Document: 460 U.S. 605 103 S.Ct. 1382 75 L.Ed.2d 318 State of ARIZONA, Plaintiffv.State CALIFORNIA et al. No. 8, Orig. Argued Dec. 1982. Decided March 30, 1983. Syllabus This extended litigation over rights to the waters Colorado River began in 1952 when Arizona brought an original action this Court against California and several its public agencies. Later, Nevada, New Mexico, Utah, United States became parties. Following report a Special Master, major issue case—the apportionment water among lower basin States—was resolved Court's opinion, 373 546, 83 1468, 10 542, 1964 decree, 376 340, 84 755, 11 757. A supplemental decree identifying present perfected was entered 1979. 439 419, 99 995, 58 627. Pursuant initial opinion acquired for reservations five Indian Tribes that are dependent upon river their water. The proper standard measuring intended held be "practicably irrigable acreage," Master's calculation amount such acreage approved. States, which ask intervene action, now seek have those increased account (1) "omitted lands"—irrigable lands within recognized reservation boundaries were not claimed earlier litigation; (2) "boundary been finally determined lie reservations. Master appointed by issued preliminary finding allowing final concluding entitled additional rights. Held: 1. Tribes' motions granted. Since do bring new claims or issues but only leave participate adjudication commenced judicial power controversy is enlarged granting intervene, States' sovereign immunity protected Eleventh Amendment compromised. Moreover, satisfy standards permissive intervention set forth Federal Rules Civil Procedure, serve as guide Court. Pp. 613-615. 2. exceptions conclusion omitted sustained. prior determination precludes relitigation issue. Article IX decree—which provided would retain jurisdiction "for purpose any order, direction, modification supplementary may at time deemed relation subject matter controversy"—must general principles finality repose, absent changed circumstances unforeseen previously litigated. res judicata advise reopening practicably entitled. To apply law-of-the-case doctrine actions, here, weaken decrees particularly case one turns on statutory rather than Court-fashioned equitable criteria. Recalculating runs directly counter strong interests litigation, has provide necessary assurance various private involved they can anticipate receiving from River. did contemplate departure these fundamental so permit retrial factual legal fully fairly litigated 20 years ago. absence proceedings does require reserved 615-628. 3. state agencies' certain order Secretary Interior "finally determined" meaning II(D)(5) quantities fixed provisions setting reservations' shall appropriate adjustment agreement event "the respective But with respect quiet title overruled, adopted. Accordingly, 1979 should amended service found contained tracts adjudicated specified judgments land. 628-641. Exceptions Report sustained part overruled part, Carl Boronkay, Los Angeles, Cal., Ralph Hunsaker, Phoenix, Ariz., Lawrence A. Aschenbrenner, Washington, D.C., tribes. Louis F. Claiborne, Justice WHITE delivered 1 problem irrigating arid confronted peoples region two thousand Congress many decades. Today we conclude another chapter determine In case, intervenor principal Reservations increased. 2 * Compact 1922 divided between upper- lower-basin states, fell short apportioning shares individual states. Nor Boulder Canyon Project Act 1928, 43 U.S.C. § 617 seq. (Project Act), vast federal effort harness put use River, expressly effect apportionment. dispute increasingly pressing concerned Arizona. 3 Arizona, settle dispute, invoked our jurisdiction, Const. Art. III, 2, Cl. filing motion file bill complaint seven agencies State.1 sought confirm her system limit California's annual consumptive River's waters. Nevada intervened, praying rights; Utah Mexico joined defendants; seeking behalf establishments, including tribes—the Tribes, Fort Mojave Tribe, Chemehuevi Cocopah Yuma (Quechan) Tribe. 4 After lengthy proceedings, Simon Rifkind filed recommending division California, Nevada. parties' extensively briefed twice argued. most agreed 542 (1963), views carried forward 757 (1964). 5 long rich story efforts states arrive mutually satisfactory plan need repeated here. We allocation governed directive applied disputes entitlement interstate streams. local law appropriation necessarily controlling. itself created comprehensive scheme Lower Basin's share mainstream leaving each tributaries. had decided fair first 7,500,000 acre-feet give 4.4 million 2.8 300,000 equally surplus. U.S., 565, S.Ct., 1480. 6 Over objection, also reservations, effective creation. 598-600, 1496-97. See Winters v. 207 564, 28 207, 52 L.Ed. 340 (1908). These rights, having vested before June 25, 1929, ranked other "present rights,"2 priority under Act. 600, 1497. Rejecting more restrictive speaking "only feasible way measured acreage." 601, 1498. further findings, arrived after full, adversary acreages land different Ibid. findings subsequently incorporated 9, 1964. II(D) Decree Reservation's diversions mainstream. 7 Not all aspects Decree. First, course determining Reservations, generally smaller them be. Although based decreed it "unnecessary" boundaries3 Reservation "shall determined." 345, 758. Part V, infra. Second, VI parties, years, list outstanding Finally, retained modifications orders proper. 8 On January 1979, dates that, shortage, shall, providing satisfaction full Reservations. noted quantities, paragraphs through continue court 421, 995. thus litigation. questions arose: ultimately made lands. 9 Because represented interests, no 1977, however, Mojave, Quechan (Fort Yuma) moved indispensable By April 10, 1978, petitions intervention. Three oppose entry raised appurtenant types land: so-called "omitted" lands—irrigable lands, said failed claim "boundary" lands—land officially assertedly Initially, both Parties opposed Subsequently, dropped opposition Still later, December 22, Indians moving grant Decree, denied Chemehuevi, insofar Supplemental Other matters motion, well resolved. Senior Judge Elbert P. Tuttle referred him. 436-437, 1005-1006. II conducting hearings, August 28, subsequent hearings merit. addition, concluded primarily because administrative decisions taken Interior. purported considerably enlarge affected and, reassertions positions submitted Rifkind, rejected him, left open us later resolution. refused allow time, 444 1009, 100 655, 62 638 (1980), merits. 12 February 1982, his Report. almost entirely consistent position Tribes. objections question whether practicable actually existed claimed, found, 1963 specified, he beyond found. Furthermore, boundary determination, there determinations, concerning acreage. III 13 refiled action. consider first. 14 agree insist without consent, participation violates Amendment.4 Assuming arguendo interpose bar suit tribe, Minnesota, 270 181, 193-195, 46 298, 300-01, 70 539 (1926), longer assert Water right States. Nothing "has ever seriously supposed prevent state's being sued States." Mississippi, 380 128, 140, 85 808, 814, 717 (1965). e.g., Texas, 143 621, 646, 488, 493, 36 285 (1892); 297 175, 56 80 567 (1936); 332 19, 26-28, 67 1658, 1662-63, 91 1889 (1947). vital Therefore, See, Maryland Louisiana, 451 725, 745, n. 21, 101 2114, 2128, 68 576 (1981). 15 grounds presence insures adequate representation interests. maintain prerequisites Rule 24 Procedure satisfied. Aside fact own rules make clear procedures see Supreme 9.2; 394 89, 95, 89 761, 765, 22 (1969), obvious minimum, Rules. will since representative bind judgment. Heckman 224 413, 444-45, 32 424, 434, 820 (1912). "to take place independent qualified members modern body politic." Poafpybitty Skelly Oil Co., 390 365, 369, 88 982, 984, 19 1238 (1968), quoting Board County Commissioners Seber, 705, 715, 63 920, 925, 87 1094 (1943). Indians' critical welfare discouraged.5 persuasive reason why prejudiced unduly delayed presence. sufficiently timely phase Of course, permission carry relitigate already unless otherwise reconsideration. IV 16 turn case: reopened could preceding too late day modify notwithstanding "[t]he . embraced totality lands." 31. disagree sustain conclusion. 17 unlike adjudicated, continues mainly considerations. primary states—was distribution written into rights—an important ancillary concern recourse Congressional policy equity. creation government implied allotment "make livable." 599-600, (1908); Cappaert 426 141, 96 2062, 2070, 48 523 (1976). argument, urged govern question. "not convinced Arizona's argument much like apportionment." 597, 1496. "Moreover, even treat State, still control, since, view, here statutes Executive Orders creating reservations." 18 went reject arguments Pollard's Lessee Hagan, How. 212, 565 (1845) Shively Bowlby, 152 1, 548, 38 331 (1894) prevented reserving federally 1496; Order, id., 598, (3) insufficient evidence reserve quantifying hotly contested who argued adapted liberal measure. Our decision rely constituted rejection proposal quantity Indian's "reasonably foreseeable needs," i.e., number Indians. preferable how what future needs guessed," contrast, allowed needs. 600-601, 1497-98. measurement Indians, won described complete victory. victory, stressed, attributable interest Applying standard, acreage, reasonable. reflected U.S calculations.6 There if presented proceeding, reopen due operation judicata. That true provides that:7 21 Any parties foot amendment relief. retains direction controversy. provision grants correct errors, questions, necessary, differ understanding exercise appropriate. 23 believed discretion "law case" principles. Unlike precise requirements judicata, amorphous concept. As commonly defined, posits decides rule law, same stages case. 1B J. Moore & T. Currier (hereinafter Moore), ¶ 0.404 (1980).8 Law directs court's discretion, tribunal's power. Southern R. Clift, 260 316, 319, 126, 283 (1922); Messenger Anderson, 225 436, 444, 739, 740, 1152 sense, might appear applicable understandably crafted ordinary mind. Such proceeds stages, matures trial, produces judgment, appeal, binding collateral estoppel attach. extrapolate wholesale situation where accommodate often retained,9 intolerable extent Decrees turning For following reasons, hold must given narrower reading 25 while technical preclusion strictly applicable, founded inform decision. It party moves rendering proceeding 0.407, 931-935; Field, B. Kaplan K. Clermont, Materials 860 (1978). Nevertheless, precept common-law once competent conclusive. Montana 440 147, 153, 970, 973, 59 210 (1979); Federated Dept. Stores, Inc. Moitie, 452 394, 398, 2424, 2427, 69 (1981); Cromwell Sac, 94 351, 352-353, 195 (1876). "To preclude contesting opportunity litigate protects adversaries expense vexation attending multiple lawsuits, conserves resources, fosters reliance minimizing possibility inconsistent decisions." supra, 153-154, 973-74. 26 context real property. Abraham Lincoln scorn sat basements courthouses combing property records upset established titles.10 reports replete reaffirmations affecting titles land, decided, considered open. Minnesota Co. National Wall. 332, 334, 42 (1865); Title Ins. 265 472, 486, 44 623, 1110 (1924). Certainty Western development area possible supplies water-scarce country. Cons. District 424 800, 804, 1236, 1239, 47 483 appropriation, prevailing western largely product compelling certainty holding rights.11 27 inception day, Southwest receive system. "In parts West inescapably vie limited rivers streams." 438 696, 699, 98 3012, 3013, 57 1052 If surplus increase "gallon-for-gallon reduction available water-needy appropriators." Id., 3016. recognized, great deal really needed convince anyone adjudications." 46. Metropolitan Central predicate plans basis allocations, but, high claims, enlargement cannot help exacerbate potential shortage problems projects States.12 explicate conditions changes Very little discussion surrounded Article, included Rifkind's recommended agreed-upon provision.13 suggests safety net added ensure not, virtue precluded ourselves adjusting light unforeseeable circumstances. 29 supported Rifkind. record demonstrates intention final.14 well, choice measure water.15 untenable undercut discussing subject. 30 interpretation cases. history resolving reveals simple fact: reconsider determinations correctly made. cases virtually identical included, reaction Wisconsin Illinois, 278 367, 49 163, 73 (1929), 281 179, 50 266, 74 799, entered, 331, 1123 (1930), temporarily modified, 352 945, 77 321, 240 (1956), 983, 385, 366 (1957), superseded, 388 426, 1774, 1290 (1967); Jersey York, 336, 51 478, 1104, 805, 562, 1425 (1931), 347 842, 1127 (1954).16 retaining gleaned Masters, note flexibility disposed decree.17 role "court equity injunction adaptation conditions." System Federation Wright, 364 642, 647, 81 368, 371, 349 (1961); Swift 286 106, 114, 460, 462, 76 999 (1932). 31 similar latitude inequitable allocations justices broadest. retention consideration circumstances, based, fortiori apportionment, broader.18 fear urge relitigate, loosed, easily cabined. indicated, reopened, reconsidered (1978) Washington Commercial Passenger Fishing Vessel Assn., 443 658, 3055, 61 823 (1979), persuaded defensible line drawn reasons advanced hand other. become Pandora's Box, upsetting considerations, combined practice involved, lead relitigated. 33 demand so, unnecessary resolve bitterly detrimentally relied Detrimental certainly relevant balancing equities justify believe manner occurred, detrimental Finality meaningless adversarially-determined revising it.19 34 Similarly, hardly determinative requested involve reallocations increases percent constitute "relatively minor adjustments," magnitude underlying redetermined. 35 dictate authorize fiduciary, authority (1912).20 find merit contention inadequate conflict arising government's securing property, otherwise. represents varied involving large variety holdings West. e.g. 1240. Government's deprive finality. demonstration actual interest. From initiation responsibility represent indication Tribe's legally inadequate. Recognition diminish rights.21 Under Act, direct competition. bore out: establishments charged 1498, times broad insure 593-594, 1494; 343-344, Indeed, substantial awarded reflect competency representation. 1963. aspect report. V 37 address boundaries, arose during hearing proof disputed location theory failure adjudicate controversies non-Indian users doubt use, operate Hoover Dam works below, former disputes, Report, 256-257, days matters. Tr. 19,992, objected proceedings. felt lacked individuals contended Reservation. 19,998-20,000. nevertheless ruled issues, favor—that is, covered basis. 39 maintained unfair prejudice political approving tangential never pleaded observed postponing materially affect entitled, Palo Verde Irrigation District, priorities.22 specifically object resolution because, merits issue, State's position. 40 responded acted properly disputes: "The essential prerequisite quantum nor act parens patriae citizens matters."23 41 Master. accept "We Mohave Should arise some refusal deliver either area, settled time." them, stipulated parties,24 provided: 45 "[T]he [of water] [the reservations] B about us. And 1964, three emerged. decide II(D)(5), upward begin summary issues. describe dispute. portion ran along west bank accretion, erosion, avulsion. point May 15, 1876, date executive question, remained settlement. 17, 1969, Interior, relying Department's Solicitor, directing approximately northerly two-thirds follow meander lines 1879 1874 changing unilaterally hearing, 4,400 acres obtained judgment quieting tribes parcels Also, establishing boundary, corrected error old survey. He approved plat adding 450 12, 1978. Second Reservation, specifically, westerly Hay Wood Reserve surveyed 1928 survey, adopted General Land Office Department 1931, accordingly 3, 1974, declared null void survey directed total recited description 1890. prepared, November 6, 3,500 treated tract contains 2,000 Third, post-1964 secretarial substantially enlarging engendered 25,000 thereby entitling Tribe 1936 Solicitor's 1893 tribes, 1968 1975, solicitors reaffirmed opinion. 20, notice participated leading 1975 Solicitor opinions invalid. next asserting 5,800 irrigable. Chemeheuvi Some 2,430 "restored" 1974. resulted construction Parker needed. However, neither addition. developments favor assignees railroad patent grant. Nearly section 500 which, accretion 883 asserts confirmed 1975. 102(e) Basin Salinity Control Public 93-320 (June 24, 1974), Stat. cede addition cession payment across S.Rep. 93-906 (1974), U.S.Code Cong. Admin.News p. 3327. Between congressional act, 1,161 53 recited, 630-632, foregoing took apprised 1978 amend awarding water, alleged therein. disputes. Rather, unaffected adjustments Reservations: 54 sections tribes] 55 1005-06. C support above-described events "final determinations" Agencies susceptible review. They argued, ripe review, evidence, hear arguments, any. Observing rebuffed attempt de novo boundaries. While recognizing aside forum, judgments, although "accepted" Secretary, Agencies, acts "provide[d] sort contemplated determination." 64. regarded "conflicting ambiguities boundaries." Had recent "definitive" orders, "swe[pt] inconsistencies ambiguities," "would removed regarding boundaries," surveys "conclusive proceedings." 67-69 (citing Borax Consolidated Ltd. City 296 16-17, 23, 26, (1935); Stoneroad Stoneroad, 158 240, 250-252, 822, 826-27, 966 (1895); Knight Ass'n., 142 161, 176-187, 258, 262-66, 974 (1891); Cragin Powell, 128 691, 698-699, 203, 206, 566 (1888)). unmoved Parties' "day court" decisionmaker, "aware areas Parties." 74. remaining concerns "be met inclusion reduce pro tanto determines land." 75. accepted exceptions. D With lines, decline tribes' time.25 decree,26 overrule adopt conclusions. 60 settlement, ex parte adversely agencies, place, provision; implausible suggest meekly reach insisted complied, adjudicable material law. wanted here; apparently elsewhere. judicially all. Present officials testified cooperated appeared definitive No suggested contemplated, purport conclusively then intimate nothing Secretary's actions soundness remembered decisions, Thus, up benefit victory issues; something done obviously incentive so. hand, burden proving instituted Courts, tried presumably Instead, chose head series culminating allocations. extending yet They, themselves, erred refusing sustained, respect, enough us, others, anticipated possible, forums. At juncture, unconvinced challenge filed, suitable forum dismiss lack standing, statute limitations.27 enough, dismissal overturned appellate foreclosed goes concluded, impact rights.28 Hence, go forward, motions, made, promptly expeditiously adjudicated. connection severed separately delay keep results unresolved issues.29 64 adjudications very said. observed, proclaim, bound sense. correct, briefs, asserted mistakenly contrary, brief declares "we 65 practical matter, parcels, concede remain content them—namely, exists parcel? parcel Insofar discern table page 117 brief, except perhaps few labelled FM-11 parties.30 small sandy tract, rejecting irrigable.31 66 expansion statute. retroactive date. accorded hence disturb disposition above pertaining time. similarly pass decree. submit, September 1983, proposed effect. ordered. MARSHALL BRENNAN, whom BLACKMUN STEVENS join, concurring dissenting part. 71 I join Cocopah, (collectively, Tribes). basic premise 353, 762, 757, quantification out 343-345, ante, 618. company Court, power, unique timing motions. inexplicable States) solution 72 areas, identify extensive preceded called attention significant divert depended "irrigable acres" reservation. (1963); S. 263-265 (1960) Report). vociferously exactly irrigable, facts theories irrigable—at least 18,500 acres, E. Tuttle, 109, 125 (1982) Report)—and award diversion identified completely irrigability until 1977. correcting quantifications include amounts used economically irrigate stands, considerations strong, justice weak, them. allocating final, formal correction compromise continuing manifest injustice themselves little, any, excessively extols principle "finality," overlooks caveat "finality" means things contexts, accords weight depending context. borrows formal, nondiscretionary doctrines admits, applicability 619, supposedly before, reached stage this, seeks reconsideration single, allows courts wants judge. Currier, Moore's Practice &Par; 0.401, 0.404[1] (2d ed. 1982) Moore); cf. Smelting, Ref. Mining 339 186, 199, 537, 544, 750 (1950). makes difference. marks economy, certainty, reliance, comity strength ruling becomes "good sense." 0.404[10], 573. Concern remains policy, overriding reason, reluctant merely error, though 444-445, 740-41, traditionally thought ruling, 0.404[1], 408, opportunity, less contested, Hartford Life Blincoe, 255 129, 136, 276, 278, 549 (1921).1 uses appealing benefits society certain. underlies invocation Ante, 620-621. More importantly, central acreage" 1963, highest degree allocated presently needs, precisely re-evaluation future, "plac[ing] junior jeopardy uncertain unknowable." 263-264. urged—and held, 1497-98— accepting contention, establish preserve users." 265. 78 stresses 622-624, irrelevant hand. One Lincoln's scoundrels courthouse basements, think desirable fixed. fixed, reliable served reopening, kind shown final. 79 acknowledges far rights," flows 617. 611. authoritative rights" established.2 representing 900,000 per year. quantified accounted flows. raising Decree's determined.3 regimen Project, massive agricultural 38-39; Meyers, Stan.L.Rev. (1966) Meyers). accomplished. authorized 1968, stage. completion. ready diverting importance, lacks capacity sum, dispose Principles economy sole adjudicative resources expended And, ago excused, depriving permanently alone, especially error.4 82 suffer fail claims. uncorrected stand lose forever valuable 595-601, 1495-98. loss occurs perform obligations trustee advocate justification presenting evidence. waive Cf. nn. (suggesting otherwise). existence came specialist mentioned mesa adjacent irrigated. Previous Transcript 14,152. immediately pressed express waiver spot pre-1964 attorney responded, "I am probably away anything ought claim." 14,156.5 (1912), 627, bear cost error. Heckman, defendants, conveyances forbidden alienate, trust responsibilities. 434. enforce restrictions acquiescence suit. 445, passing, "traces source plenary control legislating protection care, recognizes limitations discharge national duty." Were relationship cases, estop represented. intimates scrutiny, repudiated Shoshone 299 476, 244, 360 (1937); Creek Nation, 295 103, 110, 681, 684, 1331 Cramer 261 219, 227-229, 342, 344-45, 622 (1923). fiduciary beneficiary. "discharge duty" requires sharp quality fulfillment obligations, obligation representation, scarce stake. 1973, Commission reported, treatment protect sorrier chapters." Comm'n, Policies Future Final President 475. Nixon admitted 1970 message Congress: 86 Government American economic importance people; frequently confrontations, faced inherent Attorney advance holds trustee. considerable losers situations arise." H.R.Doc. 363, 91st Cong., 2d Sess. 116 Cong.Rec. 23261 (emphasis original). carefully explains "actual interest" regard recognition agree. discloses always narrow view controversies. elsewhere, constructed nonfederal interests; authorization crucial Basin, shaping inception. 564-590, 1479-93. sometimes slow press conflicted politically influential Pyramid Lake Paiute Morton, 354 F.Supp. 252, 256-257 (DC 1973). Protection Resources: Hearings Before Subcomm. Administrative Senate Comm. Judiciary, 92d 1st 235-249, 907-914 (1971) Hearings); Cohen's Handbook 596-599 (3d Cohen).6 therefore, leap "was 1963," 628. (if needed) interests—economic, historical, spiritual—in outcome best representatives. Upon entering swiftly exposed neglect. violated care liable "inadequate" liability, mere Even intend good deny justice, deserve chance defend theirs. deciding result. prefer allocate Tribes; appropriators timeliness finality, procedure worse off 1983 90 length significantly 38-46.7 whole involves speculation. Lee Ferry, historically averaged 7.5 117. Until Upper expected continue. improvements irrigation, farming, conservation technology efficient exploitation accommodated currently able Decree.8 irrigation systems industrial plants built, availability lease others consent explored option extensively. Cohen 592-593; Meyers 71; Ops. Relating Affairs 1917-1974, 1930 (Feb. 1964). leased users, mean existing pay market rate simply accord event, deprived near 92 harm harmed framing truth, unlikely generation, plenty prepare. Yet foreclose lost forever, fault own. balance hardships decidedly favor. avert begins effect, recognize 93 Reasonable judges approve includes serves discernible purpose, profoundly emphasis ideals predictability explain reasonable permitting determined," 421-422, 995-96. outset current maximum system, task requiring determination" lay lands.9 novo. 95 middle calculated end corresponding proviso: "Provided, further, above-named outside accretions thereto owners reduced unit listed [1979 Decree]." 282-283. 97 proviso conditional succeeded overturning rights—precisely 192-196, 239-277—would automatically subtracted entitlements. advantages obvious. First foremost, faithful approach instance exact purposes. settles absolutely figure, informs stake choose particular led itself. open-ended unknowable," 264, whereas "provide users," disregards virtues. Simply clock back guarantees proceed "round," possibly "rounds" thereafter, one-by-one border upheld, duplicate 638.10 just importance. 647. I-C, immediate preference prolonging attendant uncertainty odds resolves purposes my worthwhile discuss length. highly specific parcels. concepts "plain error" "abuse discretion" recommendations special masters explained conclusions demands four asks Interior's Ft. Reservation; essentially clerical conforming decrees. Imperial Coachella Valley San Diego, Diego. "perfected right" "water accordance exercised defined definite municipal works, beneficial use." 341, 756. "Present suggestions papers states' distinct afforded Amendment. posed concerned, appreciate 345 689, 1081 (1953) (per curiam), Philadelphia's request adequately Pennsylvania, misplaced. attributes omission complexity tactical portray calculating Reservations' contend 627 pendency undermine latter. Restatement (Second) Judgments 13, Comment e, ("A sense rest.") doctrine, understood, improper depart clearly erroneous work injustice. White Murtha, 377 F.2d 428, 431-432 (CA5 1967). district jurisdiction. Kempf, Philosophy Common Sense, 1,346 Prior encouraging barren productive uses, insuring developers enjoy "Appropriation developed West, usually water-short areas. Where everyone, obtain start later." Trelease, Cases (1979). Justices accomplished everything uncontested uncertainties render interlocutory respects. echoed dissent, safely incomplete noted, attaches. 7, supra. nature deter 360. IX, noting "erroneous unworkable." Supplement District's Form (Dec. 1963). favoring predicated outstripped utilization. read submission attach indicia intent IX. evident exchange counsel informed pumping plant constructed, inquired governments' maps "illustrate define" Mr. Warner, stated "authorized claim," offer propose excess offering matter." inquired: "And you upon?" Warner replied "That correct," "that going bound. statement seriously." Counsel mistake "ask it." suggestion categories indicated constituting "Bill Particulars," Arg. 14,154-14,157. post, 649, seizing Warner's anything," forgets reflects Additional passages import collected Appendix Brief Support Exceptions. 15. disadvantages open-end clear: "One stating reasonably related appropriated establishment. limitless unknowable. Financing districts severely hampered investors expanding result project's supply." 264-265. decree" stock domestic uses. "establish 799 (1929) Illinois Sanitary Chicago Michigan diluting carrying sewage Chicago. modified 1956 "emergency navigation caused low Mississippi River." 240. 1104 Delaware sewage. Wyoming Colorado, 259 552, (1922), inadvertent months 1026 (1922). Clark, Waters Rights 338 (1967). Re-Reference 145 (December 1929), (1930) ("It impossible contingencies arise."); (February 1931) (1931) (recommending fraught uncertainties."). (October 16, 1944), Nebraska Wyoming, 325 589, 1332, 1815 (1945) ("Recommendation showing change inequitable.). pertinent advent sophisticated technologies Clearly, technological indefinitely, recalculating concedes "technological advances alone call re-opening decree," Reply 18. dissent's assessment favor." Post, 655. dissent recognizes, Decree," 653. When viewed serious shortages people, mark Contrary 650, Heckman's square binding, 443-446, 433-34, undermined, let "repudiated," (1923) possess patented third party. bare citation, 232, (1937), (1935), suits Claims compensation takings Neither mention, qualify, Heckman. court. relevant, remedy Claims. We, available. breach duty demonstrated oversight or, retrospect, unnecessarily cautious strategy. Certainly, found—at law—by sifting testimony Congress, Presidential speeches, commentary "slow claims." sources, 650-652, highlights record. Opening Cal.Defs. Their Exceptions, 279-283 (May 1961). Answering (Aug. Agreed Provisions 18, follows tract—the "Checkerboard area"—alleged 81-83. include: 1977 grant; accreted 633. quieted totally Jan. 1969. 631. determinations," await latter judgments. stayed pending Civ.No. 81-0678-GT(M) (Apr. 1982). ascertains "no purpose" orders. agrees increase, Unless assumed challenges fail, commend terms Its, our, anticipates now, unnecessarily, propriety reasoning albeit "conditional basis," 656, affording slightest semblance Fuentes Shevin, 407 67, 556 (1972) (invalidating prejudgment taking hearing). identifies plausible officer observes, 657-658, holding, prompt adopted, incentive. present, concluded. and/or wish recently-finalized area," raise Seventeen LaFollette, 69-324MR (D Ariz. Feb. 1977). Memo. Respect Its Exception, (Sept. 27, remainder decree; Area." 3; appears few, LaFollette Exhibs. 142, 158(G). expert economists farmed crop yields production costs high. excepted testimony. soils expert, FM-11. 188-189. soil sandy, ends matter. feasibility farming soil. "changed circumstances," 624-625, injunction—and injustice—they sine qua non process making that. complex structure Suffice say extent, overall entitlements drought rata reductions users; rather, obligated starting chronologically (except satisfied regardless priority, 995). then, are, year, benchmark handed down 995-96, 625-626. specter, ignores distinction application standard. discussed extensively, 257-266, 1497-98, (1963). indicate chosen opinion—it "feasible measured," created, readjusted linked population. worth decision, familiar objective 14. close waiver. delicate responsibilities split-second class response surprise witness. Manual Complex Litigation, 1.90, (1982); Chayes, Role Harv.L.Rev. 1281, 1291, 1297-1298 ways compromising besides it. Devoting fewer investigating preparing warrant responsible court, experts employs developing bringing Department. bifurcated confer hydrologists experts. 445-449 (testimony W. Kiechel, Jr., Deputy Asst. General, Natural Resources Division). projections projections, argue commercially viable 38-41; 90-408, 90th 18-21, 32-35 meet begun 44-46. California—the appropriator California—presented "fully [it] rights." 42. year 2010. 1981, collectively diverted 77% ranged 83% awards (1981) 72% Int., Bureau Reclamation, Compilation Records Accordance Dated 1964—Calendar Years 1925-1981. all, 11,340 ibid., reservation, development. 1075 Esquerra). capital investment required 165-184, 242-248. estimated $2.1 develop six units Exs. 132-140. challenged. approves amending 640-641. concur seems 639. enter lawsuit voluntarily, 639, 24. today prosecute claims—as belong (As defendant, litigate.) unprecedented willing barred immunity, limitations. 638. impression. "certainty States," 620, determine"

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