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[ 15 J The l'ights of the nation in whase terr,itory an international stream has its rise to tbe use and' benefit af its waters for the development of its territory, irrespective of the effect npon the territory of a lower nation through which the stream passes on its way to the sea, were fully considered by Attorney General Judson Harmon, with respect to the claims made by the Repnb- lie of Mexico to damag.e by depletion of the waters of the Rio Grande, occasioned by uses in the United States. After exhaus- tive consideration of the various autborities upon the subject, he arrived at the conclusion that, while the United States had the right to utilize the entire flow of the Rio Grande in the neces. sary l'eclamation at the lands near the source of the stream, and while "precedents of international law imposed no liability or obligation upon tbe United States" to permit any of the water of the stream to flow to El Paso, nevertheless, he advised that the mattei' be treated as one of policy and settled by treaty with Mexico. (21 Ops: Atty, Gen., 274, 280-283.) It is sai'e to predict that most of tbe past controversies re- specting the waters of Western interstate streams could have been avoided had the matters in dispute been first submitted to compe- tent compact commissioners. Friction between the Federal de. . partments and the State authorities should be avoided by proper compacts between the States before construction proceeds upon rivers where such controversies may arise. The Oolorado River is still "young," as regards utilization of its watm' supply. Conditions look to enormous development during the next quarter of a century. Nature facilitates an easy allocation and settlement of all matters pertaining to the future utilization of the waters of this stream, if means to that end are taken prior to further construction and before friction de- velops. All apprehension of interference with the gradual and necessary fntnre development npon the upper reaches of the stream by reason of earlier construction of enormous works on the lower rivm' may be avoided by compact and agreement entered into prior to any future construction. In fact, settlement of possible interstate controveries by inter- 'state compacts is recommended by the United States Snpreme Court. (Washington v. Oregon, 214U. S., 205, 218,) COMPAC'l' BY "JOINT COMMISSION" BETWEEN STATES AND UNI'l'ED STAT.TIJS. In another section we observe that the States, with consent of Congress, have full powers to make compacts with each other. Treaties between States are designated as agreements or ('(}In. pacts. (Art. I, section 10, par. 3, Constitution,) The United States, in the exercise of its sovereign powers,