906 (1995). 27 Council nonprofit organizations members lawsuit against defendants Court, challenging court 929 Supp. 1436, 1450_1451 (Wyo. 1996). Appeals part, four. 1289 (CA10 1999). (which we describe below) preference"; permits; judge appeals dissented promulgate F.3d, 1309_1318. certiorari consider Secretary. 528 ___ (1999). II attack foremost. Their relies provision stating safeguarded . _" AUM-denominated granted. 29 lessee." 4100.0_5 (1994). definition, longer "apportioned," speak AUMs. defines 31 superior priority position others receiving lease. 32 "omits reference specified quantity forage." 9921 property. 33 allocated of, allotment expressed AUMs." 34 old rights, refers, rancher's (emphasis added). therein lies concern. 35 refer much forth Part I. view, expectations privileges"; relied expectations; "safeguar[d]" reliance. Supported farm credit associations, argue defining relation undermine say content predict easily changed. Fearing resulting uncertainty discourage lenders taking mortgages ranches loans, conclude threaten stability, possibly viability, ranches, thus previously "recognized acknowledged." Brief 22_23. 36 persuaded argument qualifies duty referring directly efforts implement them. full subsection says: subchapter 315b 38 subchapter" warning cannot absolute; light purposes. Of course, include "stabiliz[ing] industry," "stop[ping] injury preventing overgrazing "provid[ing] th[e] orderly improvement, development" 1269; 4. 39 preserve, improve, rangelands. 1701(a)(2), 1712. so, Cf. §§315, 315a (authorizing establish districts discretion" added), "make protection, administration, regulation, districts"). 40 security-not even proportionate shares suggested. discussed permit's if privileges, violated (collecting citations 1938_1998). always FLMPA discretion, examine classify production agricultural crops [grazing]"); 1752(c) remain accordance plans" added)). consistently reserved accordingly. 6_7 citations). Secretarial adoption diminishment-of-security best matter degree. 41 said "merely clarification terminology." 9922 assures Solicitor General "preserve elements framework." Opposition 13, 14. 42 making sweeping eliminating concept "suspended use"; prompted concerns. comments, mind. 59 14323 instead "continue additional allotment. Suspended provides important accounting past ranching community insignificant workload agency." Management, Rangeland Reform '94: Final Environmental Impact Statement 144 44 land-use But, pointed permissible points ago, "all BLM states plans," issued renewed conform them." 26. Yet An amicus group Farm Credit Institutions says "threate[n]" "lending policies." Amicus Curiae 3. explain why state will, fact, stop lending ranchers. 45 recognize pre-existing district. arguably provided. affected challenge courts lawfulness context. confers less-than-absolute enjoyed, relatively small differences create, 46 focuses limits ." 1936, requirement, limited eligibility "ow[n] livestock." 808 1942, regulation's wording business," §3(a), 1994. eliminates seeming eligible otherwise qualified applicants engage business. 4110.1(a) 47 radical text suggests. rule deletes entire §4110.1, seems require applicant "own omission, standing alone, facially invalid, statute, promulgated guide discretion exercising need restate language. Ultimately thereunder constrain issuing permits. continues authorization "bona Nor necessarily widespread owners" continue enjoy section mandates accord settlers." language extremely 5. 49 nonetheless contend violates owner," "commercial owner" commercial owner owns engages Hence, argue, lacks allow apply obvious convincing indication treat such. Just that, (i.e., owners), §315b Why (as implies) nothing? Nordic Village, Inc., 503 30, (1992) ("[A] must, possible, construed fashion every word operative effect"). shows expected ordinarily show requirement. 903, 73d (1934); Hearings 2835 6462 House Committee Lands, 1st 96 (1933_1934); Senate Surveys, (1934). statute's sets different mean thing. written mandate actively involved absolutely excluding possibility others. exceeded statute. 51 qualifications lands. "individuals owning quantities [will] though nominal livestock-all 47_48. charge, "acquire amounts conservation permit." Id., 48. 52 this. regular §§4130.2(a), 4130.2(g) New held unlawful Appeals, 1307_1308, decision. 53 encompasses regard former, established 4110.2_2(a) (1998) Permitted symbolic upper limit. Under substantial For prohibit "[f]ailing consecutive fee years." §4140.1(a)(2). If portion §4170.1_2. On basis represented "[a] longstanding used Respondents 43, n. 25. generally response changing conditions. 6_7. Permittees "[t]emporary nonuse" financial reasons, approve nonuse annual years. 4130.2(g)(2) temporary application, moreover, use-the allocate temporarily via non-renewable §§4130.2(h), 4130.6_2. short, nothing undermines 54 way ownership fencing, drilling, spraying weeds undertake agreement 315c; §§4120.3_2, 4120.3_3 "nonstructural" weeds, "non-removable improvements," wells. "structural removable tanks, shared proportion actual respective contribution initial construction." "title improvements." §4120.3_3(b). 55 agreement, agreements, improvements" (authorized future) "such pipelines States." 4120.3_2(b) 56 315c 57 "No entitle [range] constructed occupant paid value (Emphasis added.) "owned" foresees "prior occupant" denied mandat- ing blanket responds authorize agreement-a greater power, §315c, improvements-a lesser power-just landlord. Schoshinski, Landlord Tenant §5:31 (1980) (ownership tenant negotiation landlord); Bronson, Treatise Fixtures §40 (1904); J. Taylor, §554, pp. 164_166 (1887). reading, subsequent relating "ownership" decides title. detailed rights 1995. prevents mind future. reasons takes original (assuring pay herders) important. event, retains "contemplation ownership" meaning stressed still "own" "corrals, creep feeders, loading chutes, structural troughs hauled water," 4120.3_3(b) (1995), transferred compel §315f. 61 irrespective formally lies, done, whom 1752(g) (requiring "interest" cancels permit). judgment Affirmed. Thomas joins, concurring. 64 I join Court's opinion. write separately observations concerning 65 II_A, holds promulgating rules. agree holding special emphasis reason rejecting petitioners' facial shown themselves-rather actions regulations-violate importance, notes, ante, "alter use/suspended formula permits" " `present allotment.' (1994)). fail. Should find, application deviates above assurances process deprives conduct can termed failure safeguard as-applied action time. today forecloses challenge. ("[T]he [denial of] context"). note decision rejects presented Administrative Procedure (APA), 706(2)(A), acted arbitrarily capriciously our Motor Vehicle Mfrs. Assn. Inc. State Mut. Automobile Ins. 463 29, (1983), agency departs previous fails supply reasoned analysis Although precisely "arbitrary capricious" whatever reason, chose raise Regardless ca- pricious" foreclose APA 67 understandings,

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