Document: 461 U.S. 273 103 S.Ct. 1811 75 L.Ed.2d 840 John R. BLOCK, Secretary of Agriculture, et al., Petitioners,v.NORTH DAKOTA, ex rel. BOARD OF UNIVERSITY AND SCHOOL LANDS. NORTH LANDS, Petitioner, v. al. Nos. 81-2337, 82-132. Argued Feb. 23, 1983. Decided May 2, Syllabus North Dakota filed suit in Federal District Court against several federal officials to resolve a dispute as ownership certain portions riverbed within the State. The United States claims title most disputed area on basis its status riparian landowner non-navigable river, while State asserts that river was navigable when admitted Union 1899 and thus it owns under equal-footing doctrine. In addition seeking injunctive, declaratory, mandamus relief various statutes, asserted claim Quiet Title Act 1972 (QTA), by which States, subject exceptions, has waived sovereign immunity permitted plaintiffs name party defendant civil actions adjudicate disputes involving real property. After trial, court entered judgment for State, holding QTA's 12-year statute limitations, 28 U.S.C. § 2409a(f), does not apply where plaintiff is Appeals affirmed. Held: 1. legislative history establishes Congress intended QTA provide exclusive means adverse claimants can challenge States' Thus there no merit Dakota's contention even if time-barred below still correct because maintainable an "officer's suit" injunctive or charged with supervision area. rule precisely drawn, detailed pre-empts more general remedies applicable here. Cf. Brown GSA, 425 820, 96 1961, 48 402. Pp. 280-286. 2. limitations provision 2409a(f) fully all others who sue QTA. When attaches conditions, such legislation waiving immunity, those conditions must be strictly observed, exceptions thereto are lightly implied. Section expressly states any action unless 12 years after date accrued. Even assuming canon statutory construction normally exempt from operation generally worded absence express contrary intent relevance construing applicability congressionally imposed including here shows did intend compliance 2409a(f). 286-290. 3. Nor invalid doctrine Tenth Amendment, asserts. A law depriving land vested Constitution would grounds, but constitute taking State's property without just compensation, violation Fifth Amendment. however, purport strip anyone effectuate transfer title. dismissal pursuant quiet States; remains unresolved. constitutional infirmity 291-292. 4. If barred courts had jurisdiction inquire into merits. Since lower made findings accrued purposes statute, cases remanded further proceedings. 292-293. 671 F.2d 271 (8th Cir. 1982), reversed remanded. Louis F. Claiborne, Washington, D.C., petitioners. Robert O. Wefald, Bismarck, N.D., respondents. Justice WHITE delivered opinion Court. 1 Under (QTA),1 interest. These present two separate issues concerning first whether procedure claimant judicially second twelve-year instances respondent Dakota. We conclude forecloses other bases urged 2 * It undisputed equal footing set forth Pollard's Lessee Hagan, 3 How. 212, 11 L.Ed. 565 (1845), Dakota, like became owner beds streams upon admission Union. also agreed center bed stream. See N.D.Cent.Code 47-01-15; Amoco Oil Co. Highway Department, 262 N.W.2d 726, 728 (N.D.1978). Because differing views navigability, assert competing Little Missouri River contends now never been navigable, based landowner.2 hand, October 1, 1889, attained statehood, therefore date. at least 1955, issuing oil gas leases private entities. Seeking this riverbed, officials.3 complaint requested directing defendants "cease desist develop[ing] otherwise exercising privileges Dakota," sought declaratory "[d]eclaring purpose determining bed." App. 9. As jurisdictional suit, invoked 1331 (federal question); 1361 (mandamus); §§ 2201-2202 (declaratory relief) 5 701-706 (the judicial review provisions Administrative Procedure Act, 551 seq.). 6. original mention However, required amend recite thereunder. Pet. Cert. 14a-16a. complied amended complaint. 13-16.4 4 matter thereafter proceeded trial. introduced evidence support statehood.5 defendants, denying presented point;6 their limited showing, purposes, notice than twelve prior commencement suit. rendered concluded 1889 statehood Submerged Lands 42 1311(a). 506 F.Supp. 619, 622-624 (D.N.D.1981). Then, applying what deemed accepted statutes do sovereigns intention clearly evident language otherwise, rejected defendants' F.Supp., 625-626.7 accordingly quieting river. 29a-30a.8 affirmed respects. (CA8 1982). 6 petition certiorari, we granted, --- ----, 48, 74 55 (1982), challenged only Appeals' conclusion inapplicable States. conditional cross-petition, No. 82-132, asserting remedy officers wholly aside This submission, find necessary address, ground affirming favor. New York Telephone Co., 434 159, 166, n. 8, 98 364, 369, 54 376 (1977); Dayton Board Education Brinkman, 433 406, 419, 97 2766, 2775, 53 851 (1977). grant heretofore remained pending, address question it. II 7 Union, entities, suing waiver Congress. California Arizona, 440 59, 61-62, 99 919, 921-922, 59 144 (1979); Minnesota 305 382, 387, 292, 294, 83 235 (1939); Kansas 204 331, 342, 27 388, 391, 51 510 (1907). Only passage waive respect suits land. Prior 1972, claimed obtaining resolution dispute—they could attempt induce file them, they Executive discretionary relief. Also, since Tucker 1887, willing settle monetary damages rather Claims make out compensation. 1491; Malone Bowdoin, 369 643, 647 82 980, 983 8 168 (1962). Enterprising pressed so-called another possible Government. typical officer's dispute, proceed area, ejectment or, here, injunction writ forbidding interfering claimant's rights. 9 device circumventing disputes, ultimately prove successful. appeared accept early cases. Lee, 106 196, 240, 171 (1882); Meigs M'Clung's Lessee, Cranch 11, 639 (1815). Later cases, were inconsistent; some held not, "it fair say reconcile completely decisions field . Procrustean task." supra, U.S., 646, S.Ct., 983. Compare, e.g., cited id., 6, 983, 7, 7. 10 Malone, cut through tangle previous applied announced Larson Domestic & Foreign Corp., 337 682, 69 1457, 93 1628 (1949): "the officer affecting specific individual 'not powers powers, exercise particular case, constitutionally void.' " 647, (quoting Larson, 702, 1467). Larson-Malone test plainly difficult employ vehicle resolving Thus, decade having over met little success courts.9 13 Against background, considered passed 1972. At hearing bill, officer's-suit possibility called attention Congress.10 predominant view, citizens right possession lands "without benefit recourse courts," immunity.11 14 rectify state affairs. version S. 216, bill QTA, short simple. Its substantive provided qualifications whatsoever. stated entirety: "The may named brought person States." 117 Cong.Rec. 46380 (1971). Branch opposed 216 proposed, stead, more-elaborate reprinted S.Rep. 92-575, pp. 7-8 (1971), providing "appropriate safeguards protection public interest."12 15 proposal, important First, excluded Indian scope waiver. branch felt consistent "specific commitments" Indians treaties agreements.13 Second, order insure "serve disrupt costly ongoing programs involve lands," proposal allowed option paying money instead surrendering lost case merits.14 Third, Department have prospective effect only; is, enactment. so workload develop rate absorbed.15 Fourth, ensure stale opened up litigation,16 proposed included six-year limitations.17 16 Senate Department's notable exception given only. Senate-passed contained "grandfather clause" old law.18 17 Primarily grandfather clause, bill. argued clause cause "a flood litigation claims, many already submitted rejected," thereby putting "an undue burden courts."19 compromise, give insistence "prospective only" increase years, exchange elimination clause.20 making retroactive period. House compromise it, acquiesced intact. 18 light history, need detained long avoid restrictions position correct, carefully-crafted national interest averted. "It require suspension disbelief ascribe design allow careful thorough remedial scheme circumvented artful pleading." 833, 1968, 402 (1976). 19 try Government's theory, nugatory. dispossessed being afforded damages, thwarting congressional disruptions activities. Finally, relevantly one point insistent, avoided, and, wish Congress, unlimited number might instituted. 20 instructive 717 Civil Rights 1964, 2000e-16, employment discrimination. There, "problematic" available Act; prevailing view none. 826-828, 1964-1965. "balance, completeness, structural integrity" belied "was designed merely supplement relief." Id., 832, 1967. preempts remedies. 834, 1968.21 That equally context. 21 Accordingly, reach whether, maintained circumstances.22 hold property.23 III 22 cannot agree Appeals, issue purely interpretation, either plain history. 23 basic sued consent corollary See, Lehman Nakshian, 453 156, 160-161, 101 2698, 2701-2702, 548 (1981); Kubrick, 444 111, 117-118, 100 352, 356-357, 62 259 Honda Clark, 386 484, 501, 87 1188, 1197, 244 (1967); Soriano 352 270, 77 269, 306 (1957); Sherwood, 312 584, 591, 61 767, 772, 85 1058 (1941). contains constitutes condition immunity. although should construe time-bar unduly restrictively, interpret manner "extend beyond intended." 356-357 (citing supra; Towing 350 61, 76 122, (1955)). before finding satisfying insist clear indication intention. 24 Proceeding accordance these well-established principles, observe makes suggesting attached waiver.24 facts alone, our approach appear compel entitled exemption strictures 25 relies well-known "[s]tatutes embrace state, she designated, necessarily nature mischiefs remedied." Weber Harbor Commissioners, Wall. 57, 70, 798 (1873). Accord, Guaranty Trust 304 126, 132-133, 58 785, 788-789, 1224 (1938). include urges, held, statute. While recognizing waivers carefully construed, precedence absent inclusion. F.2d, 275-276. 26 agree. fashioning sovereign-immunity legislation, certainly free But assertion regarded contrary. sanctioned rule. Quite contrary, Louisiana, 127 182, 1047, 32 66 (1888), And 388-389, 295-296, court, hesitation dismissed lack jurisdiction, though federal-court neither nor suggested presumed placed waivers; Constitution, supreme, holdings surprising.25 discount importance relied Appeals. judicially-created generally-worded retained vigor serves policy preserving rights, revenues, injury loss, negligence officers. York, 132, 788. interests affording them failing comply limitations. assuming, congressionally-imposed will apparent follow outlined Part above shows, interests. general, affects congressionally-recognized same degree entity. Therefore, judge-created protect yield face determined requires convinced exempting section "necessarily Wall., L.Ed., 798. adhere requirements IV 29 finally argues that, valid relating kinds land, unconstitutional Amendment insofar purports bar unable 30 probably stating payment pass Constitution. Such run afoul Amendment.26 else matter, limits time filed; but, unlike provision, tract he retains his unresolved.27 Nothing prevents continuing title, hope inducing own put rest merits.28 31 see become can. Regents Tomanio, 446 478, 1790, 64 (1980); (1957). otherwise. V Admittedly, comes us appealing case. Both obtained statehood. asked correctness submit determinations QTA.29 submission. Whatever merits be, correct: 33 foregoing, reversed. proceed, all, accrued, proceedings opinion. 34 So ordered. 35 O'CONNOR, dissenting. 36 I sole Act. Having suits, though, reject usual limitation sovereign, especially appropriate context Consequently, dissent. 37 confront resolves invocation principle construed. ante, 287.1 38 Although indeed true construes strictly, aid task intent. close help choose between plausible constructions. cannot, authority narrow intended. 118, 357, 69, (1955). mere observation waives then, questions construction. consider indicia Considering evidence, Court's prevent trust public. 39 common "nullum tempus occurrit regi"—neither laches sovereign. W. Holdsworth, History English Law 354 (1938); D. Gibbons, Treatise Limitation Prescription (1835). country law. (1873); Kirkpatrick, Wheat. 720, 735, 199 (1824); Iverson Robinson Dubose, Ala. 418, 422 (1855); Stoughton Baker, Mass. 522, 528 (1803); J. May, Angell Limitations 29-30 (5th ed. 1869). "So complete acceptance implied domestic 'sovereign,' national, universally local government, excluded." 133, 789, country, adopted rule, theory "impeccable" guilty laches, policies served rights loss attributable agents, whom act, justified special 40 apex widespread varied, hinder vigilance protecting parties. Yet lose constraints 41 "If sanctioned, intruders maintain possessions until shall run, invested persons claiming way domain soon appropriated adventurers. Indeed, utterly impracticable, use every power result. necessary, therefore, show wisdom propriety operates government. Lindsey Miller, 666, 673, 538 (1832). 788; 68, 798; Knight, 301, 314, 465 (1840); 29.2 43 controversy 6a; Plainsmen Water Conservation Commission, 247 457 (N.D.1976). implicates core underlying doctrine, extremely reluctant 44 Court, dismisses apparently sovereigns. cites proposition weak best. (1887), involved lands. More important, parties application Brief Appellant, Appellee O.T. 1388. decision serve rejecting when, situation raised. (1939), court. Construing narrowly, permits forum chooses, reflects nothing reluctance broadly countervailing considerations. 45 precedents conflicts On suggest invoke Rhode Island Massachusetts, 233, 721 (1841), declined ordinary Chief Taney "[I]t impossible semblance justice adopt us. For political communities concerned, act promptness individuals. ." 273, 721. particular, stake, recognized prerogatives governmental units bars defenses Orleans 662, 573 (1836).3 disagree 46 Turning circumstances enactment indicate know aware affect imposing Wilson Omaha Tribe, 442 653, 667, 2529, 2537, 153 (1979). incident spurred landowners Hearings S.216 Subcommittee Public Committee Interior Insular Affairs, 92d Cong., 1st Sess. 83-85 (1971) (affidavit A.L. Robinson). statements hearings reflect focus (statement Shiro Kashiwa) (referring "private citizens); 55, T.E. McKnight) (observing landowners" Government). (recognizing inequity citizen" explaining enable "citizen" day court). Report explained "persons" amount sue. H.R.Rep. 92-1559, 2d (1972). 47 conform Act—enacted mind—to (1979), Arizona both indispensable Const., Art. III, conferred 1251(a)(1). district courts. 1346(f). spite placing courts, divest jurisdiction. able actions, procedural drafted citizen mind slavish literalness States.4 ignore waters achieve sovereignty. Montana 450 544, 551, 1245, 1251, 67 493 (1845). critical holds capacity citizens.5 1301 seq., Stat. 29.6 Until today, too shown sensitivity lands, strongest presumption convey preserve 552, 1251 (1981). Given solicitude becomes believe deny dominion silently extinguishing affirm below. Oct. 25, Pub.L. 92-562, 86 1176, codified 2409a, 1346(f), 1402(d). relevant states: (a) interest, security water restricted sections 1346, 1347, 1491, 2410 7424, 7425, 7426 Internal Revenue Code 1954, (26 7426), 208 July 10, 1952 (43 666). (b) disturbed control pending final decree, appeal therefrom, sixty days; determination nevertheless retain part thereof elect, election determine compensation control. (c) particularity right, property, acquired, (d) disclaims therein actual disclaimer confirmed cease independent 1346(f) (e) tried jury. (f) Any commenced predecessor knew known (g) construed permit possession. parts areas, founded reasons landowner. Tr. 38-48. Interior, Director Bureau Land Management, Forest Service. alleged "final authority" agencies "presently unlawfully Dakota." defendant, appears proper 2409a(a). Solicitor General objection point. Petitioners 31, 20. consisted documentary canoe travel effort float logs down shortly present-day recreational traffic, small craft usage years. took navigability actually supported non-navigable. To conclusion, stated, albeit elaboration, showed "to exclusively persons, corporations." 625 commented indicated 626. acquired possession, event, laches. contentions, 624-626, pursue further. Three Affiliated Tribes Fort Berthold Reservation left unaffected judgment. 622. County Bonner Anderson, 439 764 (CA9 1971); Simons Vinson, 394 732 (CA5), cert. denied, 393 968, 89 398, 379 (1968); Gardner Harris, 391 885 (CA5 1968); Switzerland Udall, 56 (CA4 1964), 380 914, 900, 800 (1965). One narrowly. Armstrong 435 38, 1970); Andros Rupp, 73-74 1970) (holding record land). Hearing Subcomm. Comm. Affairs 579, 721, 92nd Sess., p. Prof. Steadman); 81 (letter L. Gendron, Esq.). (1972), U.S.Code Cong. Admin.News, 4547; Attorney General); Hearing, supra note (Sen. Church); (M. Melich, Solicitor, Dept. Interior); Sen. Hansen); (T. McKnight); Reynolds); T. Cavanaugh). (S. Kashiwa, Assistant id. (J. McGuire, Agriculture). Interior). Ibid. 3, (views Agriculture); 5-6 General). 92-1558, (1972) Deputy other, relatively minor example, All changes legislation. begun "within six accrues effective whichever later." (emphasis added). 7-8. objected period begin knowledge claim. contended claim, ibid., change. Great American Fed. Assn. Novotny, 366, 375-377, 2345, 2350-2351, 60 957 Preiser Rodriguez, 411 475, 488-490, 1827, 1835-1836, (1973); Demko, 385 149, 151-152, 383-384, 258 (1966); 1A C. Sands, Statutes Statutory Construction 23.16 (4th 1972). preempted alternative created new supplemental four later 702 94-574, 90 2721 seeks specifically confers "authority grants impliedly forbids sought." "other statute," because, untimely "forbids relief" 702. H.Rep. 94-1656, (1976) (§ provides "when dealt [has] specified remedy"). foreclose totally 'allow reasonable take existing causes action.' Texaco, Inc. Short, 454 516, 527, 21, 102 781, 791, 70 738 (1982) Iseminger, 185 62-63, 573, 575-576, 804 (1902)). longer (and points), arguably extent extinguished passage. Herrick Boquillas Cattle 200 96, 102, 192, 195, 50 388 (1906); Sohn Waterson, 596, 599, 737 raised issue, successfully, bring 1978. However "reasonable time" Hence, solely virtue failure requisite time." Recognizing supports position, silence. 271, 274-275 notes references committee report, 92-1558 "persons," "citizens," "individual citizens," "states." report refers "plaintiff[s]," "owners adjacent property," "land owner[s]," "claimants" terms easily encompass 92-575 (using similar terms). Contrary O'CONNOR's contention, post, 297, "recognized novel proposition, dissent (1836). fact, apposite, view. municipal corporation. National Government contended, inter alia, official regarding "some induced corporation, afford[ed] strong question, corporation." Pet., 573. found constituted "admission" city city's acts, unexplained, "strengthen[ed] argument city." regard prejudicing primarily authorities acted ignorance due foreign habits, familiarity principles jurisprudence. 735-736, assumed power, acts based, suggests, "estoppel sovereign." can, course, eminent Oklahoma Phillips Guy Atkinson 313 508, 534, 1050, 1063, 1487 Carmack, 329 230, 236-242, 252, 254-257, 91 209 (1946). discussion answers 1953, 1311, beneath boundaries. belongs regardless Whether, ever acquire good would, law, General) ("The course decide covered law."). instances, presumably eventually so, Here, taken stress courts' navigable. They seek inappropriate factual issue. Oral Arg. 10. Sup.Ct. Rule 17. reliance surprising, declines action. Ante, 285-286. far fact then predicate believe, 281-282, action, my strict inform, control, inquiry running weaker When, instance, proprietary capacity, 277, Comm'rs, (1873) ("Where simply sale disposition, public, reason requiring her .") (dictum). (1836), estopped time, estoppel see, Filor 45, 49, 549 (1869), estop city, largely sovereign's conveyed. dissipated, Note, Equitable Estoppel: Does Governmental Immunity Mean Never Say You're Sorry? St. John's L.Rev. 114 K. Davis, Seventies 17.01 (1976), contradicts majority controversies rely attributes. (1979) (rule particularly "where imposes distinguished conferring advantage."). Oregon, 295 14, 610, 615, 79 1267 (1935) ("Dominion soil identified government separation sovereignty indulged, itself. reason, passes sovereignty, paramount navigation interstate commerce.") 3(a) 1311(a), provided: declared (1) boundaries respective natural resources waters, (2) manage, administer, lease, develop, said are, hereof, recognized, confirmed, established, in, assigned

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