Bland, Chancellor.
To have a correct conception of the matter in controversy, it will he proper to recollect, that the city of Baltimore was laid out, and has grown up round the margin of a cove of the Patapsco river, near the mouth, and to the westward of the stream called Jones’ Falls, which passes through the city; that much of the margin of this cove was originally a marsh inundated at every reflux of the tide; that as the [454]*454only navigable entrance to this cove, is by a narrow channel from the east, every encroachment upon it, by wharfing or making fast land, following the directions of the streets of the city, must be from the north, from the west, or from the south; and that Gay street approaches this cove, now called the basin, in a direct line from the north, and terminates at its intersection, at right angles with Pratt street, a part of the south side of which passes a few feet above the head of what is now called Smith’s dock.
The land now claimed is a strip about twenty-nine feet wide, lying between the east side of Smith’s dock, and an elongation of the east side of Gay street, from the south side of Pratt street into the basin, a distance of about eight hundred and sixteen feet; with an east extension, at right angles from its south end, of about eighty-six feet. It appears, and is admitted, that the tide water of the basin originally flowed a considerable distance above the present termination of Gay street; that the patent for the tract called Cole’s Harbour, included the lands, on which this part of the city was laid out, only to the line of the tide water as it originally flowed, and no further; that no patent had ever been issued for any part of the land which was originally covered by the tide water of the basin; that the whole of the strip of land in question, at one time, formed a part of the bed of this navigable basin; that John Smith, who was the owner of a lot on Gay street extending to the tide, applied to the port wardens of Baltimore for permission to extend his wharf into the basin, together with ten or fifteen feet of Gay street; that, on the 26th of September, 1786, permission was granted to extend his wharf, as prayed, until it intersected a line drawn east from a point eighty feet south of the south side of Conway street, and parallel thereto, together with eleven feet of Gay street continued a long the front of said -wharf; but instead of taking only eleven feet, the wharf was carried out, as it now is, to about twenty-nine feet on Gay street; that this strip of land had been altogether made and raised upon the bed of the basin by John Smith and others, who completed it about the year 1796 ; and it was not, in any sense, an alluvion, or attached as such to any other fast land; that, upon ground made near and fronting the whole of this strip of land, warehouses had been built; and that John Smith, and those who claimed under him, for some years, charged and received wharfage; but in the year 1803, the city began to collect wharfage, and continued their collections until about the year 1828.
[455]*455These claimants found their prayer for patents upon the facts, that the state had never, at any time, either by a grant from the Land Office, or, in any other legal manner, parted with its right of soil, in the land in question to any one; and that it is such a piece of grantable land for which they now may; or any one else might have obtained a patent, according to the rules of the Land Office, upon payment of the composition money.
On the other hand the caveators contend, that no patents can be allowed to issue; because the strip of land in question was a public wharf on which they, during many years, had charged and collected wharfage; and the right of soil in all such wharves had been virtually vested in them by the act which gives them the right to charge and collect wharfage;
The Land Office has always been, as it now is, the general market in which all public lands have been offered for sale; and into which any one capable of holding real estate might come and purchase according to the prescribed rules and terms of sale. This office, so peculiar in its nature, evidently originated from the circumstance of the right of soil of the whole country having been vested exclusively in the Lord Proprietary as a part of his private estate; and from the whole territory being at that time vacant, and held by tribes of savages in their national capacities, and not as [456]*456property belonging to individuals in separate parcels. (b) The charter of Maryland not only vested the right of soil in the Lord ¡Proprietary, but it also clothed him with certain political and regal powers within his province; and hence, in establishing a Land Office, ,and laying down rules for the sale of the great body of his real estate, he followed, in many respects, the forms which had been adopted in England for the purpose of preventing fraud and imposition in obtaining grants of property from the king ; and all grants of land here were accordingly required to pass under the supervision of the Chancellor; and to be attested by the great seal of which he was the keeper. If the rules of the office were complied with., and the purchase money paid, a grant for the land was issued as of course, otherwise not. (c) Among the earliest act's of the Provincial Legislature was one, which declared it to be illegal for any individual to purchase lands of the Indians to the prejudice of the rights of the Lord Proprietary. (d)
The mode of proceeding for the purpose of contesting the right to a patent by a caveat, being interposed against its issuing, was substantially the same here as in England, (e) From the judg[457]*457ment pronounced by the Chancellor, upon a caveat, there was no appeal to a higher court as from a decree in an ordinary contro[458]*458rersy between individuals; because the decision on a caveat was not, in any way, conclusive of the right. If the patent was [459]*459refused, on account of the rules of the office not haying been complied with, still the Lord Proprietary, like the king, might dispense with all rule, and give a patent at his pleasure ; or if, on the other hand, a patent were allowed to issue; yet the patentee could only take subject to all prior claims, incumbrances and equities. Therefore it could have answered no good purpose to allow an appeal from any decision of the Chancellor as judge of the Land Office. (f)
Under the proprietary government, Ihe Land Office was always open, as the market, where any part of the vacant lands of the province might be purchased. But to this rule there were excep[460]*460tions. The Lord Proprietary, from time to time, withdrew large bodies of his lands from this market, which he declared should not be sold there until his farther pleasure was made known; and therefore to no part of such tracts, called reserves, could any title he acquired from the Land Office. (g) But these reservations were only restrictions upon the ordinary mode of selling; for the Lord Proprietary sold, leased, or gave away these reserves as well as other parts of his territory at his pleasure; of which there are a multitude of instances to be found among the records of the Land Office. And besides such regular and irregular grants, emanating from the Land Office, or direct from the Lord Proprietary himself, the Legislature, with his consent, appropriated to, or authorized the acquisition of land by individuals in various other peculiar modes. (h)
By the Revolution all lands which then belonged to the Lord Proprietary became absolutely vested in the state, and were so held for the public benefit; not however, as under the government of the Province, as the estate and for the private emolument of an individual, but for the use of the public; and so considered, the General Assembly, as ‘the trustees of the public,’ with a view to general convenience, made several reservations, which they declared should not be sold in the Land Office. (i) In England, it was formerly held, that the king, by virtue of his prerogative as sovereign, might give away or dispose of, at his pleasure, any of the public property. But of late this pernicious prerogative has been considerably curtailed; and, in some instances, the prodigal grants of the king have been totally annulled, and the property resumed by parliament for the public benefit, (j) In Maryland the right of disposing of the public property, in all extraordinary cases, has devolved on the General Assembly; the executive branch of the government having been expressly prohibited from exercising any prerogative by virtue of any law of England. But although the Legislature may correct mistakes or dispense with any of the rules of the Land Office, so as to enable a bona fide purchaser to obtain a patent for the land intended to be bought by him; or may dispose of the public lands, in any way, for a good and valuable consideration, either as rewards to public benefactors, as to the soldiers of the revolution, (k) or for the purpose of attaining some object of general utility. Yet I cannot concede, [461]*461that they may, as the Lord Proprietary often did, give away the public lands, at pleasure, to their favourites, regardless of any benefit to the people. (l)
[462]*462Since the revolution it has continued to be an established principle, that no appeal can be allowed from any decision of the [463]*463Chancellor, as judge of the Land Office; and, indeed, there seems to be no more reason now why an appeal should be allowed, than [464]*464under the Proprietary Government. If the patent should have been improperly refused by the Chancellor, or because it could not [465]*465be granted consistently with the rules of the Land Office; and the claim of the applicant should, nevertheless, have a solid foundation in equity and justice, the Legislature, exercising a large discretionary power over such anomalous cases, has never failed to provide for the correction of mistakes, or to grant relief by dispensing with those settled rules by which the party had been excluded from the benefit of a patent. (m) And, on the other hand, it has always been an established rule, never lost sight of in the office, that whenever there is any doubt as to the validity of the caveator’s objections; and it appears, that they may be as well, and as effectually considered in the ordinary and regular course of judicial proceedings, after the claimant’s legal title has been perfected; and that the pretensions of the caveator cannot be prejudiced, to permit the patent to be issued. (n)
From which it appears, that although it may be the duty of the Chancellor, in controversies of this kind, on the one hand, to intercept patents about to be irregularly issued, to quiet possessions and prevent litigation; (o) so, on the other, he has ever held it to [466]*466be his imperative duty to smother no reasonable or plausible claim, or to withhold it from the deliberate examination of the ordinary and regular courts of justice. (p)
Some time after Baltimore had been laid out as a town the Legislature passed a law, by which a considerable addition was made to it; and, among other things, it was declared, that certain commissioners, seven in number, appointed to see the present and former acts, relating to the towns before mentioned, Baltimore and Jones’ towns, put in execution; and cause them to be carefully surveyed by their outlines, therein including the branch, to wit: Jones’ Falls, over which the bridge is built; and shall, from time to time, for preventing disputes, cause all the lots taken up and improved, or that shall thereafter be taken up, &c. to be regularly surveyed, substantially and fairly bounded and numbered. And all after purchasers of lots, whether before or after the passing of this act, shall be deemed to be within the said town; provided their lots be within the outlines thereof; and shall have as good estate in their lots, as if taken up, improved, and paid for under the original laws erecting the said towns. And that all improvements of what kind soever, either wharves, houses, or other buildings, that have or shall be made out of the water, or where it usually flows, shall, as an encouragement to such improvers, be forever deemed the right, title and inheritance of such improvers, their heirs and assigns forever. (q)
This law, it is obvious, according to the principles of justice, applicable to the subjects of which it speaks, can only be so construed as to authorize the owners of lots bounded by the tide of the basin to acquire a right to vacant land without applying to the Land Office, and without paying for it the stipulated price of vacant land. It operates as a legislative grant, for and in consideration of certain improvements, from which material and important benefits would result to the public. And the improvements being the consideration upon the formation of which alone the state parts with its right to the soil covered by the waters of the basin; it is clear, that no right can vest under it, until the specified improvements have been completed; for, if they should be left in an unfinished condition, it would amount to an abandonment of the right to acquire a title in that manner, (r) This, however, is [467]*467a mode of acquisition of which none can take advantage but natural persons who hold lots bounded by the tide-water of the basin; in whom and their heirs the acquisition is to vest as an inheritance. It is obvious, therefore, that the city itself could acquire no right of property in this way; and besides, a wharf, one of the kinds of improvements mentioned as an example, being an extension of fast land into the water, the city never had any such land upon or from which any improvements of the sort could he made or extended, (s) But even natural persons can avail themselves of this privilege only in so far as the acquisition may be made by improving their own lots in such a manner as not to extend them in front of, or between the navigation of the basin and any public street or other lot belonging to an individual, (t) As, for example, John Smith, under this law, could not have acquired a right to any land, covered by the waters of the basin, by improving upon, or filling it up in any other than a south direction; because, in doing so, he would have crossed, or cut off the navigation from the next adjoining street or lot. (u) In this instance, however, he improved upon and filled up land which was, confessedly, not an extension of his own lot, but a part of Gay street. It is, therefore, perfectly clear, that no right could have been acquired to this strip of land by John Smith, or any one else, under this act of Assembly.
This act of the Provincial Legislature had prescribed a mode whereby the owners of lots in Baltimore might acquire a title to portions of the land covered by the navigable waters of the basin without applying to the Land Office. But, according to the English law, the king can at present make no grant in derogation of the rights of navigation and fishery; (w) in which respect also the Lord Proprietary had been expressly restrained by his charter; (x) and, as it would seem, under a sense of that restriction, by one of his instructions, he had directed his surveyors, that, in surveying old tracts, whereof part might be found to lie in the water, to be careful in certifying whether it had been washed away, or had been an error in the original survey. (y) From which, and the proceedings in the Land Office, an opinion seems to have been entertained by those who might be presumed to have been suffi[468]*468ciently well informed of the law of the office, that here, as in Virginia (z) a patent gave title, at most, no further than to low water mark; (a) and that no land, covered by any navigable tide-water, could be made the subject of a patent from the Land Office of Maryland. (b) Upon a more careful consideration of the whole subject, however, it has been finally settled, that the bed of any of the navigable waters of the state may be granted, and will pass if distinctly comprehended by the terms of an ordinary patent, issuing from the Land Office; subject only to the then existing public uses of navigation, fishery, &c,; which cannot be hindered or impaired by the patentee, or those claiming under him. (c) [469]*469And, by a late act of the Legislature, it is declared, that individuals may locate and obtain an exclusive title to oyster-beds, in any navigable waters, in the manner therein prescribed, without applying to the Land Office. (d) And, as it would seem, the General Assembly may, for the benefit of the public, grant to an individual any navigable water together with the land which it covers, (e)
At an early period an obscure and unsettled notion seems to have prevailed, that the owners of the uplands had a sort of inchoate or pre-emptive right to the contiguous marshes, lying between their uplands and the shores of the tide, (f) And such marsh was, by the land law of 1699, declared to belong absolutely to the land to which it was adjacent; (g) but, that law has been long since repealed, and I find nothing which shews, that the owner of a tract adjoining navigable water could claim any sort of title to any part of the land covered by the tide beyond low water mark; because of its being immediately adjacent to the land held by him. (h)
[470]*470It is admitted, however, in this case, that the strip of land in question was not included within the boundaries of the tract called Cole’s Harbour, of which John Smith’s lot was a part; and, that no patent had been granted for it to any one; whence it is clear, that, as it might have been, at any time, made the subject of a distinct grant; and could not be attached to any other tract, as an incident or appurtenant, and no title to it had been acquired under the act allowing owners of lots to extend them into the water, it must now be considered as the property of the state, (i)
But considering the bed of this basin as being property, like all the other lands of the state, which are covered with navigable water, to which a legal title might have been acquired by any one from the Land Office, subject to the uses of navigation, &c.; or as being property, a title to portions of which might have been acquired according to the act allowdng certain lots to be improved ; (j) yet it appears, that both of those modes of acquiring title to it were, in some respects, modified by a subsequent act of Assembly, by which it is declared, that the port wardens should ascertain the course of the channel; that no wharf should be extended into the basin, so as to divert the course of the channel; and that no person should make a wharf without the permission of the port wardens; who were directed to prevent any obstruction to the navigation, and to keep the harbour clear for the use of [471]*471vessels. (k) Whence it appears, that no wharf can he extended beyond the margin of the channel, even with the consent of the port wardens. And these port wardens having, as directed by this law, made a survey designating the lines of the channel, that is the line, now commonly called the port warden’s line, beyond which no improvements can be made into the basin.
These provisions do certainly restrict the mode of acquisition given by the act for making improvements; (l) and assist in giving perpetuity to the public right of navigation with which the soil was originally encumbered, by requiring, that care should be taken to keep it always free from obstruction. This last act, it is therefore evident, cannot be so construed as to give any additional facilities to acquiring title to, and making fast land of any portion of the bed of the basin; but, on the contrary, as directly curtailing those means by which a title to, and the use of it, might previously have been obtained. The port wardens could give to no one a right to encroach upon the basin in any direction, or to make a wharf where, prior to the passage of this law, he had no such right; they might limit and control the then existing powers of individuals, but could give them no new powers or rights whatever. This is the view which has long since been taken of this law by the courts of justice, (m)
Hence it is manifest, that the permission given by the port wardens to John Smith, to fill up and build a wharf on eleven feet of Gay street, was wholly illegal and a mere nullity; and as to the farther encroachment upon Gay street, it has not been intimated, that Smith and others had even a pretext or shadow of legal authority to do what has been done by them.
It is perfectly clear, from the proofs, that the strip of land in question cannot, in any way, be regarded as an alluvion, the right to which would accrue to the owner of the adjacent land to which it had fastened; (n) but having been made, and built up, as a [472]*472wharf, by John Smith and others, on land which it is certain did not belong to them, it follows, that it must, like all such improvements which a wrong doer puts upon the land of another, become the property of him to whose land it has been affixed. So that this wharf has long since, in fact, become the absolute property of the state to whom the soil upon which it wms built most unquestionably belonged.
But it has been urged, that the whole of this strip of land called Smith’s wharf, is a public wharf, for the use of which the city of Baltimore has, for a long series of years, charged and collected wharfage; and, therefore, that the right of soil in it has been expressly vested in the city by the act allowing the corporation to charge and collect wharfage; (o) because as wharfage was the only benefit which could be derived from this land, the act which gave that sole benefit, virtually and necessarily thereby gave an absolute right to the soil itself. And further, that the granting of a patent would be incompatible with the rights of the public in general, if not with those of the city in particular; and, therefore, it ought not to be allowed to issue, since it could be attended with no good, and would inevitably be used as the means of litigation and strife.
In England the subjects which may be granted by the king are as numerous and as various as the sorts of property, and the kinds of prerogatives held and enjoyed by him; the most of which he may, by a patent under the great seal, grant to an individual. (p) But here no department or branch of our limited government has been entrusted with any such large and uncontrolled power of making grants to individuals. The executive has been prohibited from exercising any such prerogative; and the Legislature have only so much of a discretionary power delegated to them as will enable them to act within their proper sphere for the public good. No [473]*473patent can issue from the Land Office, but according to its settled rules ; or for any thing not allowed by law to be sold there according to those rules. Nothing can be sold in the Land Office, but the state’s right of soil in land, and the improvements affixed thereto as parcel thereof. The title of the state of -which it there makes sale, is only in such land as had never before been granted to any one; or where an individual had done some acts towards acquiring a title which he had neglected to complete; or where the complete title which had been granted, had fallen back, or escheated for want of an heir or successor of the original grantee, or him who claimed under him, who could take and hold.
Hence it is always distinctly understood, that every one who goes into the Land Office, with an intention to buy, only proposes to purchase of the state its title to lands held in one or other of these modes; because nothing else can be sold there. A patent from the Land Office can convey nothing else; it cannot give to the grantee any franchise or privilege which is not necessarily and always embraced in a grant of the legal title to the land itself; it cannot give to the grantee a mere right of way; or a right to demand and collect toll or wharfage any where; because such things are not, and cannot be sold or granted in the Land Office. And, therefore, no question concerning any right to demand and receive toll or wharfage any where can be incidentally heard and decided by the Chancellor upon a caveat in the Land Office.
But if land, to which the state has a title, is in any way incumbered, such incumbered title may well pass by a patent from the Land Office; and the grantee will take and hold, subject to such incumbrance. As where the owner in fee, after having leased the land for years, died intestate and without heirs ; so that his right escheated. It was held, that the grantee from the state, under an escheat warrant, could only take subject to the lease. (q) So, too, where the land had been mortgaged before the title reverted to the state, (r) And where the state had granted land covered with navigable water; it was held, that the grantee could only take subject to all the public rights of navigation, &c., which he could not in any manner obstruct or impair. (s)
[474]*474From which it necessarily follows, that if a public street or road passes over any land belonging to the state, the patentee of such land can only take subject to such right of way. A wharf, in a public port, is, as to this matter, governed by the same general principles of law. The use of a wharf, like that of a road or a navigable river, may belong to the public, or it may be held entirely separate from the soil itself, upon which the wharf has been built. And, consequently, a grant of the state’s title to the land cannot, in any manner, affect a pre-existing right to the use of the wharf any more than a grant of the bed of a navigable river, or of the land over which a road passes, can affect the previously vested usufructuary interest of the public, or of any individual. (t)
And, therefore, although it is in general true, that it is enough to prevent the issuing of a patent, for the caveator to shew an outstanding legal title any where, not belonging to the state; (u) yet as no such title has been shewn here, I am clearly of opinion, that a patent may well issue for this strip of land; because the grantee can only take it, as it is, subject to all the uses with which it may-have been previously charged.
Whereupon it is Decreed, That the said caveat of The Mayor and City Council of Baltimore, against the said certificate of Isaac McKim, &c., be and the same is hereby set aside and overruled with costs, to be taxed by the register.
1827, ch. 162.