Document: 444 U.S. 380 100 S.Ct. 616 62 L.Ed.2d 564 State of IDAHO ex rel. John V. EVANS, Governor; David H. Leroy, Attorney General; Joseph C. Greenley, Director, Department Fish and Game, Plaintiffs,v.States OREGON AND WASHINGTON. No. 67, Orig. Argued Nov. 26, 1979. Decided Jan. 21, 1980. Syllabus Held : Failure to join the United States as a party Idaho's action against Oregon Washington secure equitable apportionment various runs anadromous fish migrating between spawning grounds in Idaho Pacific Ocean, will not prevent this Court from entering an adequate judgment. Pp. 387-393. (a) None federal interests cited by Special Master rendering impossible judgment absence party—the Government's control over ocean fishery on at issue, its management dams that separate role trustee for Indian tribes with treaty rights issue—constitutes sufficient reason dismissing failure recommends. Arizona v. California, 298 558, 56 848, 80 L.Ed. 1331, Texas New Mexico, 352 991, 77 552, 1 540, distinguished. 387-391. (b) Washington's additional argument favor complaint any allocation nontreaty would abrogate agreement managing originating Columbia River System, is without merit, since such only divides available fishermen does purport allocate share among States. 391-392. (c) further assertion some time few if have been taken issue hence restrictions fishing zones open commercial no appreciable effect upon number arriving Idaho, goes merits claim has little or nothing do need party. P. 392. Exceptions Master's report sustained, case remanded. Atty. Gen., Boise, plaintiffs. 2 James A. Redden, Salem, Or., respondent, oregon. 3 Slade Gorton, Olympia, Wash., Washington. 4 Louis F. Claiborne, Asst. Sol. Washington, D. C., States, amicus curiae, special leave Court. 5 Mr. Justice REHNQUIST delivered opinion 6 Invoking Court's original jurisdiction, brought suit Ocean. We granted file complaint, but left questions whether stated which relief may be was indispensable action. 429 163, 97 544, 50 371 (1976). later referred Master. 431 952, 2671, 53 268 (1977). On February 2, 1979, recommended dismissed dismissal prejudice right refile date it wholly unable obtain remedy through negotiation filed exceptions recommendation. 7 * The Snake rises northwest Wyoming flows across southern eventually turning northward forming boundary approximately 165 miles 30 miles. It then turns westward enters whence proceeds confluence River. British southward eastern Just below westward, until empties into Ocean 270 downstream. 8 Numerous species spawn gravel bars Columbia/Snake System. After remaining their hatch area two years, these migrate downstream where they spend anywhere one four years. Near end life cycle return upstream toward waters origin spawn. At present are three particular fish: spring chinook salmon, summer steelhead trout. To significant extent, originate in, to, within Idaho. 9 A manmade conditions combined natural obstacles deplete seriously successfully. During both migrations, must cross series eight built maintained Army Corps Engineers. Bonneville Dam, 1938, lies closest mouth crossing Dam way also encounter Dalles Day McNary Ice Harbor Lower Monumental Little Goose and, finally, Granite Dam. migration, course, reverse order. 10 each dams, portion water released turbines used generate hydroelectric power. Water passing conducive either "smolts" mature upstream. Each dam therefore equipped spillway, smolts can pass, "fish ladder," up climb. Because sent spillways ladders power, because river vary time, Engineers1 often faced choice generating power facilitating migration. Even under optimal conditions, when ladders, those mechanisms themselves cause mortalities fish. 11 In addition confronting hurdles, afford catch sport fishermen. Federal Government regulates zone stretching seaward 200 seacoast. See Fishery Conservation Management Act 1976, 16 U.S.C. § 1801 et seq. Within 3-mile limit throughout in-river however, subject state regulation. 12 1918, consent Congress, entered Oregon-Washington Compact, ch. 47, 40 Stat. 515. Compact attempts assure uniformity regulation preventing altering regulations other State. Pursuant divided six zones, Zones Zone attempted occasions become efforts thus far unsuccessful. 13 1968, who fished along protect allegedly them treaties Sohappy Smith, 302 F.Supp. 899 (D.C.Or.1969). District concluded obligated structure so Indians "an opportunity usual accustomed places equal users locations preferred state." Id., 910. remained pending Court, 1974, moved intervene defendant. Eventually, determined question gave 50% Appeals Ninth Circuit affirmed determination. 529 F.2d 570 14 25, 1977, parties litigation 5-year fisheries stocks System above Under agreement, all 6, extends 130 restricted use pursuant rights. "technical advisory committee" estimates "destined pass [the] Dam." An agreed-upon "escapement" subtracted total run size; allocated Thus, here, plan sets escapement goal 120,000 6.2 Where size exceeds less than 30,000 fish, take salmon before side 6. more 60% excess while 40%. Other regulated similarly, predetermined remainder being fishermen.3 15 suit, alleges disproportionate destined thereby depleting detriment fishermen.4 seeks Significantly, contend Indians' should reduced, rather now exclusively presents justiciable controversy, indicated he found merit entitled apportionment. Nevertheless, Government, invoked sovereign immunity steadfastly refused party.5 deciding litigation, looked guidance Rule 19(b) Rules Civil Procedure, lists factors considered proceed necessary These (1) extent rendered party's might prejudicial already parties; (2) court could lessen avoid shaping relief; (3) court's ability render absence; (4) adequacy remedies plaintiff dismissed. 17 (1), (2), weighed allowing prosecute suit. bound absence, seeking whom acts trustee, absent prejudiced sought Furthermore, felt offered practical avenue relief. had consistently rebuffed otherwise negotiate sort accommodation. Nor did appear assert interest. Given pendency quite probably reject motion untimely. Moreover, attempt interest adverse convert dispute jurisdiction. 18 Although heavily proceed, held were intertwined possibly particular, fishery, Rivers, here. Balancing factor factors, suggestion reinstitute suggesting disposition, implied remain intractable. II 19 asked us his conclusion we consider separately joinder Government. 20 First, noted controls here during lifespan outside understand defendants rely evidence necessity joining litigation. While returning River,6 proper once river. 21 Second, operating hatching He pointed out that, dam, Engineers turbines, spillways. varying requires generation survival authority bind whatever case, ensure allowed first five ever reach 22 find consideration persuasive assume, suggested defendants, Rivers primary why successfully back stresses quarrel operation dams. argues, persuasively believe, greater numbers reaching will, most result dam. mortality rate given set be, been, estimated account formulas. example, states "[u]nder average flow generally provide 150,000 37,500 If taking fair Idaho-bound aside estimable 23 Third, Although, above, adversely affect Indians, complete unless guarantee 24 As mathematical proposition, involve all. Any categories: catch, escapement. practices, memorialized conduct operations almost entirely 5. allow continue upriver. order According Master, get 25 pessimism. limited fixed Absent contrary, cannot assume violate them. ignore violation. undoubtedly compete certain own enforce ceiling Finally, fail, able sole purpose enforcing limitations fishing. agree judgment.7 26 This different earlier cases prosecution our 1331 (1936), involving division theretofore unapportioned Colorado River, exercised impound disposition. id., 570, S.Ct., 854. Here, contrast, made harvest except acted 540 (1957), another flowing interstate river, adopted finding Indians. decree "necessarily affect[ed] immediately States" fiduciary capacity. Report O. T. 1956, Orig., p. 41. specifically possibility manager Cf. Candelaria, 271 432, 438, 443, 46 561, 562, 563, 70 1023 (1926). 27 Moving beyond advanced arguments complaint. asserted oral founded assumption abrogation agreement. Tr. Oral Arg. 46-47. escapement, survive presently seek reopen negotiations meet success face extant 28 argues past several trout assertion, narrow two-edged sword. sidestepped caught shoulder burden proving unfairly affected trial well demonstrate target have, fact, Alternatively, man-made justifying Oregon, 297 517, 837 (1936) (water sink deep bed never Washington). Neither possibilities, persuades III 29 sustain recommending dismissed, remand proceedings inconsistent opinion. So ordered. 31 STEWART MARSHALL dissent. Agreeing report, overrule thereto Bureau Reclamation Energy Regulatory Commission exercise releases. 8. normal last separating grounds. For trout, goals, apportioned third "are precariously low warrant time. . ." fisheries. position despite repeated concession appears Memorandum Claiborne Solicitor General, reproduced Appendix C exceptions, C-5; 60. "based premise" Council, regulate catches "essentially de minimis portions" runs. warranted complexity apportioning retain continuing jurisdiction Rivers. rejected similar Nebraska Wyoming, 325 589, 616, 65 1332, 1350, 89 1815 (1945), water: "There undertake embark enterprise administrative functions province. But settlement failed. genuine controversy exists. difficulties drafting justification refuse perform important function entrusted Constitution."

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