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<br />1963
<br />
<br />liu1912
<br />
<br />lerlalaturN prior to n.t1aUoo and rallnea-
<br />tlon by tile urne eight bodies tht'Teatter.
<br />When It. began to .PpelU' that Arlwna woul4
<br />not Ml.t1l, the OXnp""t. Collgteaa .tUl diet
<br />DOt legtslate a genera.! apportlonment. It
<br />built !.he statute 1lI0Un4 the pl'O"lalotl4ot the
<br />Compact, tnalaLlng on ratU'lcaUon by "* many
<br />States upcoMlble,pvenat the ooet otturLbei'
<br />dehylng Ul.e aln!DdJ overdue Project. Act. It
<br />limply oond1tl<xied the ..".., ot g,,,,,,,.nnlenL
<br />Pl'Op<'rty and ot ....ata" -.torN behind the dn.m
<br />on c:ompu.a.nce WIth the Comp"ct. Attempl4
<br />to <1ivld" uie Lower BUlIn ...ate. by Inter-
<br />state agl'eement. contlnll~ throl1~h the Den-
<br />nr COnterence called by the Dpper Baa1Q
<br />Oon'nlOn I.n the aulllmU of 19:.17-0"']1
<br />the Y"" I!tu nrgotiaUOn 01 tilt' Comp;..et.
<br />Yet It waa not UJ>LU 192'l that an :unendmenL
<br />wu nrst otre~ to protect Arlzona by II
<br />I<tatutory ltm1t,aUon On CAlifornia's col1llump-
<br />Lloo. lLDd U __ not untll 11l2l! t.bat the pro-
<br />polIlI.l wall adop~ loto the blll,u
<br />l"tnally. wben Con~ ultimately reatgned
<br />It.'Ie1ftothlln""'~ltyorle!l"lirilatlngln80mll
<br />way ...lth rNpeCt to the d!v15lon ot Lo'IYer
<br />Buln waten. It used narrow words a.,Utable
<br />to Its DJm1)W pllrpWe and 1.0 It!! r~d botb
<br />for the ~ of Judldal apportlollmellt and
<br />appropriation and for tb, rlKbl.Ol of the
<br />Stat". Enn then Conwr- did not Utt'mpt
<br />to leg1lllll.te an appOrtionment or Lo""n Bum
<br />waw-r; It almply prellCl"lbed ... c..tIIng for C"'l_
<br />fornla.. In the worda at &mator Jobnaon.
<br />''We wrlw-. then. that CallIornla Ilhnll WIe
<br />pel"pctually only a speclAc lUl\ount of ..ater.
<br />na.mln, the nuulmum amount ....blcb ....y
<br />be u&ed.~ 69 Cong. Reo:. T.UO. E"en thla.
<br />CoDKf"CSII "N ...n....Ullns 1.0 do directly. "-
<br />repol'Ud trom commIUe... tbe IIlll cont&lncd
<br />It. provlaion directing the 8ecrelll.ry of l.hf,
<br />Int<'rl(lJ" to limit Calltornla'll conaumptlon In
<br />the ell'elclse of hla power of COnt.r'1"'I." n...t
<br />this........ ...placed by the preEent pro"l6lon.
<br />....hlch reached the ""me r<sult not via the
<br />SecreUl'J'a contract ."thorlty but by the
<br />a-,,'kwlU'd duleo:' of requl.rlns CaUfomla'a leg_
<br />tslature to oo....,nt 1.0 the limitation .... ..
<br />condlt!on pre<:ed..nt to the eltect\"e~ of
<br />the Project Act. And thla ..... not all: to
<br />end the tale CongA!. ad<lad to t 41al apeclnc
<br />authorizAtion to ArtZOna., Callfornl.. and
<br />N..vada to enur Into ..n &IT,-""ment to com_
<br />plete th" dl"lslon Of the Lo...er Ba8ln water-
<br />the llAme cumbt'nom" aubBtltuU for dlrect
<br />cong.-loll4l apportlonm..nt that bad ~n
<br />abortl""ly mooted far al" y"an.
<br />ThI6 h1Itory bean ,..,.,..pltulatlon. Flrd.
<br />th, law of .pproprlatJOII. bu.lc to ......t..rn
<br />Wtlter law. ...... greatly reo;pected. and the
<br />aoluLlon of Intenlnt.e waur dllrputel by JUdl-
<br />cllll apporuonm"nt 11'1 tbla Court wlIlI ....eU
<br />..tabU.bed and accep~. SU!Ond. the prob-
<br />lems cna.t<<l hy theM! doctr1nes ... lIppUed
<br />In \\'flomilll1 v. CoIOf"4do 'Were n"rro" on....
<br />not requiring for Ibelr solution oomplete
<br />abrogBUon of w..ll_tried princIples: ulst\ng
<br />1J.\V....1ll< qu1te ad~uate tod..a1 ...Itb &II ques-
<br />tlona' &&Ve thQae Congte.. .."r....lJ' mh'oo
<br />by lmpoalng a ..,.,lIIng on California. TAird.
<br />CongT_ throughout th.. dltp"U ...Ilblbll.td
<br />great r..hll:tance to Int..rfe~ wllb the dlvl-
<br />Blonotw...t<>rbylegW.Uon, bMl..ueeo.fad....p
<br />nn<I fundamental ml6trusl or fcc1era.! Inter-
<br />"ention and ... profound reg.rd for !>tate
<br />sovereIgnty. ahared by many InlluenUat
<br />m..mber.o. Fl>lall,. whell COnlfl......... for-CN
<br />to legl5late with resp""t to thla prnbl..m or
<br />f!tee defestof the etItlnProJ&Ct Aet.ltcllCl5fl
<br />DarroW terma approprlaw to the PJl,rr<)W
<br />problem before It. and even th..n ael.td only
<br />IndIrectly to reqUite Cll.llfornlll'a oonaent to
<br />Illnltlng her consumption.
<br />It l5 Inconceivable thllt such a ConifUa
<br />mteDded that th... .........plnK te<t..raJ pow..r
<br />
<br />"68 Co1<G~OKU. REICOIIll. 4153; B. Rep\..
<br />J'i'o. 592. "fOth Cong, 1st _. 2.
<br />u S. ~pt. No. 591 70th Cong.. ht s-. 2.
<br />SD.83-----a
<br />
<br />CONt.KESSIONAL RECORD-SENATE
<br />
<br />whicb Ud.ecUned to eunta_a JlO'Ift'I even
<br />the IIIOIt a..ld part15ana at naUOnal author-
<br />Ity might he<3.te to grtlnt to a a1ng1" ad-
<br />m1n.Iatzatol'-bo enrclae4 at the ...n~ldled
<br />4lacretlon of an admlnlatuthe omcer, ea-
<br />peclnlly In the IIsht o! compllllnta regla-
<br />wed &bout "bure.ucrll>tlc~ and "op~h'eR
<br />InUrfcrence of the Departmf'nt .....bleh that
<br />very ol!l.ca headed." It 15 utterly Incredible
<br />thBt a congrHll unwWlng beca~ of con-
<br />c..rn for S~te-.' rlgnta ,....1'1 to lIm1t Call-
<br />forn1a'l m.axlrnum conaumptlon to 4.400.000
<br />&CZ"e.rCf't without the oonaent of her legbl-
<br />lalure Intended to glvlI thll 8ee'~t.arJ of the
<br />Inurlor authority 'WIthout California', con_
<br />aeot to reduC(' her ahllfe even b<'low that
<br />quantity In a IIhortage.
<br />m. THII' AOTHClalT1' 0" nUl IlrlCtrTA.T tn<~
<br />au-nor< a or THE ,..,.",.IICT ACT
<br />nil Court bolda that J 5 of the proJOC\
<br />~t. 'Wh1cb empowua thfI Secretary to con-
<br />t;rw;:t far ....ter dellnTl' and forblda delivery
<br />otatoredwater'Wlthout.oontract.dlJlplacea
<br />the la. of apportlonDle'Dt among the Lower
<br />Da.aln Stau.. giving the s...cretary pow.., to
<br />dhldeth"waterbY(:ODlJactaDdtodlatrlb--
<br />ute tho' burden or ahortagell. without reapect.-
<br />log appropl1ll.Uona.
<br />But It <.1oea not follow that bN:aUH no
<br />ua..r Ia entitled 1.0 ator..d waur without a
<br />contract the ~etary may a..ard Or wUb.
<br />hold OClrltrac~ Ind..pendentiy 01 prlorUtea.
<br />In fw;:t. I 5 ren.....ta no IUch Intention. The
<br />Beer"t&ry'1 po...., to contrnct upOn approI'rl-
<br />at.e financial chAr'ges for 'II01I.ter del"''''''y, not
<br />Included In the early billA. w... added dur-
<br />Ing tbe 19211 hearlnga In ,..~nlle to . re-
<br />quest ham S..eretary of the Intutor Worlt
<br />that user. of w.ter. u ....ell u of po.."r. be
<br />made to bear the con of the proJl-'Ct." At
<br />thll aa.me tlm" '4(b) for the t\.nlt tlm.. pro-
<br />Tldlld that no '\IO'Orlt und.... the Act ahould be_
<br />gin unW th~ ,..venulIII ..,re a.IIIlUJ'ed by the
<br />Secr'Il'ta.ry'1 contracta. The", W'IU ,..t Ilo
<br />provision prohlbltlng dell.....rles ...-tthout con~
<br />~"
<br />Thua orlgInally purely a nnlUlcial tool.
<br />the e<:>ntract po..er wlllllfltcr made to lelYe
<br />the additionAl purpoae of enforc:lng the
<br />Compact'a proyla\ola a.gal....t Arl,mna In the
<br />abatnce ot h<'1' raUncaUon. At the urgtng
<br />d the uM-" State>> I B had b.....n amt'ndlOd
<br />,to IUbJ..oet the United States In oP""lltlng tbe
<br />dam to the Compact. to condltlon th" f'n_
<br />Joytnf'nt at the darn" ben..nta 01> eompllanoe
<br />with the Compact. and to r.qulre that COIl-
<br />tracta from the Unll.td Stat... ahould ao
<br />ptOyldll." ne uPf'l'r StAtooe th..n llaillted
<br />on IrtRrtlng tile nqul.r..m"nt In I (; that nQ
<br />one WN to recelv.. atored waur ..Ithout a
<br />COlltract. nprep,ly lUld a<)\ei)' for thll purpoae
<br />Of tying thf' Compact'll ..nforccm..nt to the
<br />contract powu." There WILl! no lotent to
<br />cont..r absolute power to grant Dr 'WIthhold..
<br />Indeed. to give efl'...:t. to prlorlLlN In Un}1I ot
<br />ahortAGII. up to the m&Xlmum quantltls pt'-I-
<br />mlttc<l Ct>.lItornla by 14(a). tend. to pro-
<br />mote the ~bUUy of w.ter \aeI. . pollcf
<br />COngr..... >>ought to further In I 5 1~11 by
<br />requlrtng that co::mtraeta be fl'r pl'rm:",ent
<br />IlUVlce. In mort. dlMl'gard of appropria_
<br />tiON In one State In fa\"or ot thaae In .....-
<br />
<br />"8M note to. .....pr4. and accompanying
<br />.."
<br />..Hea.rlnga.nop.....note 1.at6.411.
<br />-U.n. 9ll26.119th CODe.. lilt Se8a.. 15.
<br />"8. t8llll. 6liIth Cong.. Iftt S-.: UR. ~5t.
<br />Il9th Cong.. 1st s-a.: R R. 9826. 6!1th Cong..
<br />ht &-aa. Thla amendml'nt. W1'Ot.II Sec-nltary
<br />Work In I"PCOmnxonding the bl11. Hpro'llld.... for
<br />the dilltrlbuUon and u&e of .U ..at"r tor
<br />IrTtptlon. pow..r and othtrWtR. In accord-
<br />ance 'II'1th the CotOl'&do RI..er Compact.-
<br />Uf'ltrlnp.no"..a.notel.atB,
<br />uSee nOtel! I. 2. .....pn>. llnd IlOCOmpflDytng
<br />tnt. Contract..l wt'r" later made IllUbJ...:t a1ao
<br />to the CaUfornla Itml~Uon In 14(a).
<br />
<br />9,129
<br />
<br />other. UI;t'pt u requl.rcd bf the !.IIt.er_blUiln
<br />apportlolUD"nt or Ule Compact or by the
<br />CallforuJa. ltmltllUon. Wll.I nQ. part or the
<br />ptupooI>! or this aecUon: It Wll8 dwgned to
<br />lnaure re..enue and to enforce the COmpac\
<br />&Od the Ca.tltorn1a lIm.ltaUon."
<br />When the provlalon tor water deUvUJ
<br />oontrl1CtI .... I1nIt twoerted Iu tho Bwlnl
<br />bill in 1926. It prdCllbed thllt "CoIlUacta
<br />r<llIl-P""'ttng .....ter tor dom.e.atlc tllIa may ~
<br />for p<>nua.nll.l1t aenlc:e but IllUbJt'Ct to rl.g!:lt..l
<br />of prior approprlatora.R - Propon"ntll of
<br />tbe bill <ered thill pro..l&Ioll to apply. to
<br />Irrlpt10n cout.r&Ctll.... ....ell... to require.
<br />....ther than IlIl1lply to permlt. that oontroscta
<br />be (ot pern:u>.nent ..nlce.- At the requut.
<br />ot the upper States, the plu'allll ~lUb'lICt to
<br />rlghta of prlOl' approprlatora" wu delet.ad...
<br />The CoUJ"~ co.nclud~ from tha bit of blltOry
<br />that CollgreA eunalde,e<t but rejected the
<br />aUU"6Uon that th" la.... or .pproprlation
<br />govern the dhtrlbuUon or ...a"'r &tarOO In
<br />Lake Mead. But del"Llon or ~Je<:Uon of a
<br />propoK<l am..ndm.ent 16 not atrong ",,!denee
<br />cJ l"lfWa.Uve mtentlon: LIle rca.sola for d....
<br />letlon Olay be allY of a great number. not
<br />the I..~ frequent of which I.lI that the ..ug-
<br />g"SUOn 11 redundant. Rere It .....ma clear
<br />that Ulere wu . further re&IlQn for Ihe
<br />change. The pbrue walt. dropped at Ule
<br />alUlllI time the provla\on r~qujrlnJl' f"lOCh
<br />uaet to have a contrnet wu added. Under
<br />the bill u It stoo<1 prior to thl6110contnlct
<br />....u re-qu1red. and ne.. cont.r&CU. were made
<br />Junior to &II prior .pproprlatora. e.....n thoee
<br />lnlUattng or perfe<:ttng rlghta only attf'r the
<br />stat...te beeame efl'ecUye. "- lUIlended the
<br />bm re-qul.red a contract of e""ry llIlCt of
<br />.tored watf'nl. and the del...U'<I cla~ w.... no
<br />tonger In accord with the contractu.,,1 phon.
<br />It I.Ilnrely atrekhlng thlnp to .uggn"t that
<br />del"Uon of thl6 no long.... accurate language
<br />.ignIAN tba.t the Secr..tary m"ya..ard eon_
<br />tracta on hl.ll own authority. ..Ithout reptd
<br />for prlarttletl that would obUln under ltate
<br />....
<br />In support o! Ita colatructlt>n of III the
<br />Court tellea In lArge pIIoJ't upon .n eschang"
<br />betw~ Senator ,It>hnson and Senator
<br />W(Lhh or MontaOll.. 10 COng. Roc. 168. The
<br />only thing lilla colloquy lIe"ma to malle cleu
<br />16 that Senator Joht\8OD b"d not compte-
<br />helllllYely analyzed. the reLaUonahlp bet"".....n
<br />I 5 ILDd the la"" of .pproprlatlQn. Plrat he
<br />thought the Secretary ....ould be re<juired to
<br />deU~er wnte:r to those ..ho had appropriated
<br />It; then he ..Id thIS would be ~ulred
<br />MII]t th"y contrae""; thell he &lTeed the
<br />Secretary mlttht ....Ithhold "':iter ~.... be ....e.
<br />tlt~: tIlen he ~doubtll'<l' yery much"
<br />....hether the Secret.ary could d\llregard Loll
<br />Angell'S approprlaLlona; flnalIy he aatd "pee.-
<br />libly~ the So:eretary might uttf'rl7 Ignore
<br />approprl.:\tlona. Thla ahlftlng dl.lllogue O&ll
<br />-.roe17 be deo:!med an authOl"ltaUve. or ewen
<br />\lM'tul, aid tol!Qnat.ructlOD of the al.ntute-.
<br />Nc.r 1& U,"Ml ....a>T&J\t JOt tile Court... re_
<br />liance on th.. Ilnu-menta o( SUCh opponente
<br />of the bill u Utnh.. Repre&elltau..e Douglu
<br />and ArI7.ona's Rcprf'flentatlve Colton. Ob-
<br />JecUollll of oppo..enta of a bllt are aeldom
<br />algnlncnnt lJUld... to Ita conltruetlon. ,s.,."
<br />ScIl_l7"'a,n. Bn>>. Y. CllIl>CC DUtiUsrt Corp..
<br />S.U U.8. 384. 394--395. And In any event. In
<br />
<br />I
<br />I
<br />
<br />I
<br />
<br />'"It la.tgnllleantto contnJl-t tbe l:tngua.ge
<br />gtY\nK1.heSec1'et>l.ryauthorU, \OenU'r water
<br />d..llnry contraet.l with that In 105IC). re-
<br />laUnit to the d1l!trlbutlon or el...:trlcal po""er.
<br />The Inttf't" proVI6iOll "xpltclUy gI\'", tbe SI"C-
<br />fl'tAI'J authO'rlty to resvl~e confUcts In .Wll-
<br />catlotul. referring him tor the ronrnlng
<br />.lnn<lanb to ..th" pOlley eKflres:.o<1 In the
<br />Federal Wlltn Powrr Ac~ a. to conftleUn,
<br />.pplle.Uona for ptrmlt..l and lIce~"
<br />- Reulnp. S'Uprll. note I. at 1:1.
<br />-fd_at 116.
<br />-ld..at97.115.
<br />
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