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I I I I I I I I I I I I I I I I I I I 6 was flowing to the Gulf of Mexico. According to Carpenter, the net effect of this policy was to severely retard development in the San Luis Valley. Colorado, the headwaters state of the Rio Grande, was deprived of its constitutional right to reclaim lands and develop economically. Not only was confidence in the United States government impaired, but the "comity [courtesy] existing between the states [New Mexico and Colorado] in their common cause for the welfare of the [R]epublic" was disturbed by Interior's embargo policy.9 The spirit of cooperation was abrogated by the heavy-handed tactics of the Reclamation Service. Similarly, Carpenter noted, the Department of the Interior's 1908 construction of Pathfinder Reservoir on the North Platte River in Wyoming was effected prior to accomplishing any kind of water use agreement between the two states sharing that river. In his view, the reservoir "created a monopolistic appropriation of the river and [was] in the hands ofa power beyond the jurisdiction of either state. . . ."10 The rights of Colorado were ignored. Funds were expended, structures were built and Colorado faced a servitude (enslavement) on the North Platte against its will, for the benefit of Wyoming and without recourse through its sovereign right of eminent domainY For Carpenter, the lesson was obvious: "[B]efore any great works are constructed with Government funds on certain of our western rivers, for generation of power or the reclamation of arid lands, compacts respecting jurisdiction and use of the waters of the river should first be made between the United States and the [i]nterested [s]tate or [s]tates." While time would be required to formulate compacts, Carpenter believed that settlement of the respective rights of the states prior to the commencement of government