Document: 424 U.S. 800 96 S.Ct. 1236 47 L.Ed.2d 483 COLORADO RIVER WATER CONSERVATION DISTRICT et al., Petitioners,v.UNITED STATES. Mary AKIN Petitioners, v. UNITED Nos. 74-940, 74-949. Argued Jan. 14, 1976. Decided March 24, Leave to File Petition for Rehearings Denied June 1, See 426 912, 2239. Syllabus In order manage the allocation of water and resolve conflicting claims thereto, Colorado enacted legislation under which State is divided into seven Water Divisions, in each a procedure established settlement on continuous basis. A Engineer charged with responsibility administering distribution state waters. Seeking adjudication reserved rights claimed behalf itself certain Indian tribes, as well based law, waters rivers Division 7, United States, had previously asserted non-Indian three other brought this suit against some 1,000 users District Court. The Government invoked Court jurisdiction 28 U.S.C. § 1345. Shortly thereafter, one federal-suit defendants sought court 7 make party proceedings that purpose there adjudicating all Government's claims, both federal, pursuant McCarran Amendment, 43 666. That law provides consent join States any (1) rights, or (2) administration such where it appears owns acquiring by appropriation otherwise. Court, abstention grounds, granted motion dismiss suit. Appeals reversed, holding existed 1345, was inappropriate. Held: 1. clear from its language legislative history, did not divest over litigation effect Amendment give concurrent federal controversies involving rights. Pp. 806-809. 2. includes determine held Indians, see Eagle County, 401 520, 91 998, 278, Div. 5, 527, 1003, 284, exercise does imperil those breach special obligation protect Indians. 809-813. 3. doctrine confined categories cases, none applies at bar; hence Court's dismissal basis 813-817. 4. Several factors, however, are present counsel jurisdiction, clearly supporting action resolution water-right state-court proceedings. 817-820. (a) Most significantly, furthers policy recognizing desirability unified availability systems like management use State's proceeding antedated reached "all perhaps month but inclusively totality," Div., supra, 529, 1004, 285. 819-820. (b) Other significant factors include apparent absence before than filing complaint; extensive involvement occasioned defendants; (3) distance between 7; (4) existing participation Divisions. P. 820. 504 F.2d 115, reversed. Kenneth Balcomb, Glenwood Springs, Colo., petitioners cases Howard E. Shapiro, Washington, D.C., respondent case. Mr. Justice BRENNAN delivered opinion 1 66 Stat. 560, 666, "consent hereby given defendant river system source, 2 [Amicus Curiae Information page 802 intentionally omitted] owner process purchase, exchange, otherwise, necessary suit." questions presented case concern upon district courts 1345 suits determination trustee tribes various claims.1 3 * It probable no problem Southwest section Nation more critical scarcity water. As southwestern populations have grown, scarce resource increased. To meet these several Southwestern elaborate procedures resource.2 1969, Rights Determination Administration Act3 an effort revamp legal determining within State. 4 Under Act, encompassing entire drainage basins larger Colorado.4 Adjudication occurs basis.5 Each month, Referees rule applications filed preceding five months refer Judge their Division.6 Every six months, passes referred contested decisions Referees.7 engineers responsible according determinations Division.8 5 prior establishing water.9 doctrine, acquires right diverting natural source applying beneficial use. Continued required maintain right. periods shortage, priority among confirmed determined date initial diversion.10 6 extend reservations, Winters 207 564, 207, 52 L.Ed. 340 (1908), lands, national parks forests, Arizona California, 373 546, 83 1468, 10 542 (1963). affect No. 7. On November 1972, instituted Colorado, invoking court's located Denver, 300 miles suit, users, declaration tributaries own law. appointment master administer decreed States. Prior institution pursued Divisions 4, 6, continues participate fully after commenced, application seeking directing service federal. January 3, 1973, served authority Amendment. intervenors then ground without Without deciding jurisdictional question, 21, unreported oral stating deference appeal, Tenth Circuit Akin, 115 (1974), district-court We certiorari consider important whether terminated adjudicate whether, if terminated, nevertheless appropriate. 421 946, 95 1674, 44 99 (1975). reverse. II 8 first question shall original civil actions Federal Government"(e)xcept otherwise provided Act Congress." thus examine Congress excepting 9 terms, least, indicate repeal Indeed, subsection (d) uncodified, provides: "(d) None funds appropriated title may be used preparation prosecution Southern Division, America Fallbrook Public Utility District, public corporation others." July 10, 1952, Pub.L. 495, 208(d), 560. 11 prohibiting maintenance specific pending plainly implies rights.11 12 Beyond history evidences terminate portion jurisdiction. bills, proposed approximately same time expressly would precluding failed passage.12 Further, Senate report states: "The legislation, amended, permit joinder . ."13 Nothing statement indicates intent correlatively diminish federal-district-court Similarly, Senator McCarran, who introduced Senate, stated letter made part "not intended allow joined wherein owners stream."14 13 view Amendment's controlling principles statutory construction require conclusion constitute exception "provided Congress" repealed entertain suits. "When statutes defining force provisions should disturbed mere implication flowing subsequent legislation." Rosecrans 165 257, 262, 17 302, 304, 41 708, 710 (1897). Morton Mancari, 417 535, 549-551, 94 2474, 2482-2483, 290, 300-301 (1974); Jackson, 302 628, 632, 58 390, 392, 82 488, 491 (1938). "In affirmative showing intention repeal, only permissible justification when earlier later irreconcilable." 550, 2482, 300. Not do terms also irreconcilability operation statutes. immediate There existence Such concurrency has, example, long diversity Accordingly, we hold way diminished hear case.15 III 14 turn next properly dismissed A. 15 First, Indians court. This squarely addressed case, been inappropriate decide claims. conclude 16 278 (1971), 284 whereby (water) ," subject general More specifically, were included "otherwise" owner. 524, 1002, 281. Though County involve viewing trusteeship ownership, logic extends spoke suggestion distinction them purposes U.S., 523, S.Ct., 1001, L.Ed.2d, language, underlying policy, dictates including provisions. rejected reason "(deals) all-inclusive statute concerning 'the system.' " Id., 282. consideration reservations. And cogently, observed: 18 laws vested proper efficient disposition thereof, interlocking adjudicated stream system, affecting affects Accordingly stream, practically every interested parties user claiming ownership thereof departments permitted claim immunity in, orders of, court, could materially interfere lawful equitable amenable bound decrees courts."16 19 Thus, bearing mind ubiquitous nature Southwest, excluding coverage enervate objective.17 20 Finally, demonstrates construed reaching unmistakably understanding proponents opponents comprehended hearings participants Department Interior proposal Indians.18 addition, amendment took note recommendation recommendation.19 21 argues because fiduciary property recognized unless conferred Congress. has recognized, destruction personal tribe "(a)uthority sue implied." Turner 248 354, 358, 39 109, 110, 63 291, 294 (1919). Moreover, argument rests incorrect assumption imperils breaches Mere subjection challenge declaration, which, absent eventually necessitated resource. abdicated defend interests satisfactorily protected regimes 25 §§ 1321, 1322; 1360.20 Cf. California-Oregon Power Co. Beaver Portland Cement Co., 295 142, 164 n. 2, 55 725, 731, 79 1356, 1364 (1935). abridges substantive said, "questions (arising collision private States), volume scope particular preserved, can reviewed (by Supreme Court) final judgment court." 526, 283. B 22 Next, appropriate abstention. cannot supported forms. 23 Abstention exception, rule. abstention, decline postpone extraordinary narrow duty controversy it. Abdication justified exceptional circumstances repair serve countervailing interest." Allegheny Frank Mashuda 360 185, 188-189, 1060, 1063, 1163, 1166 (1959). "(I)t never equity judicial discretion merely it." Alabama Pub. Serv. Comm'n. R. 341 341, 361, 71 762, 774, 1015 (1951) (Frankfurter, J., concurring result). Our categories. 24 "in presenting constitutional issue might mooted different posture pertinent law." 189, 1166. See, g., Lake Carriers Ass'n MacMullan, 406 498, 92 1749, 32 257 (1972); Gas Pipeline Ideal 369 134, 676, 623 (1962); Railroad Comm'n Texas Pullman 312 496, 61 643, 85 971 (1941). presents decision. difficult problems substantial import whose importance transcends result bar. Louisiana & Light City Thibodaux, 25, 1070, 1058 (1959), involved question. particular, eminent domain power municipalities Kaiser Steel Corp. W. S. Ranch 391 593, 88 1753, 835 (1968); Hawks Hamill, 288 52, 53 240, 77 610 (1933). need determinative policy. enough review similar disruptive efforts establish coherent respect matter concern. Burford Sun Oil 319 315, 1098, 87 1424 (1943), reasonableness commission's drill oil wells transcendent importance, future dealing geological complexities gas fields, impermissibly fields. supra.21 26 fall second category While applied settled. No Nor will decision impair implement Burford. sure, go establishment conflict But potential results adjudications, not, more, warrant staying Meredith Winter Haven, 320 228, 64 (1943); Kline Burke Constr. 260 226, 79, 67 226 (1922); McClellan Carland, 217 268, 30 501, 54 762 (1910). here, respecting here interrupt restraining officers. Pennsylvania Williams, 176, 380, 841 (1935); supra. 27 (c) where, bad faith, harassment, patently invalid statute, criminal proceedings, Younger Harris, 37, 746, 669 (1971); Douglas Jeannette, 157, 877, 1324 (1943);22 nuisance antecedent prosecution, directed obtaining closure places exhibiting obscene films, Huffman Pursue, Ltd., 420 592, 1200, 482 (1975); collection taxes, Great Lakes Dredge Dock Huffman, 293, 1407 (1943). Like previous two categories, deal neither proceeding, nor tax collection. attempt restrain actions23 seek declaratory validity C Although falls unrelated considerations regard federal-state relations govern situations contemporaneous jurisdictions, either courts. These rest "(w)ise administration, giving conservation resources comprehensive litigation." Kerotest Mfg. C-O-Two Fire Equipment 342 180, 183, 72 219, 221, 200, 203 (1952). Columbia Plaza Security National Bank, 173 U.S.App.D.C. 403, 525 620 Generally, courts, "the pendency bar having ." 282, 505, L.Ed., 767. Donovan Dallas, 377 408, 84 1579, 409 (1964). though precise evolved, principle avoid duplicative litigation. supra; Steelman All Continent Corp., 301 57 705, 81 1085 (1937); Landis North American 299 248, 254, 163, 165, 153, 158 (1936). difference approach state-federal wholly stems virtually unflagging them. England Bd. Medical Examiners, 375 411, 415, 464, 440, 444 (1964); 281, 504, 766; Cohens Virginia, Wheat. 264, 404, (1821) (dictum). Given obligation, weightier relations, permitting due presence reasons wise considerably limited former circumstances, exceptional, exist. 29 held, assuming exclusion 412, 413, 1582; Princess Lida Thompson, 305 456, 466, 59 275, 280, 285, 291 (1939); Bank New York Trust 296 463, 477, 56 343, 347, 80 331, 338 cf. Markham Allen, 326 490, 296, 90 256 (1946); Klein, 303 276, 536, 840 true even claimant invoke provision 479, 348, 339. Leiter Minerals, Inc. 352 220, 227-228, 287, 291-292, 267, 274 (1957). assessing appropriateness event inconvenience forum, Gulf Gilbert, 330 839, 1055 (1947); avoiding piecemeal litigation, Brillhart Excess Ins. 316 491, 62 1173, 1175, 86 1620, 1625 (1942); obtained forums, Pacific Live Stock Oregon Bd., 241 447, 36 637, 640, 60 1084, 1096 (1916). factor necessarily determinative; carefully considered taking account combination counselling required. 254-255, 165-166, 158. Only clearest justifications dismissal. Turning number most itself. evinced avoidance system. akin requiring yielded control property, instances generation additional through inconsistent dispositions property. heightened relationships highly interdependent. essentially best conducted 449, 641, 1096. bespeaks recognizes means achieving goals. 31 already observed, concedes24 single 525, 282; "reaches totality." Ibid. Additionally, managing waters, end they allocated accordance Engineer. congressional expressed consistent furtherance find complaint, dismiss,25 naming defendants, 300-mile Denver emphasize, overlook heavy decide, despite warranted occurred dismissal, less inadequate opposing particularly justify case.26 33 reversed dismissing complaint affirmed stated. 34 so ordered. 35 Judgment affirmed. STEWART, whom BLACKMUN STEVENS concur, dissenting. 37 says lawsuit. I agree.1 further diminished" agree.2 "virtually them." agree.3 finally, nothing forms" complaint. agree.4 views seem lead ineluctably wrong Yet holds "appropriate." With must respectfully disagree. 38 allowed proceed lawsuit, relies principally reflecting "control (is necessary) cause grant relief sought, necessity yield other." Penn General Casualty ex rel. Schnader, 195, 386, 388, 850, 855. 409; 285; 331. But, clear, exclusive effectuate judgment. 1A J. Moore, Practice P 0.214 (1974). Here obtain rem Quasi issues asked simply reservations occurred, and, so, river. support reaches. surrender trust fact assumed estate. rationale "ha(d) plaintiff seeks his interest fund possession 291. stressed "(n)o person res quantum 467, 292. "object take depositaries vest 478, debt share disturbing Ibid5 256; 840. generally 0.222 C. Wright, Miller, Cooper, Procedure 3631, pp. 19-22 (1976). 40 precedents cited fail point opposite direction. short, analogous trust, rather "right participate," since ask river, flow almost exact analogue income trust. principal close doors courthouse seems stem rights.6 extent governing precedential basis, discussed above demonstrate. realistic practicalities wrong, relegation 42 currently engaged types water-rights processing new recent appropriations. Second, integrating awards past awarding tabulation source. past. appropriations fact, dissimilar normal actual formed land reserve amount will, therefore, conduct separate adjudicates incorporated tabulations. If followed, decree tabulation, occur regardless forum considers Whether identical place "piecemeal." Essentially followed instance.7 says, virtual "unflagging obligation" Obedience "appropriate" least reasons. likely familiar experience interpreting relevant statutes, regulations, treaties. tried reviewable appellate whereas courts' possible 45 lawsuit relate proposition life-and-death '(t)he leaving free deeply rooted Nation's history.' McClanahan Tax Comm'n, 411 164, 168, 93 1257, 1260, 129, 133, quoting Rice Olson, 324 786, 789, 65 989, 991, 89 1367, 1369. 46 "(o)nly dismissal" my affirm Appeals. 48 STEVENS, 49 STEWART's dissenting opinion, add brief comments: 50 litigate anomalous. commanded unambiguous mandate identifiable applicable Appropriation 1953, announces 51 surely lesser access litigant, asserting claim. today's restrict plaintiffs Colorado. surprising byproduct Amendment; concluding citizen's assert Third, decided balancing weighing believe defer evaluate instance ourselves. erroneously grounds found why forward Facts parties, dispute, character matters sitting just able we. agree Parts I, II, III-A, III-B dissent reverse Circuit. (also known as, Suit Act), codified, full text: "(a) Consent deemed waived plead inapplicable thereto sovereignty, judgments, orders, manner individual circumstances: Provided, costs entered "(b) Summons Attorney designated representative. "(c) authorizing interstate stream." Infra, 807. Title "Except Congress, actions, commenced agency officer authorized Ariz.Rev.Stat.Ann. 45-102 45-106, 45-141 45-154, 45-180 45-193, 45-231 45-245 (1956 Supp. 1975); Cal.Water Code 17-192, 1000-5108 (1971 1976); Nev.Rev.Stat. 533.010 Et seq. (1973); N.M.Stat.Ann. 75-1-1 75-6-3 (1968 1975). Colo.Rev.Stat.Ann. 37-92-101 37-92-201. 37-92-302 37-92-303. 37-92-304. 37-92-301. Colo.Const. Art. XVI, 6; 37-92-102 37-92-306 Coffin Left Hand Ditch Colo. 443 (1882). Springs Bender, 148 458, 366 P.2d 552 (1961); Yust, 126 289, 249 151 Jurisdiction Util. Dist., 101 F.Supp. 298 (S.D.Cal.1951). H.R. 7691, 82d Cong., 2d Sess. (1952); 5735, 1st (1951); 5368, (1951). S.Rep.No.755, Sess., 9. federal-question 1331. For reasons, 1331 either. Supra, 4-5. conclusion, conflicts practical adjudication, along thereby effectively vitiating our 5. Hearings Subcommittee Committee Judiciary, 6-7, 67-68 7-8. 1322(b) 1360(b) provide sections "shall confer adjudicate, probate (any real belonging States)." sections, qualifies sections. purport limit contrary foreclosed "(w)here controlled nullified one, enactment." 550-551, 2483, differ unlike latter two, raised colorable therefore federal-question, Service issue, opinions cases. 344, 765, 1006; 334, 1107, 1435; H. Hart Wechsler, Courts System 1005 (2d ed. 1973) ("The groups common characteristic: relevant"). course, opportunity alone Harman Forssenius, 380 528, 1177, (1965); Baggett Bullitt, 360, 1316, raise level needed 318 1099, 1426; 61, 243, 618. Where injunctive relief. Harris. Samuels Mackell, 66, 73, 764, 768, 688, 693 (1971). finding unnecessary when, all, 267 Brief 46-49. 1972. 1973. February 13, Up point, appear dealt now decide. read limiting operates Pro tanto waiver sovereign immunity. 278; 284. 415-416, 461, 464-465, 444-445; Ante, 409, relevance insofar contained summary discussion lists four "appropriateness" insubstantial. yet taken prompt granting defendants' dismiss. At time, geographic hardly age rapid easy transportation. Since basic actually date, little likelihood live testimony residents necessary. event, sit Durango, headquarters 85. willingness certainly mean bring action, today unearthed kind waiver. many relevant. finally settling envisioned Lewis, 447-449, 640-641, true, notes, relationship When levels low, junior appropriators mistaken, suggesting related priorities. established, holder's seniority (date) established. affected

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