|
<br />QiJ1911
<br />
<br />9.t28
<br />
<br />In truth oIle which the Seel'etary waa au-
<br />thorized to torce down the throQt.s of the
<br />Sta.teoI U they clld not 1'QJuntarlly agree k>
<br />".
<br />Even thu. tu'lef aum.rn.ary.l think. eaet.s the
<br />gra..""t dOllbta upon the Omlrl'. conatruc-
<br />Uon of thl!! Pro,Je<:t Ad IU abolu.hlng state
<br />law and. llCQI!pted pr1nclpl... or equltable ap-
<br />portionment 10 ell:e<:t.lng 1ll1ocatlo... o! water
<br />IUllODg the 5taus. A more del.&l.lO!d aualy.1.I
<br />will, I believe, dl!monat.ra\e the LncorrectneA
<br />or the Conn'. oollcl~on.l on thu. aooJ"e and
<br />will reveal t.he oolUtitutlonnl dlmcultles In-
<br />berent In the uncontrolled del~Uon or
<br />polft'rreolUltl.ngtrorntho.eronclUJIlona.
<br />u. Tlt~ IlACKOaOVNO or THt: IIOtn.DD C.U<TOl'<
<br />nOJ'SCT ACr
<br />J'udlcW apportlonm"'nt of Interst.ll.te
<br />""aten wu I!ltabllahed lone before the Project
<br />Act u all ell:ectlve means or resolving Inter_
<br />lIt.ate water clllrputH. Ka"..a.. Y. Colorado.
<br />200 U.8. n. It.s ...:~ptablllty bad DevU been
<br />questloned_ PTlorlty or approprtatlon, Ule
<br />ba8le detennlnant of judlc1al apportlonIlllmt
<br />llo6 enunciated In W.vom1n9 Y. Colorado, 259
<br />U.s. 419. W!La the law In all: of the Colorado
<br />Basin St.at.N,' Uld Hnlo"!' approprlatlona ....111
<br />re.pect....d. In the BevenUi.' The I~w of ap-
<br />proprl~tlon, ....hleh rest.a on the bulc prln.
<br />c1ple that ~ ....~t.er rlgM depend. on ~nellcla.l
<br />1,1MI-and wbleb gll'e8 priority of right to the
<br />appropriator lint In Ume, had been repeat-
<br />edly declanw:l to be Ind16penaable to the de.
<br />l"elopment of the arid l..n<18 of tbe Weat..
<br />'lb1a hll(:kdrop of drm dedication to the
<br />principles ot appropriation and of ,udlc:W
<br />apportionment Ia critical to an undeutlUld.
<br />tng ot cong.-Ional purpoae with reaped to
<br />the Prolect Act. it iii al.5o crlUcal to r<'<lOll.
<br />nlall tbat oongre_lonal compromlme with
<br />th_ d<'(<ply 1'N~t....d. principles waa only
<br />partial; the problell'lJl taclng COngre.... ... a
<br />result of Wyoming 1'_ Colo..ado ~re narrow.
<br />No Senator or Representatlve ..\.er IllJgge"ted
<br />that Judicial apportlonment w.... genrrally
<br />lnapproprlUe: no Senator or Rt'prelleot.atlve
<br />ever Inveighed. agaJ....t the law ot approprla.
<br />tloo ... .ueh. Thl' l'I.nt problem....... limply
<br />thla; Interstate appllcaUon of the doctrine
<br />of prlor11.y. unllm1ted by equltabl", consider.
<br />aUona, threatrned to deprive the four Upper
<br />DalJ.n States of their falr shnre of thl' Colo-
<br />rado Rher becallMl they wen not II(l quick lUl
<br />Ca.Ulornla In devdopment. T'l1e purpoBe 01
<br />the Compact 1lI'U almply to ltm.lt tradltlonaJ.
<br />dO<:'trlnN to the "tent nl'c:eIII!nTf to I.vold
<br />thIl extreme and hnrah rceult. and to ellml.
<br />lUte Ioogand coaUylltlptlon.
<br />It W<WI perfectly plain that the Colorlldo
<br />River CompaCt merely g\1lU"&Jlt.ecd to the
<br />upper StatoN a Ipec:ll'l.ed qWUltlty of 1lI'1ltt<r
<br />tmmuna from prlorltlea below, .ubject to
<br />6tal.O:'<l delivery reqUlr..menta: It did not.hl.ng
<br />what.ever tolnte:rl"t'fe with the la1ll' 01 prl_
<br />orlU.... or the prlllc:lples of t'qultabll'appOl'.
<br />ur;mm..nt amons the Statel of the Lower
<br />:Ba.d.n.' It w>> pre<::~ly becDwe It did not
<br />
<br />'ArlUlna: Clouglll'. Wtng, 2 Arlz. 371. n
<br />P. ..53; Colorado: CO/JIn 1'. Ult Hand Ditcll
<br />CO., 6 Cola. 4-.&3: Nevadll; JQ"~ 1'. Alt<lm". 19
<br />Ne.. 78. 6 P. 442; New MexiCO; AlbulJ1U"'"qIle
<br />lAnd d: IN". Co V. Gv1~rTC". 10 N. MelL 177.
<br />61 P. 35'7; Utah; StOlKU v. JoItfU'OlI. 7 OtlLh
<br />::U5, 26 P. 290: Wyoming; Jt~ 1'. PTe..ton.
<br />eWyo.308,0f4P.MS.
<br />. California; Osgood' '1', EI Dorado Watn
<br />and Dtep GnI"'" .Wllllng Co.. 56 Cal. 5,1.
<br />'E. fl., colin '1'. Lt'lt Hand DUch Co, S
<br />Cola. '"3 4-4&-01.1.7, "9-450; StOIUU 1'. Jolln-
<br />ron.. .tv,;,z,' Utab 21&.:125,28 P. 290. 291;
<br />M'tlky v. Decl:er. 11 Wyo US, &1~2i, 73 P.
<br />210. 216-218. "1rrlpUon. ~ aa.ld the Nevada
<br />court. ". . . would be atrll.Ogled by the
<br />enfof<:O'm..nt of the rlpa.nlln prlnclple.~
<br />Trc<lddte ,.. WlnftU, 2lI N...... 88. 106. 85 P.
<br />"".""
<br />'\\'ar<1 Bannlltt'r. Denvt'l' attorney and
<br />apokKm.ab for the Upper Basin StaUlll. AId
<br />
<br />CONGRESSIONAL RECORD - SENATE
<br />
<br />that Arizona refUGed to I.pprove either the
<br />Project Act or the Compact until aomethlng
<br />waa done to aate-guard h..r ahare of Lower
<br />Bu1n water.' Slmllarly, the uppe:- Stat...
<br />foued that In the abaenee of n.Uftea.tlon by
<br />Arlwna. Cn11tornla III'OUlcl be fl1!<l! to appro.
<br />prlate all the Lower Baa.ln'a ab.are under the
<br />Compact. and Arizona, not 11mIWil. br that
<br />document, would be tree to appropriate. u
<br />&g::unst the upPf'r State.. wtltt'r the Compact
<br />lIOU{i;ht to apportion to the Upper Daa1n.'
<br />The rema1nIPg problem. therefore, 1lI'aa
<br />Uiat Call!ornla.s ac:qul6ltlon of prIorities All
<br />aga1n6t Arizona and the uppc'r Stat.ell had
<br />to btl fmther limited. A celllng bad to be
<br />put on bu Intt'rstll.te approprlaUve priorI.
<br />U.... Solution of thLl narrow problem Uke-
<br />wl..lc did DOl require complete abrogatloo of
<br />the prlnclpl'"ll of prlorlty and Interstate )tJ.
<br />dlclal apportloll.lllent.
<br />SUll another. and prvtoundly' a1gnll'l.......t.
<br />tactor to undel'1ltandlng the df....t of the
<br />Project Act on the law of appropriation and
<br />JudICial I.pportlonment LI the penwve bos.
<br />Ullty u>at many westrrnen had to any form
<br />at Federal rontrol or watel" rIghta. Colondo',
<br />Delph c...rpenter. wbo w:us as much ~n.
<br />alble as any man for both the Compact and
<br />the contract requlreffit'ntot 15 or the Project
<br />Act. teetll'll!d In 19'25 to what be tt<rmed an
<br />tnaldloul and ealeulated pollc:J' or the Nil..
<br />tlOWll Oovt'rnment. tOlltered parUcularly by
<br />the Departm..nta or Interior and Ju.U<lII, to
<br />encroach upon State pl"l"rogaUvee and IUper.
<br />llI!deSt.ateauthorlt7"'lth~tothl'dll-
<br />trIbuUon of waul'. He made It <'lear, .. did
<br />Wyomlng's Senatol" Kendrick. that he deemed
<br />thll policy oppn:lI.l,.... destructive. and de-
<br />ploT1Lble." Utah', St'n"to!" King made the
<br />same obJe<"Uon on the tlOOl" of Congreu. 69
<br />Co"GUSllJo..AL ~D 10262. When 1\ ...as
<br />auggestl'd th"t ConRT<'Sll might Il!'glaiaw to
<br />m..et the problem of CalUoml'" threatened
<br />pr....mption of the river. a .to"I'ID of doubt
<br />St'(lGll /l.ll to lte constitutional po1I'er to do IM).
<br />Upper Bwlln and ArI'lOna ~kannen-th.-
<br />who were to be benel'l.tm by limiting appro-
<br />prlaUon&-r..peatedly Inalstl!d tbllt the only
<br />oon6titutloaal .....rs of apportioning the river
<br />w(,!re by .uU 1n thI..I Comt or by Intel'lltAte
<br />
<br />thAt "Itlbe purpoae of the Cornput LI to
<br />prov1de the three lower Stat.eA wtth a fund
<br />ot watt'r tram 1lI'hlcb they may appropriate
<br />and th.. tom upper Stat_ with a fund of
<br />water from which they IIlBY 'pproprlate."
<br />Hearlnp befONl ItOUINl Comm.lttee on IrTlga.
<br />tlon and ~llI.IQIltloa on HR. 2903, 6BUI
<br />Cong., tBtSNll.232.
<br />. See the rema.rkll of Sena1.or Hayden. 70
<br />Cong.~.$8lI.
<br />"See, t!4~ H.R. Rep. No. 1657. 69th Cong..
<br />2d Se6Il.. pt. 2, 3-1; nea.rtngs, IV1"'G. note 2-
<br />at 34-37.
<br />"nearlnp before Sl'ute Committee on
<br />Irrigation and ReelamaUon pursuant to a
<br />ne.. No. 320. 68th Cong.. 2d Sella. 663--675.
<br />~tt ,..,.. the oppreolalOO of the No.tlonal Gov.
<br />ernment strangling deveIOpm.ent. prevt'lltlng
<br />development In the St3te1. . . . Th_ two
<br />eltperl..nCt'll and oth.u'S taugbt Colorado.
<br />Wyoming. and New Me:deo the ulf'nt to
<br />which a dep..rtment of the trnlted Statel
<br />would go In ov~dlng State auUlorlty amI.
<br />opprel:lllng ...hole C(IfWOunltl..., . . . 'I'DIIS U
<br /><:ame to the attention of the StatM. that
<br />the United St.ates Government Int.ended to
<br />IrUperMde aU State law and oVt'nlde State
<br />l.uthorlt7 on t.hat rtnor.... (Alny
<br />d...~ b7 a goyernm..ntal burn.u to ulU.
<br />DlIIt.tely, by Inslduoua I-,el or other methods,
<br />take onr the control and dominion ot thl'
<br />ItrflLms Y1UiIn the St.a.t. and to o,..rTldll
<br />State authorlty at once beooI:nllS not only
<br />ablK>JTent but gives I'iM to a fe<ellng of blttrr
<br />I'l!M!ntment and lKlun<lil a e:a11 to arma fOl'
<br />..U.defefllll!_~ Id., at 6Il3. 80M, G11. 873. See
<br />a.lao hll remarks at Hearlnp, I'UpnI, note
<br />I.at I*-l~'.
<br />
<br />June .4
<br />
<br />oomPlU:t." And&nator Bratton of New Mex_
<br />Ico, hardly Don opponent of the ProJe<et ^~1,
<br />objected that by mer"ly IUggNtlng In 14-(al
<br />tbe tt'1'1J'\ll of II compact ..bl~b the 8tatee w..re
<br />frH to modlf7 or to reject. Congr_ was In_
<br />fringing upon e-t.ate IOverelgnty. 70 CoN-
<br />GaI'.lll'IO....L nacou 4-70---471.
<br />Oongreu' entire llpproach to the problema
<br />of prior approprlatlon w..... goVtnled by thll
<br />de.,....tfI.t.ed hoIItlllty to Pedenl dlctaUon of
<br />...ater rlghU. When plDonll tor duelopm"nt
<br />ot the Lower B:u.ln thr....tened the rlgbte or
<br />the uppt'r Statt'a. the-y did not _k thr aim.
<br />pie lO1utlon ot a I",WaUYtI apportionment.
<br />Tn..y employed tna-te::WI the cumbenome
<br />mrthod of Interstate oompa.et. wbleb requlrl!d
<br />authO'rlzatlon by Congr_ and by IIeveR 8t.a.te
<br />
<br />uSt'n&tor Kln~: ..It the Benat.or m..IUt. b7
<br />bit statt'ment that the hderal Goyernment
<br />may 18'0 Int.o a stream. wheth..r It be the Colo.
<br />rado River. the SacrllDlento River, or a river
<br />In the State of Montana. and put Ita power_
<br />tul band.. do"," upon the .tream and say,
<br />"I'hlall mine: I can build a d&m thue and aI.
<br />loc&.1<' wawr to whom I pleue. rtt;ardl_ of
<br />other rIght.. elth..r aU$pellded, Inchoate. or
<br />pt'rfectt'd: I deny the po6Itlon which tbe
<br />Senator tAlr._." ,0 Co,.,-aaE;S$IONAL lU".coaD
<br />169. The Senator In qu-.!on wu C"'L
<br />""TnPl; hoe d..nled tho.t hLl etatt'tnent.
<br />which oonoerned hll Buthorlzatlon for.. com-
<br />PflCt Bmong the three lower Staw., ID.t'llllt
<br />anYllUChthJng_
<br />5rnat.ot' Phlppa: "I am nrml7 eonvlnc:ed
<br />that there mu..t be roluntary ratlllclltlon on
<br />the pRI1. of each Int..reated Bta.te IP order t.o
<br />make the Comput elf...,t1ve. T'l11s II the onlr
<br />me-thod ot ...ttllng poaIIlble oont.r'Ovenll''' per-
<br />manenUr ..nd of putting th.. w..ter at the
<br />atream to Ita highest bendl.elal wor. It is tb.
<br />only laUatac:tory- method: It III the only legal
<br />m..thod to Avoid proceedlnga In the oourt.
<br />which ...ould prove c:o>>lIy and almost Inter--
<br />minable," 611 COH..IUlSSIOH.... RJ;COaD 4514.
<br />Senator Hayden, ''There aNI only two way.
<br />In whl..h thla oontro'''nly CAn be ....tlled.
<br />Eitber Uie 8iAt.fIlI can agr.... upon an ..qui table
<br />appol"tlonrn..nt of .....t...... of the Colorado
<br />Rlfer or. In the abeen..e at a oompact, thll
<br />SUprl!'me OnW"t of tho United States can d.._
<br />t.ermlne what the r1jl;hte of tbevarioullsta.!.ell
<br />...... In on Incl ~hat etrearn. ArIzona delll...
<br />Uia.t It III withIn the po"..r of Oongrt!llB to ap.
<br />porUon the waten at an In~I'lIWe atream
<br />among the Statee.~ Hearlnga. IVpra. note 2,
<br />at ,~. 'fe.
<br />Rep~_ntaUve Colton: WI hue been In-
<br />formed tbat an attoroey for the Reoclam-.tlon
<br />5rnlc:e of thr United Stat.. cla.1InS tbll.t Con_
<br />~ hila the power to alloea.te and apporUon
<br />all of tbe Colorado River among the StA~
<br />rl!g!U"dlt'Sll of th..lr _\Ahel In thl' nla.tt.er,
<br />SUeb a theory III abborrent to our ",bole plllD
<br />of gov..nunent and plU"tLcul....l.,. to the tht'<xJ
<br />on ...hlc:1J. ow whole mum or WlI,ter rt.gbtc
<br />baa toren built up,~ Hearlnga before House
<br />OOmmltu.. on lrrlgatlon I.nd RecllunaUon on
<br />H.R. S773. 70th Com;., ht S.... 4-14.
<br />Be~nta.tl.,e LeaUlerwood: "ITlh..re are
<br />only two IIgenclll!3 that ea.n a.lloc:ate the .aters
<br />ot tblll great rlv..... ~he Statt'1 th..maell'eI lily
<br />tre4t7 !'1l.UfIed by the ConV- of the Unlt<<l
<br />8tAta, or b7 the Judlelal bnnch oJ: the On?_
<br />enrmcmt: ror th.. Coorr_ has nopewe", to a,J-
<br />loca.l.e any Of the ...ten of thlll rl"'"" or aDy
<br />other rInr ...here the doctrine ot prior ap-
<br />proprlnuon Ie III force." n"lU"lngs, "'''''0
<br />note2,at31
<br />Ward an.nnlster: ~IT111fre III nothlnJ In
<br />the ~t'RI OJnaUtutlon upOo which to bMf
<br />Ul.e power of th.. Pederal Oov..mm..nt to
<br />divide thla wat... amonc tbe States. . .
<br />ITlhe 81m.. thing that 'IfOuld tnval1date II
<br />proTlSkln tnaerted by OOngr_ direct would
<br />Invalldll.w any rule promulgatl!d by tht
<br />Secre-tary of the 10tMtor uDder CongTeMlObL
<br />pe-nnlalon. and th.. upper Stat.N would ll.nc
<br />themselv... uUt't'ly belpl...... n"llr!np
<br />rupro. n.7. lit I".
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