mentation of the law, judicial decisions, and administrative interpreta-
tions have greatly amplified the original concept.
 The complexity of the management of scores of diverse projects in
17 States, and the essential scarcity of statutory guidance, have led
to contradictions in the implementation of the acreage limitation over
the years. There have also been rather overt differences among the
policy attitudes of the many Interior Secretaries historically respon-
sible for enforcement. Current acreage limitation policy is a combi-
nation of statutory and judicial law, precedent, tradition, equity, and
the practical limitations upon effective enforcement.
 In general, the Bureau of Reclamation and the Secretary have
interpreted Reclamation Law on a case-by-case basis and through a
series of legal opinions and Secretarial instruction. On August 9,
1976, pursuant to a case brought by the National Land for People, a
nonprofit organization, the U.S. District Court ruled that the Bureau
had not complied with the Administrative Procedures Act and en-
joined the approval of sales of excess lands in the Westlands Irriga-
tion District pending promulgation of rules and regulations.
 On August 25, 1977, the Bureau of Reclamation published pro-
posed regulations covering the administration of the Reclamation
Law. The regulations were believed by many Western irrigation
interests to be severe interpretations of the law, and in several re-
spects were in contradiction with current administrative practice.
 The promulgation of the regulations was subsequently injoined sub-
 ject to the completion of an environmental impact statement which is
 presently being prepared. The purpose of S. 14 is to provide a modern
 expression of congressional policy regarding Reclamation Law to
 resolve the many controversies which will otherwise result from the
 implementation of regulations.
 LEGISLATIVE HISTORY
 During the 95th Congress, several measures including legislation
 identical to S. 14 were introduced in the Senate. Hearings on the
 measures were held by the Committee on Energy and Natural Re-
 sources on April 12 and 13, 1978, at which time testimony was received
 from Administration and public witnesses. Consideration of the legis-
 lation was not completed prior to adjournment of the 95th Congress.
 Other than S. 14 the following bills to amend the Federal Reclama-
 tion Law or otherwise change the administration of the reclamation
 program were introduced in the Senate during the 96th Congress and
 were referred to the Committee on Energy and Natural Resources:
 S. 386, S. 633, S. 654, S. 672, S. 718, and S. 735.
 S. 14 was introduced on January 15, 1979 by Senator Church, and
 Senators Hatfield, Packwood, Bentsen, Laxalt, McClure, Melcher, and
 Baucus have joined as cosponsors. On March 20, the Administration
 submitted a favorable report on S. 14 with suggested amendments.
 On March 22, a hearing on S. 14 was held before the Subcommittee on
 Energy Research and Development at which time testimony was re-
 ceived from Administration and public witnesses. On June 20, the
 measure was considered by the Full Committee, and it was ordered
 reported with amendments on June 21, 1979.
 Similar legislation is presently pending before the House Commit-
 tee on Interior and Insular Affairs.