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34 seems to go beyond the reference to legislative history that strict construction allows to find congressional intent. And the tortuous journey through the legislative record required for the shortage-sharing provision to mean quantification almost necessarily contradicts the standard of clarity and plainess. If the record is read nonetheless to exhibit congressional intent to quantify Navajo Winters rights, that intent would be implied, and then only obscurely implied.sa Also, the set of facts required for sharing shortages to equal quantification--indeed, ,o~ ,-<- ~~. ;;.. >, .,~ the entire environment surrounding the Navajo decision to share shortages--was the work of the state of New Mexico. The junior priority for industrial users was created ,,~, by the State Engineer, following the law of ~ew Mexico. The late Steven Reynolds said in a 1988 interview that the shortage-sharing provision was Paul Jones's idea. Jones "saw the need for M&I development," Reynolds said, "to really create jobs and an economy.'.a9 The late priority date on a water claim filed by El Paso Natural Gas for .a coal gasification project on the reservation in the late fifties spurred Jones to propose the sharing of shortages, according to Reynolds.go But Reynolds himself assigned the late priority to the c1aim--admittedly, according to New Mexico state law. "'-1'- salt is possible to reach the conclusion of implied intent using strict construction. "Courts applying a rule of strict construction will proceed to intepret the statute, often resorting to extrinsic inteTFretational aids, to determine whether the legislature intended to reach the right or power. Thus a court guided by the rule of strict construction may find an implied legislative intent." Wilkinson and Volkman, j1ijIDl note 50 at 646-647. 89Interview with Steven Reynolds, State Engineer of New Mexico, in Santa Fe, New Mexico (June 18, 1988). gold.