Document: 463 U.S. 110 103 S.Ct. 2906 77 L.Ed.2d 509 NEVADA, Petitionerv.UNITED STATES et al. TRUCKEE-CARSON IRRIGATION DISTRICT, Petitioner v. UNITED PYRAMID LAKE PAIUTE TRIBE OF INDIANS, DISTRICT Nos. 81-2245, 81-2276 and 82-38. Argued April 27, 1983. Decided June 24, Syllabus 1 In 1913, the United States sued in Federal District Court, what is known as Orr Ditch litigation, to adjudicate water rights Truckee River for benefit of both Pyramid Lake Indian Reservation (Reservation) Newlands Reclamation Project (Project). Named defendants were all users on Nevada. Eventually, 1944, Court entered a final decree, pursuant settlement agreement, awarding various Project, which by this time was now under management Truckee-Carson Irrigation (TCID). 1973, filed present action same behalf Reservation, seeking additional River, Paiute Tribe (Tribe) permitted intervene support States. persons presently claiming its tributaries Nevada, including litigation their successors, individual farmers who owned land TCID. The asserted res judicata an affirmative defense, that precluded decree from litigating claim. sustained defense dismissed complaint. Appeals affirmed part reversed part, holding concluded dispute between, one hand, defendants, successors interest, subsequent appropriators and, other Tribe, but not between landowners. court found since neither nor landowners parties instead represented States, interests may have conflicted proceeding, it could be had intended bind these nonparties inter se, absent specific statement adversity pleadings. 2 Held: Res prevents instant Pp. 121-145. 3 (a) Where Government Ditch, landowners, Government, received beneficial interest confirmed Government. Ickes Fox, 300 82, 57 412, 81 L.Ed. 525; Nebraska Wyoming, 325 589, 65 1332, 89 1815. Therefore, at liberty simply reallocate decreed if those rights. 121-128. 4 (b) cause below case. record case, amended complaint, clearly shows given opportunity litigate Reservation's entire right take advantage opportunity. 130-134. 5 (c) All are bound decree. party acting representative cannot relitigate with use defense. whose also successors. Moreover, circumstances where after commenced legal relationships no longer TCID, sufficiently adverse so It need determined effect Government's representation different would law private trustees fiduciaries does apply Congress has dual responsibilities. "compromise" obligation obliges represent when simultaneously performs another task obligated statute do. And appropriated they too, necessary exception mutuality requirement, can against plaintiffs below. These relied just much participating development western Nevada any conclusion make impossible finally quantify reserved right. 134-144. 6 649 F.2d 1286 (CA9 1981) 666 351 1982), part. 7 E. Barrett Prettyman, Jr., Washington, D.C., State 8 Frederick G. Girard, Sacramento, Cal., Irr. Dist. 9 Robert S. Pelcyger, Boulder, Colo., Indians. 10 Edwin Kneedler, 11 [Amicus Curiae pages 112-113 intentionally ] 12 REHNQUIST, Justice. 13 1913 planned Project. Thirty-one years later, case agreement. 1973 River. issue thus presented whether partially undo 1944 or principles prevent it, intervenor claim merits. 14 * has, average, less precipitation than Union. Except drainage southeastern into Colorado northern Columbia rivers flow generally disappear "sinks." Department Agriculture Yearbook, Climate Man (1941). relates three principal flowing through west central rises High Sierra Placer County, California, flows out Tahoe, thence down eastern slope mountains. Reno, course some 120 miles debouches Lake, outlet. 15 been said "widely considered most beautiful desert lake North America [and its] fishery [has] brought worldwide fame. A species cutthroat trout . grew world size attracted anglers throughout world." Wheeler, Desert 90-92 (1967). first recorded sighting non-Indians occurred January 1844 Captain John C. Fremont his camped nearby. journal reported "broke upon our eyes like ocean" "set gem mountains." Expeditions Charles 604-605 (1970). Commenting fishery, well Indians camping with, wrote: 16 "An large fish trade, we inexpressible satisfaction find salmon trout; gathered round him eagerly. amused delight, immediately numbers; camp soon stocked. Their flavor excellent—superior, fact, I ever known. They extraordinary size—about river salmon—generally two four feet length." Id., 609. 17 When viewed early 1844, 50 long wide. Since surface area reduced about 20,000 acres. 18 origins cases before us historical events involving country. First, 1859 Interior set aside nearly half million acres reservation area's 1874 President Ulysses Grant executive order withdrawal Reservation. includes surrounding lower reaches bottom alongside Truckee. 19 Then, passage Act 1902, ch. 1093, 32 Stat. 388, designated play more prominent role West. That directed Secretary withdraw public entry arid lands specified reclaim irrigation projects, then restore homestead laws certain conditions imposed itself. Accordingly, withdrew domain approximately 200,000 ultimately became designed irrigate substantial vicinity Fallon, waters Carson Rivers. 20 Truckee, Alpine north northeast over 170 miles, disappearing sink. accomplished diversion constructing Derby Diversion Dam Canal diverted transported Experience days indicated necessity storage reservoir accordingly Lahontan constructed Reservoir behind created. combined Rivers impounded distributed related uses downstream means lateral canals within 21 Before works contemplated went operation, number established law. so-called "implied-reservation-of-water" doctrine forth Winters 207 564, 28 207, 52 340 (1908).1 therefore complaint March, commencing litigation. 10,000 cubic per second 500 named expressly sought quieting title parties. 22 Following several hearings, Special Master issued report proposed July 1924. awarded priority date 58.7 12,412 acre annually 3,130 lands.2 1902 1,500 irrigate, extent amount allow,3 232,800 February 1926 temporary restraining declaring Master. "One primary purposes" entering allow experimental period during modifications declared made necessary. App. Petn. Cert. a186. 23 Not until almost ten midst prolonged drought, stimulated concluding Settlement negotiations 1934 organizational Washoe County Water Conservation Pacific Power Co., representatives still acted interests, (TCID).4 TCID agreement along lines order. objected, demanding increase 2,745 land. After resistance, demand accepted signed 1, 1935. adopting September 8, 1944.5 No appeal taken. Thus, 31 inception came close. 24 On December 21, instituted Reservation; include 3800 own District. certified class interests.6 25 purported Instead, alleged only "water irrigation," a157, being "sufficient [for] maintenance preservation for] natural spawning ground fish," a155-156. further averred establishing maintained. claimed allegedly purpose, creating must impliedly rese ved water.7 26 saying separate trial issue, entirety. 27 decision, parties, privity "was concerned, lawyers, litigants judges, general inclusive adjudication suit claims required fully up respective claims." a185. accordance intention, "to assert possible reservation." explained: "[T]he proceeding plaintiff quiet members, is, implied reservation, 1859, single source supply, i.e., Watershed. types claims, arising derived piece-meal fashion. There equity based theory." a188. 29 Ninth Circuit 1981), modified, 1982). agreed causes But, did conclude owners lands. prior judgment unless adversaries earlier pleadings actually litigated applied here. 30 conceded "[a] strict requirement nece sarily fit realities adjudications." F.2d, 1309. Nevertheless, se We granted certiorari challenging Appeals' --- ----, 205, 74 164 (1982), affirm reverse II opens "Summary Argument" portion brief stating: "The appeals reallocation States—from reclamation priority. bar reallocating ." Brief 21. say position, accepted, do away century decided relating undisputed purpose bringing secure contained aegis action.8 Section provides: "That nothing shall construed affecting affect way interfere Territory control, appropriation, use, distribution used irrigation, vested acquired thereunder, Interior, carrying provisions Act, proceed conformity such laws, herein landowner, appropriator, user in, to, interstate stream thereof: Provided, appurtenant irrigated, basis, measure, limit right." 33 California 438 645, 98 2985, 1018 (1978), described greater detail history structure stated: 34 projects built federal actual construction operation hands Interior. But provided state control appropriation later water." 664, S.Ct., 2995 (emphasis added). 35 leading cases, 525 (1937), 1815 (1945), discussed ownership r ghts Act. said: 36 "Although government diverted, stored water, contention petitioner thereby water-rights founded. Appropriation government, but, owners; terms contract already referred property owners, wholly distinct works. Compare Murphy Kerr, 296 Fed. 536, 544, 545 [ (CA8 1923) ]. remains carrier distributor (ibid.), receive sum stipulated contracts reimbursement cost annual charges As security therefor, should lien appurtenent thereto—a provision itself imports belong lienor, say, owner. 37 owner domain, power dispose composing together separately; Land 1877 (c. 107, 377), before, severed constituting rule future patented separately. Acquisition parcel carry water-right; non-navigable arid-land states. Co. Beaver Cement 295 142, 162 [55 725, 730, 79 1356]. states, generally, use; obtained right, which, becomes, here expressed well, applied." U.S., 94-96, 416-417. 38 § Wyoming Platte Kendrick Initiation accompanied filings name Those officials adequate dates projects. applications permits construct ditches. served. orders granting fixed completion canal, application land, proof appropriation. Individual contracted project water. assumed districts. districts submitted authorities users. decrees certificates favor included, made, date. released voir appropriate officials. 39 "All steps plain designed, completed according pattern supra, pp. 94-95 [57 p. 416]: 'Although 545. remained sums works.' 40 reservoirs, ditches canals. appropriator. perfecting followed reasonable use. See F. 542, 545; Commonwealth Board, 94 Neb. 613, 143 N.W. 937; Kersenbrock Boyes, 95 407, 145 837. Indeed provides seen 'the right.' " 613-614. 41 common requires perfection agricultural purposes beneficially Prosole Steamboat Nev. 154, 159-161, 140 P. 720, 722 (1914). Such used. 160-161, P., 722. 42 light completely mistaken believes irrigating many bushels wheat, bartered, sold, shifted might see fit. Once settlers "ownership" nominal; resided Fox relevant point very clear.9 replete references fiduciary Indians, properly be. seems ignore obligations necessarily devolve having mere resides elsewhere. 43 Both briefs opinion focus analysis relationship fiduciaries, especially governing breach duty beneficiary. While undoubtedly provide useful analogies this, regarded dispositive issues. This recognized "the distinctive trust incumbent Government" dealings tribes, see, e.g., Seminole Nation 316 286, 296, 62 1049, 1054, 86 1480 (1942). concerns traditionally focused Bureau Affairs Poafpybitty Skelly Oil 390 365, 374, 88 982, 986, 1238 (1968). U.S.C. 1. 44 wisdom, enacted assume respect Additionally, 1904, 1402, 225, inclusion irrigable authorized Secretary, allotting five each belonging remainder 45 Today, particularly vantage enactment Reorganization 1934, 576, 48 984, 461 seq., appear requiring least shoulders delegated responsibility supervision tribes commencement areas adjacent chose unrealistic suggest perform obliged well. regard, follow fastidious standards fiduciary, duties beneficiary solely representing potentially conflicting without beneficiary's consent. oes fact 46 With observations mind, turn think involved III 47 Recent estoppel Federated Stores, Inc. Moitie, 452 394, 101 2424, 69 (1981); Allen McCurry, 449 90, 411, 66 308 (1980); Brown Felsen, 442 127, 99 2205, 60 767 (1979); Montana 440 147, 970, 59 210 (1979). eighty ago true today; ensures object civil courts established, peace repose society matters capable judicial determination. Its enforcement essential social order; for, aid tribunals invoked vindication person property, conclusiveness attend judgments tribunals." Southern Railroad 168 49, 18, 355 (1897).10 Simply put, merits "[i]t finality controversy, them, every matter offered sustain defeat demand, admissible purpose." Cromwell Sac, 351, 352, 195 (1876). "judgment puts end action, again whatever." Commissioner Sunnen, 333 591, 597, 68 715, 719, 92 898 (1948). Chicot Drainage Baxter Bank, 371, 375, 378, 317, 319, 320, 84 329 (1940).11 49 To determine applicability facts us, decide "cause action" seeks "same Ditch; identical Ditch. address questions turn. A. Definitions constitutes static time. Restatement Judgments 61 (1942), (Second) (1982).12 1B Moore's Practice ¶ 0.410[1], 1152-1163 (2d ed. 1982 & Supp.1982-1983). unnecessary parse minute differences differing tests produce, because whatever standard allowed 51 averred: "Until claimants, hereto, settled, extent, nature, divert judicially protect waters, otherwise protected necessitate multiplicity suits." Cert a10. 53 accomplish purpose. part: 54 persons, corporations, intervenors, grantees, substituted hereinbefore named, servants, agents, attorneys, assigns by, them mentioned described, hereby forever enjoined restrained asserting tributaries, creeks streams except rights, specified, a145 55 not, however, stop For evidence directly showing intention full return alleged: 56 "16. 29th day November, previous thereto Pah Ute were, ancestors been, residing using Valley around desirous protecting descendants homes, fields, pastures, fishing, affording acquire art husbandry arts civilization, become civilized, reserve forms sale sole civilization. On, wit, 23d 1874, lands, previously surveyed, aforesaid, withdrawn disposition, apart aforesaid. 58 setting virtue things paragraph forth, on, thereof, hundred (500) time." a6-8. anything due La e fortified comparing proceedings where, example, "Members lived shores immemorial. domestic uses, segment viable fishery. 63 64 "In there was, implication, sufficient needs inhabitants use." a153-154. focuses specifically Tribe's reliance fishing quite clear "fishing" "lands waters" Ditch.13 B Having next stated earlier, will "parties" lawsuit, "and them," relitigating action. 352. 67 doubt Title Insurance Trust 265 472, 482-486, 621, 622-623, 1110 (1924). hold decree.14 left little room argument contrary Heckman 224 413, 424, 820 (1912), plainly "it consistently principle, tolerated that, wards jurisdiction themselves question." 446, 435. 41(d) (1982). reaffirm principle now.15 Tribe. rely held, affirm. reached concerning represents. Project's stands stated, "[a]s matter, pleadings," "representative careful infer litigant." allege ruled them. At ought obviously "adverse" allocations even treat kind consequences different. noted: 70 "A adjudications. parties' interdependent. Frost Alturas, Idaho 294, 996, 998 (1905); Kinney, Rights 277. Stability combinations. Further, adjudications controversy parties; serve primarily administrative 71 agree Appeals. felt, factors "Tribe co-parties, however. non-parties attorneys." Ibid. disagree consequence fact. 72 held nevertheless stream. See, Morgan Udy, 670, P.2d (1938). 73 '[I]n character interested award claimant. Every claimant either stream, upper either, junction two, claimants junction. words, character; real dispute.' 681, P.2d, 299. actions critical determining allocation scarce "very nature raise[s] issues determination affects available claims. Marlett Prosser, 1919, Colo. 91, 179 141, 142." City Pasadena Alhambra, 180 699, 715 (Cal.App.1947). Live Stock Ellison Ranching 279, 296-297, 286 120, 123 (1930); re Chewaucan Or. 659, 666, 171 402, 403-404 (1918). Waters Rights, 513.2, 304 (R.Clark 1972 Supp.1978). 75 noted, entity separately pleaded During presumably whom accrued, newly formed Affairs. seem stage TCI latter oppose Bureau's negotiations. 76 "in litigant," analogizing position trustee traditional trusts. previously, believe analogy bodily transposed situation. conclude: "By compromised undivided loyalty Trusts, 170, Comments, p, q, r." 1310. section Trusts entitled "Duty Loyalty," states "(1) administer beneficiary." Comments deal respectively "competition beneficiary," "action third person," "duty trusts." 78 intimated, reasoning runs aground litigant rules statute. Our numerous Interstate Commerce Commission, 337 426, 431-432, 1410, 1413-1414, 93 1451 (1949); Utah Light 243 389, 409, 387, 391, 791 (1917). "As laches neglect officers enforce interest. maintain policy respecting holds people plane respects ordinary regain remove cloud it." 391. 80 444-445, 434, (1912): "There complete dependents—whom Congress, restricted yet tutelage. efficacy depend Indian's acquiescence. rest convention, circumscribed govern relations. traces plenary legislating protection care, recognizes limitations inconsistent discharge national duty." 82 believe, correct resolution cases. owes strong wards. (1942); Shoshone 299 476, 497-498, 244, 251-252, 360 (1937). tribe involved, many, all, respects, adequately describe addition obtain inclus project, faithless controlling evaluating authority interests. 83 1926, being, likely conveyances carried picture. District, thousand put other, governed above, suit. give rise difficult question, too abandoned collateral estoppel, Parklane Hosiery Shore, 439 322, 552 (1979), Blonder-Tongue Laboratories, University Illinois Foundation, 402 313, 91 1434, 788 (1971), judicata. exceptions necessary, Wright, Miller Cooper, Procedure 4464, 586-588 (1981 Supp.1982), 85 equitable title, personam determined, garden variety action." 1308. explained, everyone comprehensive settle once question how to. though actions, rem proceedings. Nonparties "these manifestly unjust permit appropriators" "[a]ny 1286.16 IV finding same. Appeals, represents, ended raised 87 ordered. BRENNAN, Justice, concurring. existence formal "conflict interest" deprive If, harm remedy it. join Court's understanding reaffirms admitted. ante, 144, n. 16. 90 analysis, decision today thousands small northwestern promises forebears generations ago, solemnized despite Paiutes. availability determines life culture region. Here, elsewhere West, insufficient satisfy face fundamental limitations, avert measures loss, destruction, profound disappointment, scrupulously even-handed law's doctrines administration. Yet fix loss destruction avoided, require others compensation.* (1908), agreements Fort Belknap purport Milk effectuate agreements. contexts, New Mexico, 696, 698, 3012, 3013, 1052 Cappaert 426 128, 138, 96 2062, 2069, 523 (1976), interpreting created Arizona 373 546, 598, 1468, 1496, 542 (1963). passed 1904 authorizing located 26, 225. If living allotted reclaimed Master's report, order, event allotments made. plan, implemented. 984. 1286, 1294 1981). Notwithstanding priority, far d. second, acres, lesser amount. noted "there never irrigated 65,000 Project." 1292 operational 1926. nine year gap attributable new upstream reservoir. original Citing absence moved dismiss failure indispensable Subsequently, amend class. hearing, motion granted. 193-204. Between 1920 1940 decline resulted delta forming mouth prevented indigenous cui-ui, reaching grounds resulting near extinction species. Efforts stabilized augmented 1956, 809, 4, 777, restocked cui-ui. Fish hatcheries operated replenishing Lake. 1976 Marble Bluff Fishway completed, enabling bypass observed restoration efforts 'appear justify optimism eventual success.' a184. initiated a2-5. gave Reservoir, generating power, supplying cities towns purposes. a59. similar addressed (1945). Five creation Two exchange landowner remaining tract 197, 2. One types, commonly "IN PURSUANCE act 17, (32 Stat., 388), acts amendatory thereof supplementary thereto, August 9, 1929 (37 265), 13, 1914 (38 686), styled law, regulations Contract dated Dec. 18th, subject instrument, UNDERSIGNED, Applicant, permanent hereafter developed above-named 2." Trans. appendix c policies advanced perhaps zenith 1382, 1392, 318 (1983); Oregon 192 355, 358-359, 266, 267, 476 (1904); Freeman 874, 1848-1849 (5th 1925). explained Minnesota National Wall. 332, (1865): "Where arise titles great importance open. decisions injuriously affected change. [W]here vacillate overrule retrospective purchased faith stability. Doubtful subjects decided, doubtful change." 334. suit, distinctively equipped enables permanently taken supply." Kinney 1535, 2764 1912). corollary pre lusion estoppel. broader litigants, "relitigation litigated" lawsuit. 326 5, below, found, agreed, a189; 1311 Therefore thought inapposite. argued conclusions erroneous, disposition question. Under deemed "if needed pragmatic approach, "not mathematically precise definition," adopted. Id. comment b. approach "transaction"; products "transaction" "giving weight considerations time, space, origin, motivation, form convenient unit, treatment unit conforms expectations business usage." 24. argues prevailing result version Judgments, somewhat argument. Although evidence" "[o]ne tests" Haytian Republic, 154 118, 125, 992, 994, 930 (1894), one. Baltimore Steamship Phillips, 274 316, 600, 1069 (1927), concluded: consist facts, unlawful violation show. establish result, severally combination, wrong. 'The merely means, end. constitute show making wrong appear. thing, therefore, contemplation cause, becomes group declaration, bill, indictment, wrong, true, conclusively evince." ' Chobanian Washburn Wire R.I. 289, 302 [80 394]." 321, 602. "litigate piecemeal observed, sought, purposes, leaving open possibility expanding 1302 resolve effort split We, course, pass quality received. 1951 Claims Commission damages, basing liability receipt Northern Ind.Cl.Comm. (1973). $8,000,000 waiver Hansberry Lee, 311 32, 44, 115, 119, (1940), vicariously impermissibly represented. 42(d) ruling, arguing definition conflict reject contention. reason alone compromise involved. Justice Department's involvement began letter Attorney General requesting "of Tahoe above intake project." 263. Assistant assigned apparently recognize seek memorandum reserved-water-rights Winters, he view "[t]hese important fullest senior superior river." 269-270. Contemporaneously Acting Director Service notified assertion included thereafter kept aware proceedings; BIA participated. agency "charged fulfilling States" (1968), indicate official outside attempted influence BIA's manner obligations. suggests press reasons hindsight render questionable, involve instance, "We feel wise practically thing possible, trying direct inure benefit. [I]f ultimate welfare depends able civilized look forward livelihood, least, ancestral one, hunting. expect farm sorts work ways mak ng living." 435-426. Furthermore, pendency "a serious existed 185a. pressing conclusion, relies everything white population insofar 'consistent larger propositions useless country whole.' ambiguous finding, blinded conflict. "[T]here foreseeable hand performance [T]his apparent resolved department top-level scope Congressionally political charged responsibility, extinguishment lawyers departmental, bureaus, conduct chargeable impermissible directions superiors government. a189. reflects democratic responsibility; diverse makes apply, deny procedural process. notice Mullane Central Hanover Bank 339 306, 652, 865 (1950), fair heard Logan Zimmerman Brush 455 422, 102 1148, Mullane, accounting beneficiaries, members; exist relationship, complaining recourse. representative, heard. violated remedy. Finally, challenges negotiate execute out-of-court disputed independent attempt Petitioner-TCID 42-48. Because issue. note establishment access sustenance, hist ric fisheries." Pet. No. 183a. consequence, retains theory, today's ruling consistent decree—for judicious improvement works, heretofore unappropriated floodwaters, invocation decree's restricting diversions excess

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