Document: 463 U.S. 545 103 S.Ct. 3201 77 L.Ed.2d 837 ARIZONA et al.v.SAN CARLOS APACHE TRIBE OF al. No. 81-2147. Argued March 23, 1983. Decided July 1, 1983.* Syllabus In Colorado River Conservation District v. United States, 424 800, 96 1236, 47 483, it was held that (1) the McCarran Amendment, which waived sovereign immunity of States as to comprehensive state water rights adjudications, provides courts with jurisdiction adjudicate Indian in trust by and (2), light federal policies underlying a suit brought court claiming on behalf itself certain India Tribes properly dismissed favor concurrent adjudication reaching same issues court. The instant cases form sequel decision. 81-2188, various actions Federal Court, seeking an streams Montana. Subsequently, Montana Department Natural Resources filed petition streams. Still later, additional its other streams, these also became involved proceedings. Motions dismiss were granted, Court relying part River. On consolidated appeals, Appeals reversed, holding might lack claims because Enabling Act admitting Union provision Constitution promulgated response reserved "absolute control" over lands Congress; State, however, have acquired such under Public Law 280, allowed State acquire affairs amend constitution remove any impediment constitutional or statutory declaimer; even if found had validly repealed disclaimer language Constitution, limited factual circumstances prevented application litigation. 81-2147, claimants Arizona petitions number river systems, joined each case both independent capacity trustee for Tribes. Thereafter, some suits seeking, inter alia, determinations their rights. River, most actions, while staying one them pending completion admitted statehood similar disabled from adjudicating claims. Held: 1. hear Tribes, dismissal stay would been improper there no actions. 280 not authorized assume rights, since specifically withheld jurisdiction. And extent claimed bar is premised respective Constitutions, question law binding authority. Pp.559-561 2. Whatever limitation Acts policy may originally placed state-court those limitations removed Amendment. That Amendment designed deal general problem arising out States' ability nowhere Amendment's text legislative history indication Congress intended efficacy remedy differ another. To declare now applies only located without jurisdictional reservations constitute curious unwarranted retreat rationale work very mischief decision sought o avoid. Pp. 561-565. 3. Where rather than are subject doctrine. 565-570. (a) If, appears be here, at issue, then proceedings likely duplicative wasteful. Moreover, judgment either ordinarily res judicata other, existence creates potential spawning unseemly destructive race see forum can resolve first—a contrary spirit prejudicial possibility reasoned decisionmaking forum. 565-569. (b) cases, assuming adjudications adequate quantify issue suits, taking into account policies, expertise administrative machinery available courts, infancy judicial bias against piecemeal litigation, convenience parties, Courts correct deferring 569-570. 668 F.2d 1093 (CA9 1982), 1100 1080 reversed remanded. 1 Jon L. Kyl, Phoenix, Ariz., petitioners 2 Michael T. Greely, Atty. Gen., Helena, Mont., 81-2188. 3 Robert S. Pelcyger, Boulder, Colo., respondent 4 Simon H. Rifkind, New York City, 5 Louis F. Claiborne, Washington, D.C., 6 Justice BRENNAN delivered opinion Court. 7 These our 483 (1976). 43 U.S.C. § 666, adjudications,1 (2) clear questions this parallel: What effect which, unlike Colorado, legislation States? If do should tribes, raising claims, doctrine River? 8 * arose Government declaration waters rivers tributaries drainage basins Colorado. suit, asserted governed law,2 well based law. Shortly after commenced, joined, pursuant party ongoing being conducted basin. motion defendants intervenors, stating abstention required deference we turn Appeals. 9 We began analysis conceding 28 1345, conferring district civil Government. examined whether nevertheless view This considering "whether provided consent determine Indians court," U.S., 809, S.Ct., 1242, "given [the suit], clearly inappropriate decide claims." Ibid. concluded: 10 "Not language, but policy, dictates construction including provisions. [United Eagle County, 401 520, 91 998, 278 (1971),] rejected conclusion reached reason '[deals] all-inclusive statute concerning "the use system." ' Id., 524, 1002. consideration reservations." 810, 1242. 11 sum, important interest allowing all system adjudicated single proceeding, "bearing mind ubiquitous nature Southwest," us "that excluding coverage enervate objective." 811, 1243. 12 buttressed examination noted: 13 "Mere subjection legal challenge . more imperil has abdicated responsibility fully defend court, interests satisfactorily protected regimes way abridges substantive claim County said, 'questions [arising collision rivate States], volume scope particular preserved, reviewed [by Supreme Court] final court.' 526, 1003." 812-813, 1243-1244 (citations omitted). 14 considered itself. could supported forms, justified traditional principles "[w]ise administration, giving regard conservation resources disposition litigation." 817, 1246, quoting Kerotest Mfg. Co. C-O-Two Fire Equipment Co., 342 180, 183, 72 219, 221, L.Ed. 200 (1952). stated that, although "virtually unflagging obligation exercise given them," outside context warranted suit. See generally id., 817-819, 1246-1247; Moses Cone Hospital Mercury Construction Corp., 460 ----, ---- - 927, 938-939, 74 765 (1983). hand, noted considerable technical proceedings, 819-820, 1247-1248. 15 "[A] factors counsel evinced avoidance system. akin rule requiring yielded first acquiring control property, concern instances avoiding generation litigation through permitting inconsistent dispositions property. heightened respect relationships among highly interdependent. Indeed, recognized allocation essentially involve property best unified bespeaks recognizes availability systems means achieving goals." 819, 1247 16 For reasons, others,3 affirmed dismissing complaint. II 17 two here arise three separate appeals decided within days panel Ninth Circuit. tribes own behalf, both, right Cases (No. 81-2188) 18 January 1975, Northern Cheyenne Tribe action State. thereafter, tw determination Cheyenne, Each sese users stream, merely plaintiffs. concerned intervened appropriate. 19 At about time activity place preparing begin process recently passed statute. commencing cases. 20 Both sets contestants having positioned themselves, nothing much happened years. stayed When came down, Montana, dismiss, argued 1976, until 1979. Meanwhile, completed answers submitted, discovery commenced. Over events moved slowly, appreciable progress seems made 21 April 1979, four One month legislature amended procedures "to expedite facilitate existing rights." Adjudicate Claims Existing Water Rights 1(1), 1979 Mont.Laws 1901. initiation order appointment judges throughout consolidation division. It provided, things, already Indians, file statement date set deemed abandoned claim. 16, Mont.Laws, 1906-1907, codified Mont.Code Ann. 85-2-212 (1981).4 issued order, served formal notice thereof.5 22 November jointly motions actions,6 granted them. 484 F.Supp. 31 (D.C.1979). relied strongly new legislation, stating: 23 "The above-cited sections reflect essential mechanism Adjudication adversary proceeding initiated claimant others his forsaken blanket contemplated [1979 legislation] efficient. As seem greater wisdom lies following and, basis wise proceedings." 35-36. 24 noted, "are infancy; service completed," 36, forums geographically convenient "[t]he amount significantly less necessary adjudication, insofar special solely devoted adjudication," ibid., conflicting looms large partially avoided intimated distinctly repugnant purpose." 25 appeal, divided reversed. Adsit, 1982). First, closely linked documents: statehood, Act, provide, identical terms, people inhabiting 26 "agree they forever disclaim title owned tribes; thereto shall extinguished remain said absolute States. ." Feb. 22, 1889, 4, Stat. 677 (North Dakota, South Washington); Const. Ordinance I. 27 concluded prohibit exercising adjudicatory effected change disability. held, 83-280, 67 588 (1953) (Public 280), 1953 amendment 1968, wished so aspects criminal affairs, disclaimers "amend, where necessary, statutes, be, impediment" assumption 6, 590. Washington Yakima Nation, 439 463, 99 740, 58 740 (1979). did accordance requirements cf. supra, 478-493, 750-757, criticized undertaking analysis. he second, dispositive, ground Appeals, "[e]ven find constitution, [t]he [Colorado ] prevent F.2d, 1087. conclusion, possible inadequacy (which discuss great detail), fact (who involuntarily proceedings) adequately represented conflicts between Government's responsibilities water. 81-2147) 29 mid-1970s, initiate systems. early approximately 12,000 known claimants, 1981, another 58,000 again case, tribes. 30 whose implicated series Arizona, asking variously removal declaratory injunctive relief preventing further A remand dismissal. remanded prejudice. 778 (D.C.1980).7 remaining App. Pet. Cert. p. D-1. appealed decisions, exception orders.8 36 557 (1910), Art. 20, ¶ contain wording substantially San Carlos Apache 1982); Navajo Nation "properly 280." 1098, 1102. whether, jurisdiction, proper except note judge make findings record indicates significant differences ]." 32 certiorari, 50, 56 (1982), conflict circuits regarding role rights.9 reverse. III A. 33 outset analysis, propositions clear. tribes.10 Second, suits. 1236. Third, parties agree erred believing absence otherwise, contrary, ownership possession "of real personal belonging tribe, band, community restriction alienation imposed States." 1322(b) (emphasis added); 1360(b).11 Thus, presence must rise fall reference assumed 280. 34 Finally, obvious B cause, taken assume, informed that—at least concerned—such exists. therefore look, purposes, enabling acts assertion 35 interpret act largely matter fortuity, few Western containing Acts.12 substantial majority land—including largest reservations—lies acts.13 act, were, historical timing deliberate congressional selection. 1876. 1882, McBratney, 104 621, 869, murder committed non-Indian reservation, pointing punishment crimes protection improvements, regulation descent government internal police Indians." 624, 869. suggested, result different expressly when Union, contained Kansas 1861. 623-624, 869; (5 Wall.) 737, 667 (1866). Probably McBratney decision, resumed practice acts, virtually every 1882. n. 12, supra. Despite specific rarely dispositive activities lands. Draper 164 240, 107, 41 419 (1896), example, despite reservation still crime stated: 37 "As equality rule, words create cannot construed doing so, if, reasonable meaning, otherwise treated. mere 'Indian lands' does necessity signify retention punish offenses 244-245, 108-109. 38 Similarly, Organized Village Kake Egan, 369 60, 82 562, 573 (1962), Alaska deprive regulate fishing licensed Interior, finding neither interfered self-government nor impaired Conversely, Worcester Georgia, (6 Pet.) 515, (1832), perhaps expansive independence ever uttered pertained original thirteen unbound whatsoever. also, e.g., 761, 769-770, 708 (1867) (reaching benefit disclaimer). many recent decisions recognizing crucial limits power invoked anything passing mention distinguished nondisclaimer See, Mexico Mescalero Tribe, 462 2378, 75 (1983); Ramah School Board Bureau Revenue, 458 102 3394, 73 1174 (1982); White Mountain Bracker, 448 136, 100 2578, 65 665 (1980); Bryan Itasca 426 373, 2102, 48 710 (1976); Williams Lee, 358 217, 79 269, 251 (1959). 39 history, engaged vigorous debate exact meaning significance Acts.14 need debate, resort doctrines developed chart authority convinced whatever Amendment.15 Cf. Nations, 484-493, 753-757, distinguish But Southwest, "ubiquitous rights" apparent attached reservations. 561. minority behind previous holding, rely possibly overbroad "equality rule," 244, 108, conclude thi least, statehood" sensible, important, consistent will Congress. IV 40 second full force rights.16 directly answered "[w]hether considerations permit private court." 820, 26, 1248, 26. reflection, STEVENS, who, dissenting wrote: "[T]he surely lesser access party, asserting today's necessarily restrict plaintiffs Colorado." 827, 1251. respondents raise arguments why appropriate tribe seeks traditionally left free interference cou ts inhospitable (3) waive immunity. unfair choose waiving intervening represent particularly frequent 1362 bring court.17 (4) (5) Because "reserved rights," take priority created law, practical simply incorporated decree 42 good force. note, though, raised River.18 More founder fact: case,19 wasteful, generating "additional property." 1247. serious entire prejudicial, say recognize concerns, responding cast aside sort sound argument rest submissions instead vague statements faith hope. states "entail duplication judgments. asked before embarked task. And, course, once indicated perform role, tribunal attention typically complex business stream. usual function earlier quantification decree." Brief added). states: 44 "There reasonably foreseeable danger Navajo] duplicate delay waste resources. While proceeds move forward assess, quantify, rank long finished task." added; footnote 45 scenarios, cooperative attitude legislatures, legally realistically always expected. "turn attention" matters prompted first. specialized experience "will before" preliminary judgments F.Supp., 36. 46 interpreted allows encourages undertake task quantifying course adjudications. Although abstract practical, wise, tension controversy forums, hurried pressured decisionmaking, confusion require adjudication. Certainly, defer action. filed, enough along invitation effort. 1248; Hospital, 937. deny matched, figured balance. "policy Amendment," 937, strong respondents, excepted us, suits,20 just discussed, proceedings.21 V Nothing today understood slightest proposition expressed ante, 2385 (1983): "Because status, [Indian] insulated respects 'historic local control,' Jones, 411 145, 152, 93 1267, 1272, 114 (1973), retain aspect sovereignty 'inconsistent overriding National Government.' Confederated [447 134, 153, 2069, 2081, (1980) Nor proposition, them." 1246. 936-937. unique type statute, guided propositions. 49 emphasize, changes judged. solemn follow alleged abridge expect receive, review particularized exacting scrutiny commensurate powerful feguarding encroachment. 50 opinion.22 51 So ordered. MARSHALL, dissenting. 52 (1976), narrow governing controversies involving "[o]nly clearest justifications," 1247, warrant proceeding. Substantially reasons forth STEVENS' opinion, I believe Unlike behalf. thus implicate embodied 1362, affording Since reflects recognition "great hesitancy courts," S.Rep. 1507, 89th Cong., 2d Sess. (1966), sued lightly remitted "exceptional" situations justifying abstention. 818, 53 whom BLACKMUN joins, 54 "Nothing read limiting courts." 821, 2, (1976) (Stewart, J., dissenting). waiver, command.1 permits defendant adjudications; purport diminish litigate totally silent tribes' anywhere. Yet somehow concludes commands involved. customary examining relevant statute,2 search vain textual support Court's today. 55 "Most land arid. overstatement put desirable area Nation. impossible Reservation Executive unaware desert kind—hot, scorching sands—and life animals hunted crops raised." California, 373 546, 598-599, 83 1468, 1496-1497, 542 (1963) repeatedly Government, Reservation, "intended fairly reserving valueless." 600, 1497. Winters 207 564, 207, 340 (1908); Powers, 305 527, 532, 59 344, 346, 330 (1939); 600-601, 1497-1498, (1963); Cappaert 128, 138-139, 2062, 2069-2070, 523 doctrine, unquestionably federal, state, 571; 813, 1244. Its applied allocate competing claimants. state-law prior appropriation, actual beneficial forfeited used. Vested later created, superior subsequent appropriations Not resolved, past infrequently adjudicated.3 elaborating clarifying future performed whenever possible. 57 fragment wholly dissimilar depend total source quantity conduct takes Subsequently incorporate claims—like formally inclusive, source. Stewart wrote dissent "Whether 'piecemeal.' Essentially followed instance." 824, 1250. justify virtual abandonment relies heavily District, discovered affirmative abdication Amendment.4 continue intended, acquiesce extension reasoning. did, indeed, foreshadow tribe's attempt acknowledges "not answered," "specifically reserved," Ante, 565. treatment justified. citizens antagonistic toward former potentially provide direct indirect benefits residents.5 historically enjoyed relationship government, reflecting treaty-based protection, economic problems. Recently reaffirmed " 'the distinctive incumbent upon dealings dependent sometimes exploited people.' Mitchell, --- 2961, 2972, McClanahan Tax Comm'n, 164, 168-175, 1257, 1260-1264, 129 (1973); Rice Olson, 324 786, 789, 989, 991, 89 1367 (1945).6 60 embodies promise able invoke law.7 thereby assured neutral forum—a guarantee importance underestimated.8 Senate report 61 courts. reluctance founded fear situated. Additionally, deciding treaties interpreting body years." (1966). 62 Section protect interests, safeguard undeniable claims.9 63 silence tribal holds "wise administration" relegated me wrenched completely ordinary meaning. illustrates consequences initial appellate entered highest concluded. promises "any safeguarding encroachment." 571. errs treaty, ultimately finds error, massive readjustment. presumably mammoth, conglomerate comes end—the solid foundation never examine. 64 logical propositions, 569. possibilities arise, candidly admits, pessimistic assessment likelihood "cooperative attitude." words, engage rush give provide. expected adhere orderly processes hostility accorded important. my view, timely manner duty allow today, complaints shortly institution proceedings; stage. grant leave complaints, seek eliminate claims; proceed 66 Today, tenuous perceived Congressional intent articulated carves obligation" not—and cannot—claim faithfully After all, months ago Memorial "we emphasize court; rather, ascertain exist 'exceptional' circumstances, 'clearest justifications,' suffice surrender rare weigh federal-law major weighing surrender." 942, 765. 68 Today "major consideration" peppercorn scales, outweighed phantom command Instead trying reconcile says, "But propositions." 69 submit Part unique." Accordingly, respectfully dissent. Together (see Rule 19.4), al., certiorari part: "(a) Consent hereby join source, administration owner appropriation purchase, exchange, plead laws inapplicable amenable sovereignty, judgments, orders decrees obtain thereof, individual like circumstances. (1908). filing complaint, extensive involvement 300-mile distance Denver tribunal, willingness participate period established year, extension, beyond June 30, 85-2-212(2) (1981). exempt deadline negotiated Reserved Compact Commission. Ch. 268, 1981 393, 85-2-217 1982, pp. extended 140-141. apparently protective filings 32. Two own, five negotiating Commission, C. Wright, (4th ed. 1983). abeyance, process. certified interlocutory appeal 1292(b). 933, (1983) (upholding appealability 1291). Jicarilla 601 1116 (CA 1979), Tenth Circuit (whose case) upheld court's Tribe. primary 1345. wherein arises laws, 1966 $10,000 amount-in-controversy requirement included 1331, used suffered unable unwilling passage reflected relegating heard 2-3 (1966); H.Rep. 2040, U.S.Code Cong. & Admin.News 1966, 3145. Just away 806-809, 1240-1242, think reach 1362. explained provisions "only qualif[y] import [Public and] [do] limit Amendment." 20. 1894, 3, 108 (Utah); 1906, 270 (Oklahoma); 1910, §§ 558-559, 569 (New Arizona); 7, 1958, 339, Pub.L. 86-70, 2(a), 141 (Alaska). Idaho Wyoming, 1890 inserted constitutions. Const., 21, 19; Wyoming sources cited. alone agrees pose obstacle 11-15. construe Acts, occasion (assuming relevance place) permission partial repeal Acts. discussion facts, 553-558, express what apply fortiori addition, system, avoid "piecemeal policy. Respondent 25-29. Given, retaining separately results infra, 567, ambitious text. going literally "piecemeal." is, duplicative, "recogniz[ing] [conducting proceedings]," "generat[e] litigation" "inconsistent property," permeated entirely tangential conceivable interest, 927. argument, suffers flaw (as quite ) Indians. intervene interests. refuse representing value dubious best. O.T.1970, 87, ("excluding produce 'undesirable, impractical chaotic situation' envisioned"); O.T.1975, 74-940, (federal involves law); 35-36 prejudice"); 43-44 proceedings); (separate integrated); 53-54 (construing ignore "unique status property"). infra. challenges, yet addressed adequacy challenges open remand. below should, arises, pleadings preserve lacks inadequate. 943 (reserving issue). event, as, all. Blackfeet 1983, suspend rejecting Browning, preclude Solicitor General attorney purporting denied. personam Treating papers whereon 1983 submitted brief amicus curiae, treating accompanying granted. 549, (quoting text). Bankamerica Corp. 2266, 2270-2271, Morrison-Knudsen Director, Office Workers' Compensation Programs, 2045, 2049-2050, 76 194 Griffin Oceanic Contractors, Inc., 3245, 973 Bread Political Action Committee Election 455 577, 580-581, 1235, 1237-1238, 71 432 Consumer Product Safety Comm'n GTE Sylvania, 447 102, 2051, 2056, 766 (1980). Note, Rights: Our Discontent, 88 Yale L.J. 1689, 1690-1701 lip balancing gives decisive weight factor: purportedly 552, applicability sentence. 570. worth noting, leaves occasionally Comptroller Reservations: Growing Controversy Need Resolution (Nov. 1978) ("Indian present pressing reservations, consumptive demands, quantities satisfy purposes.") national forests, parks, uses residents, lumbering operations, grazing, recreational watershed tourist revenues. Under Amendment: Better Than One, Georgetown 1023, 1053-1054 solicitous expanded governmental affairs. 1953, year passed, "Indian country," matters, 588, U.S.C 1322(b); 1360(b). proviso P.L. 1243-1244, But, casts doubt preferred provides: band duly Secretary Enacted "a force" "[s]tate 567,566. officials responsible consistently appropriateness H.R.Rep. (1966) (describing position Interior Department); Policies Future, Final Report President 478-479 (1973). American Policy Review Task Force Four, Federal, Tribal Jurisdiction 176 (Committee Print 1976); 333-334 1977). correctly observes "as law," 571, judges, tend elected hence conscious prevailing views majority. impact development West, stimulate public concern. supra 5, 1052-1053. "Currently, Attorney amount, conferred him insufficient guardian conflict, decline proposed defects making redress using attorneys." ourts themselves

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