Forest. The Commission's report emphasized timber production and water shed protection, as well as recreation and wildlife, as the primary purposes of the acquisition. National Forest Preservation Comm'n., Sen. Doc. No. 44, supra p. 622.
The basic purposes of national forest lands are also found in the Organic Administration Act of 1897, through which Osceola National Forest was created. The Act provided that "no national forest shall be established, except to improve and protect the forest within the boundaries, or for the purpose of securing favorable conditions of *629 water flows, and to furnish a continuous supply of timber...." 16 U.S.C. § 475. The Supreme Court had occasion to consider the Organic Act and its legislative history in United States v. New Mexico, 438 U.S. 696, 98 S.Ct. 3012,exist at any earlier time. To demonstrate the discovery of "valuable deposits" of phosphates, Kerr-McGee and Global must comply with the terms and conditions imposed by the Forest Service and are required to show the economic and technological feasibility of reclaiming the lands covered by the lease applications.
Until February 1982, when the Forest Service submitted to the Bureau of Land Management the final stipulations to be attached to any leases which might be issued to phosphate lease applicants in the Forest, the Interior Secretary could not determine whether the plaintiffs had satisfied the "valuable deposit" test, and no lease entitlement was vested in the plaintiffs. The earlier practices of the Department of Interior in issuing phosphate preference right leases before 1970 did not alter or change the statutory