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<br />16
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<br />FEDEIlAL WATER RIGHTS LEGISLATION
<br />
<br />FE:DERAL WATER RIGHTS LEGISLATION
<br />
<br />17
<br />
<br /><or trnvcl Ilre or mny be conl1uctclJ In the cURtomnry modeM ut trade or travel
<br /><m water.S'
<br />
<br />The relev""c" of this "dopt.ion hy Con!.';ress and tho courts of "
<br />
<br />broad dcHnitioll of lIavig-aLle waters'to an undcl'Standing of our pres-
<br />
<br />e.nt problems of Fedeml-SI',ale relations in t.he W:1ter rights fielcl is
<br />
<br />ohvious. Equally e1ear is the relevanco of two other doctl'incs whieh
<br />
<br />wero very nllleh 10 the foro during t.his ",LIne period. The first of
<br />
<br />theM is the doctrine, originally set forth in Willson v. llla"k-bird
<br />
<br />Creek lTfarslt (/ompan!l,sr. -t.hat until Congrcs.o:; should net to prohibit
<br />
<br />01" 1'<,-g111ate physic:Ll impediments to na.\'igntion the Illatter would be
<br />
<br />goY'~nH'd by Sl at~ law--in other words, t.he doctrine t.hat, in this type
<br />
<br />of ea~c. the baro l"xist.ellce of power in Congl'css t,o 1"Cg'lllat.e under the
<br />
<br />commerce clause does not itf'elf foreclose t.he States from act.ing. The
<br />
<br />second is the C~l.\'eat t.hat. occurs time and aga.in in t.hese cases and in
<br />
<br />cases ddefmining t.he ownership of land underlying navigahle water
<br />
<br />that, I"pg-anU"ss of who OWllS the l:lnd, it m:lY be used by the United
<br />
<br />Stat.es whenevel' ConwcsB should choose to exercise its powers to
<br />
<br />impI"ovc llilvigat.ion.8{j
<br />
<br />Except for its refel'ence to t.he Federal Government, this htter doe-
<br />
<br />t.rino dates hack much furt,her than the commerce c1aw;e. MI'. Ju;1,ice
<br />
<br />Gra.y, wl'itillg' t.he opinion of the Supreme COllrt in Ski'vel!! v, Bowl-
<br />
<br />by,S1 sununn.r1zed t.he background of the general rille and its reason
<br />
<br />t.hus:
<br />
<br />Br the l'1I1111110n law, hnth the title and the 41ominlon of the l'lP3, nnd of rivers
<br />nnd arm~ nf the ~ea, where the tide ebbs. nod flows, nnd of nil the lands below
<br />hh::h water mark. .. . nre in Ute l,in!:. Slll:h \\'uters, and the lauds wbich they
<br />....c'\er, f'ithor lit 1I11 t11llf'l'l, or fit len~t wilen the tith~ i~ in. lire In(,lJpalJle of orlli~
<br />n:HY :l1l11 prirnte oceujI:lt.ifll\, clllti\'ntiol1 :lIu1 improY('lllenl:; fwd their llatnral
<br />mul primary 1I~f>~ are pnhlit.~ ill tlll'ir nntnre, for bighways {If nnvlt:nliml f1lHl
<br />~'Illmt.'r('e, (l'II1H~..;tir' :1.1111 r(II'eij:ll, nud for the pnrjJt\se of lishln~ IIy nil the liint:'s
<br />aubkd!-:. ']'ht~rL'for~ the title, jlt.'f wit:alum, in sll('lIland~ . ill. . belongs to the
<br />Kill/.!: as the ~()\"(,l'('ib'n; and the dominion t.i1er~or. jus l)/Iblit:lfllI, is vested In him
<br />. ilS the repre~entnti\'e of the nation ulHl for the IlUblic lJcne!it.
<br />
<br />His rel';ew of the law in t.he Thirtcpn Original States inllicatcs, more-
<br />
<br />over. t.h:l.t althol1O"h t,hero were wille variations in t.he o'wne.rship of the
<br />
<br />soil beneath n:lvigaule streams, t.here wa-s virtual unanimity that this
<br />
<br />ownership is subject to a servitudo in fa.vor of navigation.
<br />
<br />From this'llodrille ha.ve emerged t.wo corollary do(~trines, viz, that
<br />
<br />tllo own<~l" of t.ho soil is not entit.led to COlllp('n~ation jf it 15 used for
<br />
<br />improvl'.lIwnts fot' wl\'igat.ion I\!! :l.mllhllt 110 one C:lll fi('f]1l11"C s\I('.11 nil
<br />
<br />illtcl'('st. in divcrl,ing' lho watcr~ of na\'ig':!hlc streams as will sub:;ta.n.
<br />
<br />t.ially lessen their use for t.mffic." It. is this cOlll!el'il'S of doct.rillrs,
<br />nil of t1H~1ll implicit in 1 he II:lsic doct.rille t.hat. nn vi(rahlo :;LreillllS are
<br />public hig-hwa.ys, that. comprises what wo today rof;,.r "0 a~ the n:tvi-
<br />gution l1cl"vitudo which played so prominent ll. role in the discussions
<br />before t.he cOHlmitt.ee of tho bills which it is cOlIsidm'int". Tho point
<br />to bo emphasized n.t present is that the Ha.vigfl.t.ion sCI"\'it.i7do was origi-
<br />,nally :1 rille of property law and 1101.:1 pl'odllct of the Constit.lltiou."
<br />Tho quest.iolls, judicial ami legisl:tti\-e alike, which this Iille of de-
<br />,,:clopmcllt r;ll::il'::; am knutt.y when they arc st.ated in terJlls of t,he situa-
<br />tIon and nC'cds of tho year ]tIGO. The na.vigat.ion servitude was born
<br />.and grew up when water" was Hot, the ficarcc and co~tlv al'ticle thnt it
<br />is becoming toda.y and wh~n tl.le sllppl~ was, in virtl1;.dly' ever)' in-
<br />stance, ~lIIpl~ bot!) for Ilnvlgn.tJOn and f?r oUler permIssible USeS as
<br />well. Llkc\\-'lSC,} edernl control on~r wlYJ~abll'. st.l"pnms was tlwll con-
<br />cerned altnost solely with ~J;lyigat.i()ll ~s snell, lmt it. now extends to
<br />1100d cont.rol, t.he cunstructlOn and reg-Illat.ion of hydroelectrie works
<br />and pollutioll al':ltemcllt.P1 Pcnnis~il,lc uscs of \\":ttcr Huder locall:n~
<br />
<br />. ~ U!lit~,f Shih:!! \'. Rin Gran,Ie Dam (lfld lrrirmtion Co., MIIJra, note 14; Wi-8eonll'in V.
<br />llhnol.., anJrll. note 0:;; New Jt'rll'cy \'. Sew }'ork inJra note OG
<br />.'In tlJ" l':ll".I'~. hc'\\'('v,'r. th,' eOIl~lIWre'l' e]l1u~",~ I~ frC111ll'ntly '"pnk,'n or JIg It It Wl're the
<br />fOllllt :lIld orl~Lr1 nf th" rloetrlll.... :-::f'~, for 1':l(:lIllJlk!' 1Il1itrt! 8Ifl("/I \' 'twin GIIII PO/f(7" Co
<br />.350 U.S. 22.2, 224f (llJ51J) ("the Interest of the United Stuk!i iu liH" flow or' It IHldgabl~
<br />IItre:l~1I ~rl;:lllnft.!, III Ill,. {'olJlolI'rc,'. dUll",.. Tllat clalll:-f' spe.ll;,.. In t,-ru,,, o( p"wf'r, not ot
<br />iJrnl'~ rl.\. But til,: IlOw,'r I!'.l tlfllllln:lnt ont" which Clln he n!'serl,~d to tho:! ('xdu~i<ln t.f Ilny
<br />t"oIllP('tlnJ; ~r "olLflj('llnJ::' one. 'fhe PO\\"r I.~ a l,rl\'II"l!f! wlllrh w" h:1Y" l'all('u ':\ oI,-,mlll:lllt
<br />fle.r~ltllde", ..., Oi,,:~ s~IP.er!?~ U~\'~,l!lltl~D NIf'em~nt' "): United Statc! \'. Kn71.~nll Citll
<br />.""/t 'Nno flU'c_ ~(J., .,,~J L..'o;. I,J.I. ~~t>.~ (~9"JO~ ("It 1", tInt the brn,'uJ can_~litutl(),,:j} rlOrn:r to
<br />r"f'.t:ulll.l" ('tlllllll"n:'('_ hilt mtlll'r thp f;C'r\.!tull... tlf'rl\'ed from tllat puwer nnd llll.rrower in
<br />!;CUJl.... that sa\"(''' tI,.. G"\'l'rnUlO-nt [reml IInhllitv In tht!~e C:1S"'~. '''ill'lI the GO\"t'rnlllPnt
<br />('"{"r<'ls,.;; fh\f; ~l'n.\tllcl('. if Is ,~x,'rci.dnJ::" Its p~lr;\jll')IJnt IlIlWl'r III the IlIt,~r('!'t (If na\'I:':llti,)D,
<br />.rath"r thun takln:.: tht' prlnlle [Irol'...rt~. /If Illl\"on('.") -
<br />. 'fld!' f'XIILlna\llln III \I1l"1I1.lsfaClor.\' 1"'1" h\'(; rensoll~: Flrllt. tht> ~Qtllm('rC'(' dALJ"~ f11X'~ not
<br />ttllclf .'''''".Ipt t'rnm Ih~ T"tllllrf'l,ll~'n.t of. thl' firth nlll"llllllll'nt tl'at j\1!'t "l1lllpl'Il!':\lion h" 1'.lld
<br />f~! '.t I.tkllll!. M'JlIIIII!IIlIi('/'1 ,\"1"I(lIItlO'l Co. \". Vnitcrt ,'Itnfl'I<, 1.}8 US. 312. ;:31] (1~{j3)
<br />{ ]1\;,' fh,' "tlll'r pn\\"l-rll g-rllnt",1 !tl CongTI'ss h~' tIll" C\)n~titllti"n, tltP. Ilow,'r to rl'l:ulate
<br />COmll1l'rl~" II< slIhjl'ct t.. /Ill 11Lp Ilmltntlol1" Impo.."(] hy ~ueh IIl>ltrllm"llt, nll.ll1lllnnl: tl'l'1lI Is
<br />thllt (Of thO' fifth :11lll'n,lllI"nt . . '". CllUl::rt!!:'s ]In!'! J;llllrl'llH! control O\'l'r the r"l:llll1ti,Hl or
<br />conllnl'r('(\ hut If, In ":o::C'rcl~ll1:: thnt !'lIPrC'II1'! COlltrol. It llN'm!l it ll"C""":tTY to tnke prIvate
<br />PrI'P"rf.\', tl'/'n It . '" . cnn take on13' 1)11 pa.\'llL...nt of jll!'t I"OlTlp('nlSnti..n'. Thi"' ll"wer' to
<br />rN:"IlI:tI,. ""~"lIl1'I'('.': I~ 1I0t dn'n.lll nl1.\' ol'oad.'r I"rm~ thun Ihat to "ktnl,li<;h I'O"-C olli('l'~ Ilnd
<br />po!'t r"Il(I~. hut If Cnn~I'f'I;,l wl!'ht'!l to ta\;... prl\'nt", prnp"rt~. upon Wll,('h to hulld f1 J1flSt
<br />(J1fi(~l'. It IIlllst plIhl'r Il~r"e '111"11 tllf' Pl"\l'l' \\ Ilh tilt" O\\'lll-'r or III (,fllld"lIInalloll pn~' lllst
<br />Ccrr~1l"'f..".1floll clt"r""r",.."/ """('(0/1(1, eh.. '''II.tC":lC!,'n ..wnlet/dc-I!" 11 !';t;,t... ,""rI'iimll' ll." ':""il us
<br />1\ I.,:.l..'~nt 0111'. ~"". fnr t""111l1pl,'f'. jl,,' enl,lI'l:11 lIn.l 1'111-1.\' ~t:1tel:.1':"';: allll "tatlll"!' ,.,'lI,~C'ted
<br />In, -"IUIe/I! \': nOI':"'!I. ".IIPI"II. \lof,' S7, fit ]~ If. SI!~ ol-;n, P"llIli!llrUIII" Y. 1\"1lc.di711]'IlIlG
<br />LJtI/II 1111 t RIll!!!" ,1.0., l." lTuw. -121. -I:~::: (1....;;1;): ".\ clll~!' .If l:.l"C'll tll:lt hll\'" iretll'H'ntlv
<br />occlIrro'rl In f1,.' ~f:'f" t','"rtll c"lIt;\lll l'rilld..I,';o. nnalo1!"ll>; to th.hf' 111\'"I\"l'cl in Ihl' pr{'~"n't
<br />('1I~". TI,., 1"~r"I): 1I,t.'rnlll ~tr,'ams (,f 1\ Stllt., whkll :lrC! nnl'l!!ahl{' hl'lunr: 10 Ih" rip:Jri:Jn
<br />O~III'~q"t,) t 11 thl.'~'1 of Ill" .:;frO'lllll, nn'l, as <.;1I('Jl. fll,'y hl\ve /I ri;.:ht tn llIH' Ih~ W.1t"r!! and
<br />tI (1,1., n a.lh, fl~r th~ Ir ,,"'11 prl\'.ltr'l-n\llllllll('llt. !'uhJ"I't 1l1l1,\' 10' 1111' 1'11111\,' rlc:hl /lr I1nd~.ltl')n.
<br />T/':.I..ft.I.1.\ I'".."trlllf "I'lIn.,>,..r "'1111';"" '-""Ill", f"r Ih.' I'url'O"" .11' "'lll'.i",'ll".: tll,' "'lr,':lm to
<br />tl" \.IIIIIlh< II""" I" 11'101"11 It lIln.\'l.., JlPl'llc.t!. "lIhh'l't to Ihl~ plll,ll,....,,,.'.l1l'.llt nllt Ir th"1l1'
<br />IIfrndllr"i< 11lJ11.'r1.tll.v lnt('rfl:rt! with 111" puhllc rIg-hI, thp obslrlll'tlnll ]lla\.'III' rt'I;IO\'f'll or
<br />Atlltlt'" OR n IlllhllC' IllllfollllH"'.' . .
<br />'d PI Thl,. I.. .."t 11,r: 1,1.\I~'~ tn .1f"'Cllll<l In llC'lall tll... "'(In!<lItlltlonal founl1utl,'n" nn w!tl...h th""fl
<br />f!T,'I"l'lrI"lIt!l rl.!'t. It 1LlllY I", I'nllltl',l Ol1t, h"w('\'"r. fhnt thl! c"1I>1111n!lon:tllty or l\',[,.rnl
<br />hyrlrowll'ctrl(' ,1"'\"']')JHllPllt. h.l',lr,,,'I,,(.trlc r"~'ll:llioll. nll.1 no(,,1 etllll1tl] ""Iil'irj,,~ ]1'1." i" 11I."'t
<br />Cll!'l'!! h~c]) ~;]:<lc,l. on th,cir r('ll1tlnn to Illl\'l::::nt!oll. Ari:o'HI v. CflliJonli". 2~3 U.S. 423
<br />(J!).'II ~., I, rllll<l ,~/qln \.;, A ppll/"('lIi'l1f {>nf(1rr (:n., :11 J U.~. :1.7 (19-1(1): OklnhQll1II \'. ftU/I
<br />F. Afl~,tl1l1",!, Co.. :I1:1 T~.:-;. r.o.'! (to.} 1 ) ; Ul1if('rf StllfCII \'. Tlcin City P'm',;" Go.. IIllprn, Ilnte
<br />01). (rh{' r"nnt'!'!'o:!e 'alll'.\' ,\nthflrlt.v, on tile olh,~r hnlld_ t:::ot Itft prllllnn' c"n~tll'lllonal
<br />et/lrt In th(, wnr ~I):,'(,T c1nm'l'. Allhl'll'lI1,lf'r \". T('nffC..llce VfJllC11 Au1horiti,. 2!). U.~ 2"S.
<br />(I!):\fi).) In ot l~ll!'t p,ome Inf'tunce!l thl!! OppTo:lch lel\ve9 the Imprl'l<!'ion or:\ nn\"lJ::'atlnn
<br />tnll rwat:J:'ln~ n h).tlro('l('ctrlc ('hlJ::'. Wider and probably more "'MII'fnctoTY bfl~~!I con be
<br />toun I, In the cn"'l' of Fcrlr.rnl f1e\'('lopm('nt!'!, In thc ~l'ner!ll welfnrp clall<;(" approflch which
<br />the COll!t took with r("!llwct to Irrlt:atlon In Uniletl Stn/ell v (/crlnch Lil'e l:.:tock Co :l~9
<br />U51. i:!O\. 7;:~ (11l:00) rind h""lhof' In'i/II/linn nilftrid v l;(,I'''(Ir.~'rn .{"- \r ~ ,,-~' :'n4
<br />(10:iS). /lml. In. the cap,e of F('llNnl rpl;"ulntlon.. in 1\ full 'nppll~ntinn ~i ~he ",i;~.l!;:il~D-'ln
<br />Mr. .Tllfltl,',. R"...,l'>I opInion In tILl' .4,IT,..f,tl'lli"lI ['flIr(',. Co. {'f1"',~. "'''II''". /It -12fi. thllt "It f':lnnot
<br />nrOJlf'rl,v b(t Iluld tll/lt the conHfUutlonnl pnwer or the Unlt('rl s.tnt('!! Mer ltl'! wnt('rs III
<br />Imlted to C!ontrol fur nn\'IJ:'ntlon nnd thnt ."in truth, the I\uthorlty or the Unlt('u Stntell
<br />hI t1l(" T~.l!lllntlon'nf ('omm("'('e on rh...tt"r, 'in nnll on''!J,ltlll Wnl"r~" or whl...h ll,)(.,l pr,lt"c-
<br />.tlon, waterl;hf'd dev('}opmC!nt, the utUltntlon or power, etc., are merel)' pnrt!!!. See, /llso,
<br />:iankturter, .1_, dls!lcntlnQ'.I. In FI,..e .fo'oa HJI(lro"Elcctric Coopc"lJtfvc '". Fedcral POlrcr
<br />ol1tmu6lon,llIpro, Dlltl) ]fj at ]88: Wit. ~re ~J~ Agreed tbat Congre!lll bn.8 the ('DJ:Illtjtu-
<br />
<br />..
<br />
<br />1<' 10 W:l11. nt :iO:l. cr. I:COIIOIII/1 LifJht mId "I)U:r.r Co. v. Unite" 8tatclt, 2G6 U.S. 113
<br />(1~1:!1) \\I...r,' till' CIIlIrt 1",,1;, a 1'"...1111011 rll'pr"xlmaflnc: Ihut or "UI1Cl' nf1\'!j::-ul,j", III fll<.t,
<br />tllro~\"+'r 1l11\'Ij.:nbl,' III 11Iw" :\Ild "II{fI-d St,{!f-. ". Aprl11al.'1/in1l l'OII'/'r CD., hlJrll, lIotc 01,
<br />where II pflllltrll ..lit (at 807) thl\t-
<br />. ^ \\':11"1"\\':13', "th.'rl\'I".~ !ol'lltnhh' ror Ilnd'::;1llh1n, III not hnrrl'd fn.m thnt c]nRlllfl('lltlon
<br />Dlt'p'I.\' 1".C:llIhl' nrtllldal nl(!:. IDU!lt mnke the hlghwny !!ultnblc for Ufle bcrore commercl31
<br />lJ1I\'I;:utllll' Ill:! I' h,' IIlHlertllken.
<br />...., l'IlIpJ"fl, lIot(' 4i.
<br />.... For f'xamlll~ "ec Wtllllll/l v. BlIlck-bird Crcck .Uorah CI).. ""pra. note 47: Mllrtln v"
<br />WIlII".II'II IJCNIffr.. In l'pt. 367. .no (1842) : PCllllRlIl",lnin v. lVhcelill{1 alld ncrmont DrMafJ
<br />r.o.. I<lIpm, n..tt" 7:-, nt [,1:4: (}ihIHW \". Plli1ndcTphill, ::I Wnll. 713. .20 (l8f;fij : Mum-for" Y.
<br />Wn,.i11Vdl. II Wnll. -12:1, -I:~(i (ll'fij) : Weber v. noarrJ oj H(I~bor Cnrnmi.!.rloncr"" 1R Wnll.
<br />~7, Ii:) f (t.'l7:\) : .1f/-(;/"I'I1,11I v.' Vi"l1uda, 9-1, U.S. :lD2, 304 t fIS17) ; Pounll v. Turck, D5 U.S,
<br />4aO 4fi-l (If'j'Rl . HamfUon v Vicbrlllro, Shrel1f'port IIn(1 Pacific Rai-koml CO'.l IIUp,.a, Dote
<br />15 ;It 2.\n: Ilubokl':fI. V. J'cnnlllth'l1"ifl. Railroad Co" 124 U.S. O~6, 688 (18~8); nUn.tri.
<br />Crntrl11 HfJil"olll1 CO, V. lIIhwl., 146 U.S_ 387, 435 (1892) ; Glbllon. v. UflUetl Stote.. 168
<br />U.S_ 2MI, 272 (1f'01). The lut ot the~ casel appear. to be.the.6tBt 10 wblcb tbe term
<br />.'fJervltu(I{''' 1ft u!!ed, - '
<br />., Ui2 U.S. 1 11 (189H. ' -'
<br />.. ("bRon V. I;,.UCII BtlItCll'. lIupra, note 88.
<br />
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