NO. 128, ORIGINAL IN THE SUPREME COURT OF THE UNITED STATES ________ OCTOBER TERM, 2003 ________ STATE OF ALASKA, Plaintiff, v. UNITED STATES OF AMERICA, Defendant. ________ REPORT OF THE SPECIAL MASTER ON SIX MOTIONS FOR PARTIAL SUMMARY JUDGMENT AND ONE MOTION FOR CONFIRMATION OF A DISCLAIMER OF TITLE GREGORY E. MAGGS Special Master Washington, D.C. March 2004 TABLE OF CONTENTS I. INTRODUCTION .............................. 1 A. Procedure .................................. 1 B. Terminology and Basic Principles ............... 5 II. HISTORIC INLAND WATERS (Count I) ........... 9 A. Overview ................................. 10 B. Appropriateness of Summary Judgment .......... 17 C. Documents Submitted and Their Interpretation ... 23 1. Period of 1821-1867 ....................... 23 a. The Russian Imperial Ukase ............... 24 b. Treaties with the United States and Britain .... 25 c. The Dryad Incident ...................... 30 d. Expiration of the Treaties .................. 32 e. The Loriot Incident ....................... 33 f. State Department Notice to Mariners ......... 37 2. Period of 1867-1903 ....................... 38 a. The 1871 Treaty with Britain ............... 39 b. Fur Seal Arbitration ...................... 40 c. Statements by Government Officials ......... 42 3. The 1903 Boundary Arbitration Tribunal ....... 56 4. Period of 1903-1959 ....................... 63 a. North Atlantic Fisheries Arbitration ......... 63 b. Federal Fisheries Regulations .............. 65 c. League of Nations Conference .............. 72 d. A-B Line Negotiations with Canada ......... 75 e. Position of the State Department ............ 82 f. Hearings on Statehood Legislation ........... 85 g. General Policy Regarding Coastal Islands ..... 86 i TABLE OF CONTENTS (Continued) h. United Nations Studies ................... 88 5. Post-Statehood Period from 1959-Present ...... 89 a. The Organized Village of Kake Decision ...... 89 b. The United States v. California Brief ......... 96 c. The Pearcy Charts ....................... 99 d. Coastline Committee and Disclaimer ....... 101 e. Legal Adviser’s Memorandum ............. 103 f. Transit by Foreign Vessels ................ 104 D. Assessment of the Documents as a Whole ....... 107 1. Exercise of Sovereign Authority ............ 109 a. Documents Best Supporting the United States ...................................... 109 b. Documents Best Supporting Alaska ........ 115 c. All Other Documents .................... 126 d. Conclusion ............................ 129 2. Continuity of Exercise of Authority .......... 129 3. Acquiescence of Foreign Nations ............ 131 4. Vital Interests of the United States ........... 133 5. The Tarr Inlet Problem .................... 136 E. Conclusion ............................... 137 III. JURIDICAL BAYS (Count II) .................. 138 A. Overview ................................ 138 B. Factual Summary .......................... 142 1. North Bay and South Bay .................. 142 2. Sitka Sound ............................ 145 3. Cordova Bay ............................ 146 C. Assimilation of Islands ...................... 147 ii TABLE OF CONTENTS (Continued) 1. Factors Considered in Prior Cases ........... 148 2. Preliminary Disagreements about Factors ..... 153 a. Identity of Intervening Waters ............. 153 b. Configuration or Curvature of the Coast ..... 160 c. Size of an Island ........................ 162 d. Distance between Shores ................. 164 e. Tide for Assessing the Intervening Waters .... 165 f. Social and Economic Connections .......... 168 g. Effect of Dredging and Improvements ....... 169 h. Geologic Origin of the Islands ............. 171 i. Special Treatment of Fringing Islands ....... 172 j. Geographical Obviousness ................ 174 k. Sovereign Interests ...................... 176 3. Analysis of Factors ....................... 177 a. Kuiu Island and Kupreanof Island .......... 177 b. Kupreanof Island and Mitkof Island ........ 181 c. Mitkof Island and Dry Island .............. 185 d. Dry Island and the Mainland .............. 189 e. Partofshikof Island and Kruzof Island ....... 193 f. Kruzof, Baranof, and Partofshikof Island ..... 194 g. Prince of Wales Island and Dall Island ...... 196 4. Conclusion with Respect to Assimilation ..... 197 D. Juridical Bays under Article 7 ................ 198 1. Definition of a Bay under Article 7(2) ........ 199 2. Precedent under Article 7(2) ............... 200 3. Preliminary Disagreements ................ 201 a. Measurement of the Width of the Mouth ..... 201 b. Measurement of the Penetration of Bay ...... 205 iii TABLE OF CONTENTS (Continued) c. Assessment of “Proportion” ............... 210 d. Meaning of “Landlocked” ................ 212 4. Application of Article 7(2) ................. 214 a. North Bay ............................. 214 b. South Bay ............................. 222 c. Cordova Bay ........................... 225 d. Sitka Sound ........................... 225 5. Conclusion ............................. 226 E. Conclusion ............................... 226 IV. THE GLACIER BAY NATIONAL MONUMENT (Count IV) ................................. 227 A. Overview ................................ 227 B. Analysis ................................. 229 1. Inclusion of Submerged Lands .............. 230 a. Notice to Congress of Inclusion ............ 232 b. Purposes of the Reservation ............... 242 2. Retention of Title at Statehood .............. 264 a. The Alaska Statehood Act (ASA) .......... 264 b. Function of ASA § 6(e)’s Proviso .......... 267 c. Coverage of ASA § 6(e)’s Proviso .......... 273 C. Conclusion ............................... 276 V. THE TONGASS NATIONAL FOREST (Count III) ........................................... 276 A. Overview ................................ 277 B. The Proposed Disclaimer .................... 282 C. Confirmation and Dismissal .................. 284 iv TABLE OF CONTENTS (Continued) 1. Positions of the Parties and Amici .......... 286 2. Analysis ............................... 288 D. Conclusion ............................... 294 VI. CONCLUSION ............................. 294 APPENDIX A Proposed Order Confirming the United States’ Disclaimer of Certain Marine Submerged Lands Within the Tongass National Forest .... 295 APPENDIX B Article 7 of the Convention on the Territorial Sea and the Contiguous Zone, Apr. 29, 1958, [1964] 15 U.S.T. (pt. 2) 1607, T.I.A.S. No. 5639. ................................. 299 APPENDIX C Graphic Depiction of Claimed Historic Wa- ters ................................... 301 APPENDIX D Graphic Depiction of Claimed Juridical Bays .. 303 APPENDIX E Chart Showing Dry Island, Mitkof Island, Kupreanof Island, and Kuiu Island .......... 305 v TABLE OF CONTENTS (Continued) APPENDIX F Chart Showing Kruzof Island, Baranof Island, and Partofshikof Island ................... 307 APPENDIX G Chart Showing Prince of Wales Island and Dall Island ............................. 309 APPENDIX H Large-Scale Map Showing Dry Island and Mitkof Island ........................... 311 APPENDIX I Illustration of the 45-Degree Test from Robert D. Hodgson & Lewis M. Alexander, Towards an Objective Analysis of Special Circum- stances: Bays, Rivers, Coastal and Oceanic Archipelagos and Atolls, Law of the Sea Insti- tute Occasional Paper No. 13 at 11, fig. 4 (Apr. 1972) ............................. 313 APPENDIX J Alaska’s Proposed Longest Straight Line of Penetration for South Bay ................. 315 APPENDIX K United States’ Proposed Longest Straight Line of Penetration for South Bay ............... 317 vi TABLE OF CONTENTS (Continued) APPENDIX L Alaska’s Proposed Longest Straight Line of Penetration for North Bay ................. 319 APPENDIX M United States’ Proposed Longest Straight Line of Penetration for North Bay ............... 321 APPENDIX N Chart of the Glacier Bay National Monument .. 323 APPENDIX O Chart of Tongass National Forest ........... 325 vii TABLE OF AUTHORITIES Cases Metlakatla Indian Comm., Annette Island Reserve v. Egan, 363 U.S. 555 (1960) .............................. 91 Alaska v. United States, 530 U.S. 1228 (2000) .......... 1 Alaska v. United States, 532 U.S. 902 (2001) ....... 4, 279 Alaska v. United States, 662 F. Supp. 455 (D. Alaska 1987), aff'd sub nom. Alaska v. Ahtna Inc., 891 F.2d 1401 (1989), cert. denied, 495 U.S. 919 (1990) .................. 290 American Title Ins. Co. v. Lacelaw Corp., 861 F.2d 224 (9th Cir. 1988) ..................................... 256 Argentine Republic v. Amerada Hess Shipping Corp., 488 U.S. 428 (1989) .................................. 7 Bowles v. Seminole Rock Co., 325 U.S. 410 (1945) .... 241 California v. Arizona, 440 U.S. 59 (1979) .......... 2, 285 Celotex Corp. v. Catrett, 477 U.S. 317 (1986) ......... 250 Coyle v. Smith, 221 U.S. 559 (1911) .................. 3 viii TABLE OF AUTHORITIES (Continued) Fisheries Case (United Kingdom v. Norway), 1951 I.C.J. 116 ....................................... 62, 208, 209 Idaho v. United States, 533 U.S. 262 (2001) .. 229-232, 234, 238, 239, 242, 243, 261 LaFargue v. United States, 4 F. Supp. 2d 580 (E.D. La. 1998) .............................................. 292 Lee v. United States, 809 F.2d 1406 (9th Cir. 1987), cert. denied sub nom. Lee v. Eklutna, Inc., 484 U.S. 1041 (1988) .............................................. 290 Leisnoi Inc. v. United States, 313 F.3d 1181 (9th Cir. 2002) .............................................. 290 Local Number 93, Intern. Ass'n of Firefighters v. City of Cleveland, 478 U.S.