kaiser aetna argued october decided december dredging filling operations developing subdivision community petitioners owner lessee area included kuapa pond shallow lagoon island oahu hawaii contiguous navigable bay pacific ocean separated bay barrier beach converted pond marina thereby connected bay army corps engineers advised petitioners required obtain permits development operations pond petitioners ultimately made improvements allowed boats access bay petitioner lessee controls access use pond hawaii law private property fees charged maintaining pond thereafter filed suit federal district petitioners resolve dispute whether petitioners required obtain corps authorization accordance rivers harbors appropriation act future improvements marina whether petitioners deny public access pond result improvements become navigable water examining scope congress regulatory authority commerce clause district held pond navigable water subject regulation corps held government lacked authority open pond public without payment compensation owner appeals agreed pond fell within scope congress regulatory authority held reversing district petitioners converted pond marina thereby connected bay became subject navigational servitude federal government thus giving public right access petitioners private pond held government wishes make formerly kuapa pond public aquatic park petitioners proceeded far may without invoking eminent domain power paying compensation require allow public free access dredged pond although dredged pond falls within definition navigable waters used term delimiting boundaries congress regulatory authority commerce clause never held federal navigational servitude creates blanket exception takings clause fifth amendment whenever congress exercises commerce clause authority promote navigation congress light extensive commerce clause authority nation waters depend stream navigability may prescribe rules governing petitioners marina may assure public free right access marina chooses whether statute regulation goes far amounts taking entirely separate question government attempt create public right access improved pond goes far beyond ordinary regulation improvement navigation involved typical riparian condemnation cases amount taking requiring compensation cf pennsylvania coal mahon pp reversed rehnquist delivered opinion burger stewart white powell stevens joined blackmun filed dissenting opinion brennan marshall joined post richard charles bocken argued cause petitioners briefs george richard morry kathryn oberly argued cause brief solicitor general mccree assistant attorney general moorman william alsup raymond zagone martin green charles marshall filed brief louisiana landowners association amicus curiae urging reversal justice rehnquist delivered opinion hawaii kai marina developed dredging filling kuapa pond shallow lagoon separated maunalua bay pacific ocean barrier beach although hawaii law kuapa pond private property appeals ninth circuit held petitioners converted pond marina thereby connected bay became subject navigational servitude federal government thus public acquired right access petitioners private pond granted certiorari importance issue conflict concerning scope nature servitude kuapa pond apparently created late pleistocene period near end ice age rising sea level caused shoreline retreat partial erosion headlands adjacent bay formed sediment accreted form barrier beach mouth pond creating lagoon covered acres island oahu hawaii extended approximately two miles inland maunalua bay pacific ocean pond contiguous bay navigable waterway separated barrier beach early hawaiians used lagoon fishpond reinforced natural sandbar stone walls prior annexation hawaii two openings pond maunalua bay fishpond managers placed removable sluice gates stone walls across openings water bay ocean entered pond gates high tide low tide current flow reversed toward ocean hawaiians used tidal action raise catch fish mullet kuapa pond hawaiian fishponds always considered private property landowners hawaiian government ponds integral part hawaiian feudal system allotted parts large land units known ahupuaas king kamehameha iii great mahele royal land division titles fishponds recognized extent manner rights orthodox fast land kuapa pond part ahupuaa eventually vested bernice pauahi bishop death formed part trust corpus petitioner bishop estate present owner bishop estate leased area included kuapa pond petitioner kaiser aetna subdivision development development known hawaii kai kaiser aetna dredged filled parts kuapa pond erected retaining walls built bridges within development create hawaii kai marina kaiser aetna increased average depth channel two six feet also created accommodations pleasure boats eliminated sluice gates petitioners notified army corps engineers plans corps advised required obtain permits development operations kuapa pond kaiser aetna subsequently informed corps planned dredge channel connecting kuapa pond maunalua bay pacific ocean increase clearance bridge kalanianaole highway constructed early along barrier beach separating kuapa pond bay ocean maximum feet mean sea level improvements made order allow boats marina enter return bay well provide better waters corps acquiesced proposals chief construction commenting deepening channel may cause erosion beach time trial community approximately persons surrounded kuapa pond included approximately marina waterfront lot lessees lot lessees along least nonmarina lot lessees hawaii kai boatowners residents hawaii kai pay fees maintenance pond patrol boats remove floating debris enforce boating regulations maintain privacy security pond kaiser aetna controls access use marina generally permitted commercial use except small vessel marina queen carry passengers used five years promote sales marina lots brief period marina shopping center merchants attract people shopping facilities dispute arose petitioners corps concerning whether petitioners required obtain authorization corps accordance rivers harbors appropriation act future construction excavation filling marina petitioners precluded denying public access pond result improvements become navigable water dispute foreseeable ripened lawsuit government petitioners district district hawaii examining scope congress regulatory authority commerce clause district held pond navigable water thus subject regulation corps rivers harbors appropriation act supp held however government lacked authority open dredged pond public without payment compensation owner reaching holding district reasoned although pond navigable purpose delimiting congress regulatory power navigable purpose defining scope federal navigational servitude imposed commerce clause ibid thus district denied corps request injunction require petitioners allow public access notify public fact pond accessibility appeals agreed district conclusion pond fell within scope congress regulatory authority reversed district holding navigational servitude require petitioners grant public access pond appeals reasoned federal regulatory authority navigable waters right public use consistently separated public right navigational use renders regulatory control necessary public interest question us whether appeals erred holding petitioners improvements kuapa pond caused original character altered became subject overriding federal navigational servitude thus converting public aquatic park petitioners invested millions dollars improving assumption privately owned pond leased kaiser aetna ii government contends petitioners may exclude members public hawaii kai marina public enjoys federally protected right navigation navigable waters brief claims issue dispute whether kuapa pond presently navigable water ibid petitioners dredged improved kuapa pond government continues pond although may qualified fast land became navigable water public thereby acquired right use kuapa pond continuous highway navigation corps engineers may consequently obtain injunction prevent petitioners attempting reserve waterway position advanced government adopted appeals presumes concept navigable waters fixed meaning remains unchanged whatever context applied fully agree reasoning district agree conclusion cases dealing authority congress regulate navigation navigational servitude simply lumped one basket district aptly stated reliance upon judicial precedent must predicated upon careful appraisal purpose concept navigability invoked particular case true kuapa pond may fit within definitions navigability articulated past decisions must recognized concept navigability decisions used purposes delimit boundaries navigational servitude example define scope congress regulatory authority interstate commerce clause see appalachian power south carolina georgia montello wall daniel ball wall determine extent authority corps engineers rivers harbors appropriation act establish limits jurisdiction federal courts conferred art iii constitution admiralty maritime cases although government clearly correct maintaining dredged kuapa pond falls within definition navigable waters used term delimiting boundaries congress regulatory authority commerce clause see daniel ball supra montello supra appalachian power supra never held navigational servitude creates blanket exception takings clause whenever congress exercises commerce clause authority promote navigation thus kuapa pond may subject regulation corps engineers acting authority delegated congress rivers harbors appropriation act follow pond also subject public right access reference navigability waterway adds little anything breadth congress regulatory power interstate commerce long settled congress extensive authority nation waters commerce clause early history held power regulate commerce necessarily includes power navigation gibbons ogden wheat stated gilman philadelphia wall commerce includes navigation power regulate commerce comprehends control purpose extent necessary navigable waters accessible state lie purpose public property nation subject requisite legislation congress properly said constitutional power waters limited control navigation truth authority regulation commerce waters navigability part whole flood protection watershed development recovery cost improvements utilization power likewise parts commerce control authority broad needs commerce point navigable waters subject national planning control broad regulation commerce granted federal government light expansive authority commerce clause question congress assure public free right access hawaii kai marina chose whether statute regulation went far amounted taking however entirely separate question pennsylvania coal mahon recently pointed penn central transportation new york city generally unable develop set formula determining justice fairness require economic injuries caused public action compensated government rather remain disproportionately concentrated persons rather examined taking question engaging essentially ad hoc factual inquiries identified several factors economic impact regulation interference reasonable investment backed expectations character governmental action particular significance ibid taking question involved exercise public right navigation interstate waters constitute highways commerce however held many cases compensation may required result federal navigational servitude see navigational servitude expression notion determination whether taking occurred must take consideration important public interest flow interstate waters natural condition fact capable supporting public navigation see cress thus supra stated running water great navigable stream incapable private ownership holding riparian landowner entitled compensation construction pier cut access navigable water observed primary use waters lands purposes navigation erection piers improve navigation public entirely consistent use infringes right riparian owner whatever nature interest riparian owner submerged lands front upland bordering public navigable water title full complete title fast land direct connection navigation water qualified title bare technical title absolute disposal upland held times subordinate use submerged lands waters flowing may consistent demanded public right navigation scranton wheeler factual situation case different typical ones involved riparian condemnation cases see little point tracing historical development doctrine indeed since decision rands closely following decisions virginia electric power twin city power elements compensation government must pay condemns fast lands riparian navigable stream remained largely settled distinctions cases one hand kansas city life ins may seem fine indeed light hindsight perhaps reason hindsight exercise shifting back forth area recent decisions bears sound old unhappy things battles long ago denying strict logic recent cases limiting government liability pay damages riparian access carried ultimate conclusion might completely swallow private claim compensation fifth amendment even situation different riparian condemnation cases one justice holmes observed different context life law logic experience navigational servitude exists virtue commerce clause navigable streams gives rise authority government assure streams retain capacity serve continuous highways purpose navigation interstate commerce thus government acquires fast lands improve navigation required eminent domain clause compensate landowners certain elements damage attributable riparian location land value hydroelectric site twin city power supra port site rands supra none cases ever doubted government wished acquire fast lands required eminent domain clause fifth amendment condemn pay fair value interest see kansas city life ins supra virginia electric power supra rands supra nature navigational servitude invoked government condemnation cases summarized well anywhere willow river clear course head water value company economic interest keeping croix lower level economic interests property rights economic advantages rights law back recognized may courts compel others forbear interfering compensate invasion government attempt create public right access improved pond goes far beyond ordinary regulation improvement navigation amount taking logic pennsylvania coal mahon one factor contributes result clear prior improvement kuapa pond incapable used continuous highway purpose navigation interstate commerce maximum depth high tide mere two feet separated adjacent bay ocean natural barrier beach principal commercial value limited fishing consequently sort great navigable stream previously recognized incapable private ownership see twin city power supra previously noted kuapa pond always considered private property hawaiian law thus interest petitioners dredged marina strikingly similar owners fast land adjacent navigable water slightest doubt government refused allow dredging ground impaired navigation bay conditioned approval dredging petitioners agreement comply various measures deemed appropriate promotion navigation petitioners body water private property hawaiian law linked navigable water channel dredged consent government consent individual officials representing estop see montana kennedy ins hibi lead fruition number expectancies embodied concept property expectancies sufficiently important government must condemn pay takes management landowner property case hold right exclude universally held fundamental element property right falls within category interests government take without compensation case government exercising regulatory power manner cause insubstantial devaluation petitioners private property rather imposition navigational servitude context result actual physical invasion privately owned marina compare andrus allard ante traditional taking fee interests ex rel tva powelson miller even government physically invades easement property must nonetheless pay compensation see causby portsmouth thus government wishes make formerly kuapa pond public aquatic park petitioners proceeded far may without invoking eminent domain power paying compensation require allow free access dredged pond petitioners agreement customers calls annual regular fee accordingly judgment appeals reversed footnotes title provides creation obstruction affirmatively authorized congress navigable capacity waters prohibited shall lawful build commence building wharf pier dolphin boom weir breakwater bulkhead jetty structures port roadstead harbor canal navigable river water outside established harbor lines harbor lines established except plans recommended chief engineers authorized secretary army shall lawful excavate fill manner alter modify course location condition capacity port roadstead harbor canal lake harbor refuge inclosure within limits breakwater channel navigable water unless work recommended chief engineers authorized secretary army prior beginning petitioners challenge appeals holding hawaii kai marina within scope congress regulatory power subject regulation army corps engineers pursuant authority rivers harbors appropriation act government argues fact conversion accomplished private expense exempt kuapa pond navigable waters allow landowners dredge fast lands reshape navigable waters conveniently serve land exclude public navigable portions flowing site former fast lands unduly burden navigation commerce lack power commerce clause sanction form private property brief petitioners contend term navigable waters traditionally employed identify water subject federal regulation admiralty jurisdiction see infra page inherently unworkable regard hawaiian fish ponds represent meaningful equitable standard public private rights may determined pet cert efforts distinguish fast lands public rights waterways subject navigational servitude however subject litigation century absence something unusual situation presented hawaiian fishpond must fit decisions rather latter tailored exclude fishpond see republic steel deposit industrial solids river held create obstruction navigable capacity river forbidden rivers harbors appropriation act corps engineers adopted following general definition navigable waters navigable waters waters subject ebb flow tide presently used used past may susceptible use transport interstate foreign commerce determination navigability made applies laterally entire surface waterbody extinguished later actions events impede destroy navigable capacity cfr navigable water subject federal admiralty jurisdiction defined including waters navigable fact propeller genesee chief fitzhugh see also belfast wall ex parte boyer held jurisdiction extended artificial bodies water navigable water situated canal used purposes used highway commerce ports places different carried vessels question public water within legitimate scope admiralty jurisdiction conferred constitution statutes even though canal wholly artificial wholly within body state subject ownership control makes difference jurisdiction district one vessels time collision voyage one place state illinois another place state thus observed onfiscation may result taking use property without compensation quite well taking title chicago decide however whether circumstances one factors may disposition still fishpond shallow draft boats operated fisherman work evidence however even boats acquire access adjacent bay ocean pond although kuapa pond clearly navigable fact natural state dissent argue pond nevertheless navigable water prior development subject ebb flow tide post never held however whenever body water satisfies mechanical test government may invoke navigational servitude avoid payment compensation irrespective private interests stake see pueblo san ildefonso cl lutz stated justice brandeis essential element individual property legal right exclude others enjoying international news service associated press dissenting opinion justice blackmun justice brennan justice marshall join dissenting holds today absent compensation public may denied right access navigable waters created enhanced private means find conclusion neither supported precedent wise judicial policy dissent disagreement lies four areas first believe errs implicitly rejecting old ebb flow test navigability source navigational servitude government claims second accept notion believe without foundation precedent federal navigational servitude extend navigable waters third reach different balance interests question whether exercise servitude favor public access requires compensation private interests private efforts responsible creating navigability fact finally differ bearing state property law questions us today first issue view whether kuapa pond navigable water begins asking whether petitioners improvements kuapa pond caused original character altered became subject overriding federal navigational servitude ante thus assumes basis extension federal authority must arisen pond developed transformed marina choice starting point overlooks government contention advanced throughout litigation kuapa pond navigable water natural state long prior petitioners improvements virtue susceptibility ebb flow tide concedes precedent disclose single criterion identifying navigable waters read prior cases establish three distinct tests navigability fact navigable capacity ebb flow tide navigability fact used test scope dominant federal interest navigation since propeller genesee chief fitzhugh daniel ball wall test navigable capacity recent origin hails appalachian power used support assertion federal navigational interest river nonnavigable natural state capable rendered fit navigation reasonable improvements ebb flow oldest test three inherited england common law used define ownership navigable waters crown early days republic regarded exclusive test federal jurisdiction waterways country see thomas jefferson wheat waring clarke petitioners say test abandoned propeller genesee chief daniel ball favor navigability fact agree interpretation based upon language opinions suggesting test arbitrary bears relation suitable federal control application country indeed test see propeller genesee chief fitzhugh daniel ball one may acknowledge language without accepting petitioners inference propeller genesee chief daniel ball concerned extending federal power accommodate stark realities commerce former question whether admiralty jurisdiction included great lakes latter question scope federal regulatory power navigation river either case surprising contemplating substantial interstate commerce lakes rivers found test developed england island nation analogue rivers lakes unacceptable test extent federal power inland waterways cf propeller genesee chief fitzhugh inadequacy test defining interior reach federal power navigation mean test must must abandoned determining breadth federal power coasts test neither arbitrary unsuitable applied coastwise setting ebb flow tide define geographical chemical environmental limits three oceans gulf wash shores since bodies water main navigable treated navigable inner reach natural limits natural limits encompass water body kuapa pond contiguous maunalua bay natural state must regarded arm sea subject tides currents much bay take must concede least regulatory purposes pond current condition navigable water navigable fact see ante add pond navigable water prior development present marina subject ebb flow tide view importance attaches fact private development alternative basis navigability carries significant implications ii serious parting ways attends question whether navigational servitude extends navigable waters however latter may established holds least navigability whole part work private hands disagree notes tests navigability set forth originated cases involving questions federal regulation rather application navigational servitude ante also notes congress authority regulate aid navigation far beyond limitations navigability ante indisputable propositions concludes navigable waters purposes need navigable waters navigational servitude applies preliminary must recognized issue whether navigational servitude runs every watercourse federal government may exercise regulatory power promote navigation regulatory jurisdiction aid navigation extends beyond navigational servitude indeed beyond navigable water rio grande dam irrig example confirmed federal government power enjoin irrigation project limits navigable water rio grande river project threatened destroy navigability case federal authority kuapa pond stem solely effect navigable water elsewhere although might sound alternative basis regulatory jurisdiction instead authority arises pond navigable water advance analysis suggest might decide call certain waters navigable purposes nonnavigable purposes navigational servitude see ante knowledge case ever held although tests navigability originated contexts prior cases never attempted limit test navigability single species federal power indeed often referred navigable water public water see propeller genesee chief fitzhugh daniel ball event say kuapa pond somehow nonnavigable present purposes subject navigational servitude reason merely substitute one conclusion another sustain holding today believe must prove difficult contention navigational servitude extend waters clearly navigable fully subject use highway interstate commerce holds essence extent servitude depend whether waterway navigable tests whether navigable waterway natural privately developed view fact kuapa pond originally created natural forces separation bay maintained interaction natural forces human effort neither characterization seems particularly apt case one accept approach however still find servitude extends kuapa pond virtue status prior development test nevertheless think reasoning point flawed view power describe term navigational servitude extends limits interstate commerce water accordingly hold coextensive navigable waters recognizes ante navigational servitude symbolizes dominant federal interest navigation implanted commerce clause see scranton wheeler cf gibbons ogden wheat preserve interest national government given power regulate interstate commerce water also control waters maintain common highways forever free see act stat navigable waters northwest territory see gilman philadelphia wall national government guardian public right access navigable waters navigational servitude legal formula recognize paramount nature governmental responsibility often observed breadth federal power context twin city power example stated interest flow navigable stream originates commerce clause clause speaks terms power property power dominant one asserted exclusion competing conflicting one power privilege called dominant servitude superior navigation easement citations omitted twin city power recognized issue matter power property servitude order safeguard federal government paramount control waters used interstate commerce limits power create conflicting interests based local law control depend form water body manner created fact navigability corresponding commercial significance waterway attains wherever commerce occur kuapa pond honolulu harbor navigational servitude must extend iii conclusion navigational servitude extends privately created enhanced waters entirely dispose case remains question whether government resort servitude requires compensation private investment instrumental affecting improving navigability course concludes navigational servitude accordingly assertion public access constitutes compensable taking agree premise conclude right compensation opening pond public necessary result nevertheless think question requires balancing private public interests ordinarily hen government exercises navigational servitude exercising paramount power interest navigation rather taking private property anyone kansas city ins see also willow river lewis blue point oyster briggs gibson prior cases usually involved riparian owners along navigable rivers claim losses resulting raising lowering water levels navigable stream construction artificial aids navigation dams locks cases held compensation required loss water power due impairment navigable water flow twin city power loss head resulting raising stream willow river damage structures erected marks chicago loss access navigable water caused necessary improvements commodore park scranton wheeler loss value adjoining land based potential use navigational commerce rands also held compensation required obstructions bridges wharves removed altered improve navigation despite obvious commercial value erected despite federal government original willingness built see greenleaf lumber garrison union bridge cases establish key principle points way decision present context noncompensable loss related either directly indirectly riparian owner access use navigable waters rands however access use may turned account personal gain matter much riparian owner invested enhance value held rights shared public large actions taken improve value many caused reimbursable damage accident owning contiguous fast land previously enjoyed blessings common right greater measure see commodore park recognized encroachment rights inhering separately adjoining fast land virginia electric resulting access nonnavigable tributaries see cress might form basis valid compensation claim principal distinction compensable values nothing use navigable water application principle present case lead conclusion developers kuapa pond acted risk entitled compensation public access government asserts see union bridge chief value pond present state obviously value access navigable water development undertaken improve enhance value improve value pond aquatic species fast land petitioners question federal government plenary control waters bay vested right access open water since value pond motive improving lie access highway commerce drawn conclusion petitioners interest improved waters pond subject compensation whatever expectancy petitioners may control pond use fishery surrendered exchange advantages access cut channel bay contrast government interest vindicating public right access pond substantial interest maintaining common highways forever free today decision open developer claim private improvements waterway navigable interstate commerce transformed navigable water private property least extent may charge access portion improved appropriation navigable waters private use directly injures freedom commerce navigational servitude intended safeguard future cases course army corps engineers may alleviate danger conditioning permission connection waterways right free public access seems inevitable result today decision introduction new legal uncertainty field thought battles long ago ante achieved settled doctrine iv come finally question whether kuapa pond status state law alter conclusion drawn federal law assumes without much discussion kuapa pond equivalent fast land purposes hawaii property law sure support assumption present purposes prepared follow making see application kamakana haw nonetheless think clear local law concerns rights title use citizen citizen citizen state affect scope effect federal navigational servitude rights kuapa fisheries part hawaii law since great mahele unlike right use floor bay issue lewis blue point oyster briggs found entitlement compensation destruction oysterbed course dredging channel reasoned public right navigation dominant right must case title owner bed navigable waters holds subject absolutely public right navigation dominant right must include right use bed water every purpose aid navigation similar logic think hawaii state liberty local law defeat navigational servitude transforming navigable water fast land instead interests waters beds navigable water secondary navigational servitude thus believe case decided purely matter federal law state law control scope federal prerogatives foregoing reasons judgment appeals correct therefore dissent district found pacific tides ebbed flowed kuapa pond state supp haw tide entered two openings barrier beach also percolated barrier beach although arge areas land inland end completely exposed low tide entire pond inundated high tide ibid opinion also embraces distressingly implication amount private investment somehow influences legal result ante think consequences whether developer invested stresses ante millions dollars essentially reasons stated district stop short agreeing government contention pond shown navigable appalachian power test although petitioners found reasonable deepen pond private development surrounding land follow improvements equally reasonable viewed solely terms benefits navigational commerce addressing question quickly may cast aside distinction based qualifying phrase prior cases demonstrate phrase intended draw line waters may navigated intrastate subject navigation interstate foreign commerce see utah daniel ball wall since kuapa pond opens onto bay pacific ocean doubt may navigated interstate foreign commerce natural human contributions character pond described district sec cases compensation required private investment improvement navigation petitioners place particular reliance monongahela navigation case private company constructed locks dams along monongahela river order improve navigability company acted express authority state pennsylvania invitation subsequently congress authorized purchase condemnation one lock dam connection project improve upper waters river congress authorize compensation right collect tolls emphasized government role encouraging project held consequence lie power say lock dam obstruction wrongfully right compensation use improvement public belong owner navigation company subsequent decisions limited monongahela navigation rationale see lewis blue point oyster briggs greenleaf lumber garrison cf rands striking difference monongahela navigation case although army corps engineers originally may acquiesced improvement kuapa pond invite actively encourage development benefit public navigation difference significant monongahela navigation required compensate commercial value navigational improvements promoted case order maintain uniformly free navigation government must compensate improvements might undertaken liberty independently assess advisability opening pond navigation need reach question whether petitioners compensated value pond fishery government decided prior development hawaii kai either cut access bay dredge pond cf commodore park lewis blue point oyster briggs