Court Opinion

ID: 9430874
Source: CourtListenerOpinion
Date Created: 2023-08-02 23:30:46.704962+00
Date Added: 2024-06-11T17:15:57.599559
License: Public Domain

*372Justice Powell
delivered the opinion of the Court.
The question before us is whether a district court order granting permissive intervention but denying intervention as of right is immediately appealable.
b-H
This case is part of the ongoing litigation concerning the Stringfellow Acid Pits, an abandoned hazardous waste disposal site near Glen Avon, California. Petitioners are 28 individuals, companies, or entities who formerly owned or operated the Acid Pits, or who allegedly produced or transported the wastes that were dumped at the disposal site. In 1983 the United States and the State of California filed suit against petitioners, claiming that the Acid Pits created a substantial danger to the surrounding area. The Government plaintiffs sought injunctive relief that would require petitioners to abate the release of harmful substances from the site, and to take remedial steps to correct the unsafe conditions. Both the United States and California also requested reimbursement for the costs incurred in bringing about the cleanup.
Shortly after the complaint was filed, respondent Concerned Neighbors in Action (CNA), a nonprofit organization whose members live near the dumpsite, moved to intervene in the litigation. CNA claimed that it was entitled to intervene as a matter of right pursuant to Federal Rule of Civil Procedure 24(a), because it had a substantial interest in the suit that would not be represented adequately by the existing parties.1 CNA also asserted that the citizen suit provisions *373of various environmental statutes allowed intervention as of right in these circumstances.2 Alternatively, CNA claimed that it should be allowed to intervene by permission pursuant to Rule 24(b).
The District Court denied the request to intervene as of right, but granted CNA’s application to become a permissive intervenor. The court concluded, however, that CNA’s right to participate should be subject to three conditions. First, it held that CNA could not assert any claim for relief that had not already been requested by one of the original parties. The court found that “allowing applicants to assert their individualized damage and other claims would burden and expand an already complex litigation, and could jeopardize the possibility of settlement.” App. to Pet. for Cert. A-19. Second, CNA could not intervene in the Government plaintiffs’ claim for recovery of the clean-up costs. Finally, in an effort to “minimize any delay and confusion involved in discovery,” the District Court ruled that CNA could not file any motions or conduct its own discovery unless it first conferred with all the original parties, and then obtained permission to go forward from at least one of these litigants. Id., at A-20. The court emphasized, though, that CNA had the right to attend all depositions, to participate to the extent not duplicative of the original parties, and to receive copies of all discovery material produced by the other litigants.
*374CNA filed an immediate appeal, protesting both the denial of the application to intervene as of right and the restrictions imposed on permissive intervention. The Court of Appeals for the Ninth Circuit initially dismissed the appeal, finding that the District Court order was not a “final decision” within the meaning of 28 U. S. C. § 1291.3 The court’s decision was largely based on the fact that CNA had been made a party to the litigation and could protect its interests fully during an appeal from the final judgment. The Ninth Circuit also noted that its decision was consistent with the results reached by other Courts of Appeals in similar cases.4 The court subsequently withdrew its opinion, however, concluding that the holding was inconsistent with Ninth Circuit precedent. Relying on California v. Block, 690 F. 2d 753, 776 (1982), the court ruled that “[d]enial of intervention as of right is a final appealable order, despite the grant of permissive intervention.” App. to Pet. for Cert. A-26. The court ordered further briefing on the merits of the intervention application, and ultimately held that CNA must be allowed to intervene as of right. United States v. Stringfellow, 755 F. 2d 1383 (1985) (order). See also 783 F. 2d 821 (1986) (opinion).
We granted certiorari to resolve the conflict among the Courts of Appeals as to whether this type of pretrial order is subject to immediate appeal. 476 U. S. 1157. We now vacate and remand.
II
CNA acknowledges that the District Court order in this case is not “final” in the traditional sense. The decision con*375cerning CNA’s intervenor status clearly is not one that “ends the litigation on the merits and leaves nothing for the court to do but execute the judgment.” See Catlin v. United States, 324 U. S. 229, 233 (1945). Instead, CNA argues that the order falls within one of the narrow categories of decisions that we have deemed final for purposes of review, even though the entire dispute has not yet been resolved.
A
CNA’s primary argument is that the District Court ruling is covered by the “collateral order” exception to § 1291. This doctrine recognizes that a limited class of prejudgment orders is sufficiently important and sufficiently separate from the underlying dispute that immediate appeal should be available. Cohen v. Beneficial Industrial Loan Corp., 337 U. S. 541, 546 (1949). To qualify as a collateral order, a decision must: (i) “conclusively determine the disputed question”; (ii) “resolve an important issue completely separate from the merits of the action”; and (iii) “be effectively unreviewable on appeal from a final judgment.” Coopers & Lybrand v. Livesay, 437 U. S. 463, 468 (1978) (footnote omitted). See also Firestone Tire & Rubber Co. v. Risjord, 449 U. S. 368, 375 (1981).
Although a party seeking appeal must show that all three requirements are satisfied, we find it unnecessary to address each part of the test. We assume, arguendo, that the District Court order conclusively determined CNA’s right to intervene, and that the intervention issue is completely separate from the merits of the underlying action. We nevertheless find that the order is not “collateral” within the meaning of Coopers & Lybrand. We conclude that because CNA is now a party to the suit by virtue of its permissive intervention, it can obtain effective review of its claims on appeal from the final judgment.
An intervenor, whether by right or by permission, normally has the right to appeal an adverse final judgment by a *376trial court. See Fishgold v. Sullivan Drydock & Repair Corp., 328 U. S. 275, 280-283 (1946); Kartell v. Blue Shield of Massachusetts, Inc., 687 F. 2d 543 (CA1 1982). See also 3B J. Moore & J. Kennedy, Moore’s Federal Practice ¶24-15, pp. 24-169 — 24-170 (2d ed. 1985) (An intervenor may appeal from “all interlocutory and final orders that affect him . . . whether the right under which he intervened was originally absolute or discretionary”); 7C C. Wright, A. Miller, & M. Kane, Federal Practice and Procedure § 1923, p. 517 (2d ed. 1986). Thus if CNA still wishes to challenge the denial of intervention as of right, or if it believes that the restrictions imposed by the District Court prevented it from protecting its interests, it can raise these claims before the Court of Appeals after the trial. That court then can decide whether the order was erroneous, and if so, whether CNA’s inability to participate more fully in the proceedings may have affected the final judgment. We therefore cannot conclude that CNA’s interests will be “irretrievably lost in the absence of an immediate appeal.” See Richardson-Merrell Inc. v. Koller, 472 U. S. 424, 431 (1985).
CNA does not dispute that it has the right to pursue a post-trial appeal. But it argues that, given the realities of complex litigation, a dispute over the right to intervene must be resolved before trial if it is to have any practical significance. CNA argues that once the district court enters a remedial order in a case such as this, involving numerous parties and years of litigation, an appellate court will be reluctant to vacate the judgment because of an erroneous intervention order. CNA suggests that the incentives to affirm the trial court’s decision will be so strong at that point that the “right” to appeal will be academic at best, and thus CNA’s ability to press for the strongest possible clean-up order will indeed be “irretrievably lost.”
This contention may be true to some degree, but it is largely beside the point. Although it may be difficult for CNA to show that the harm from the intervention order is *377sufficiently great to overturn the final judgment, this has little bearing on whether CNA has the right to an interlocutory appeal under the collateral order doctrine. The difficulties of which CNA complains are the same as those faced by any party who is subject to an adverse pretrial order. A party who has had one of several claims dismissed before trial, for example, may similarly believe that the chances of overturning the judgment on this ground are small, even if the dismissal turns out to be erroneous. Yet unless the district court specifically holds otherwise, challenges to this type of order can be raised only after judgment. See Fed. Rule Civ. Proc. 54(b). See also 10 Wright, Miller, & Kane, supra, §2653, at 25-26, 31. CNA presents no compelling reason why the intervention order in this case should be treated differently. As a permissive intervenor, CNA will have the same rights of appeal from a final judgment as all other parties; we decline to extend the collateral order doctrine to provide more.
B
CNA also argues that because the District Court placed such onerous limitations on its right to participate in the case, the order should be construed as a complete denial of the right to intervene. CNA correctly notes that when an order prevents a putative intervenor from becoming a party in any respect, the order is subject to immediate review. Railroad Trainmen v. Baltimore & Ohio R. Co., 331 U. S. 519, 524-525 (1947). Even though CNA is now a party to the action, it maintains that the restrictions on discovery and the right to request additional relief so severely undermine its ability to influence the litigation that the order is not different in effect from one denying all participation. Indeed, CNA argues that unless it can challenge these restrictions immediately, it will be in a worse position than if the District Court had rejected its intervention application in full: CNA will be unable to participate effectively, and yet still will be bound by the final judgment because of its permissive-*378party status. We therefore are urged to give the District Court decision a “practical” interpretation and rule that the permissive-intervention order was a constructive denial.
We cannot accept this argument. In Railroad Trainmen, we found that the order denying all intervention was by necessity subject to immediate review, because the applicant “[could] not appeal from any subsequent order or judgment in the proceeding . . . .” 331 U. S., at 524. In that case the party seeking to intervene had no recourse other than pretrial review, since the trial court’s order terminated that party’s participation in the litigation. In the present case, however, CNA is a participant in the proceeding and has alternative means for challenging the order. Consequently, the justification for immediate review found in Railroad Trainmen is absent from this case. And while the District Court restricted CNA’s ability to participate as fully as it might wish, it is significant that none of the limitations interfere with CNA’s ability to raise its claims on postjudgment appeal. As noted, CNA was given access to discovery information and was permitted to participate to the extent not duplicative of other parties. We therefore refuse to find that the grant of permissive intervention, even though subject to conditions, should be treated as a complete denial of the right to participate.
C
Finally, CNA argues that the District Court order comes within the statutory exception to finality set forth in 28 U. S. C. § 1292(a)(1). That section provides that a party may take an interlocutory appeal from an order “granting, continuing, modifying, refusing or dissolving injunctions.” CNA asserts that the order in this case constituted a “refusal” to grant an injunction in two respects. First, by ruling that CNA could not raise any claim not asserted by an original party, the District Court necessarily denied the injunctive relief CNA sought in its Complaint in Interven*379tion.5 Second, by denying the right to file motions without the consent of another party, CNA claims that the order prevents it from even requesting, much less obtaining, a preliminary injunction.
This argument fails for the reasons discussed above. Even if we were convinced that the District Court order had the effect of denying an injunction, it still would not satisfy § 1292(a)(1). This Court has made it clear that not all denials of injunctive relief are immediately appealable; a party seeking review also must show that the order will have a “ ‘serious, perhaps irreparable, consequence,’ and that the order can be ‘effectually challenged’ only by immediate appeal.” Carson v. American Brands, Inc., 450 U. S. 79, 84 (1981) (quoting Baltimore Contractors, Inc. v. Bodinger, 348 U. S. 176, 181 (1955)). Because we have concluded that CNA, during post-trial review, can challenge the limitations on its participation, we conclude that § 1292(a)(1) provides no basis for affirming the decision below.6
*380I — I I — I t-H
As we have noted in the past, the finality rule of § 1291 protects a variety of interests that contribute to the efficiency of the legal system. Pretrial appeals may cause disruption, delay, and expense for the litigants; they also burden appellate courts by requiring immediate consideration of issues that may become moot or irrelevant by the end of trial. In addition, the finality doctrine protects the strong interest in allowing trial judges to supervise pretrial and trial procedures without undue interference. Firestone Tire & Rubber Co. v. Risjord, 449 U. S., at 374. Particularly in a complex case such as this, a district judge’s decision on how best to balance the rights of the parties against the need to keep the litigation from becoming unmanageable is entitled to great deference. Cf. Fed. Rule Civ. Proc. 24(b)(2) (“In exercising its discretion [concerning permissive intervention] the court shall consider whether the intervention will unduly delay or prejudice the adjudication of the rights of the original parties”). The judge’s ability to conduct efficient and orderly trials would be frustrated, rather than furthered, by piecemeal review. See Richardson-Merrell Inc. v. Koller, 472 U. S., at 434.
The decision of the Court of Appeals is vacated, and the case is remanded with instructions to dismiss the appeal for want of jurisdiction.

It is so ordered.

 Federal Rule of Civil Procedure 24 provides in part:
“(a) Intervention of Right. Upon timely application anyone shall be permitted to intervene in an action: (1) when a statute of the United States confers an unconditional right to intervene; or (2) when the applicant claims an interest relating to the . . . subject of the action and . . . the disposition of the action may as a practical matter impair or impede his ability to protect that interest, unless the applicant’s interest is adequately represented by existing parties.
*373“(b) Permissive Intervention. Upon timely application anyone may be permitted to intervene in an action:... (2) when an applicant’s claim or defense and the main action have a question of law or fact in common. . . . In exercising its discretion the court shall consider whether the intervention will unduly delay or prejudice the adjudication of the rights of the original parties.”

 CNA alleged that it had the right to intervene under the Safe Drinking Water Act, 88 Stat. 1690, as amended, 42 U. S. C. § 300j-8, the Resource Conservation and Recovery Act, 90 Stat. 2825, as amended, 42 U. S. C. § 6972 (1982 ed. and Supp. Ill), and the Clean Water Act, as added, 86 Stat. 888, 33 U. S. C. § 1365.

 Section 1291 provides: “The courts of appeals . . . shall have jurisdiction of appeals from all final decisions of the district courts of the United States . . . .”

 See Kartell v. Blue Shield of Massachusetts, Inc., 687 F. 2d 543, 549-550 (CA1 1982); Shore v. Parklane Hosiery Co., 606 F. 2d 354, 357 (CA2 1979); see also Wheeler v. American Home Products Corp., 582 F. 2d 891, 896 (CA5 1977).

 When CNA filed its application to intervene, it also lodged a proposed Complaint in Intervention that requested injunctive relief beyond that which was sought by the government plaintiffs. See United States v. Stringfellow, 783 F. 2d 821, 824 (CA9 1986).

 CNA also argues that recent congressional action demonstrates that the decision of the Court of Appeals for the Ninth Circuit is plainly correct. In October 1986, the Superfund Amendments and Authorization Act of 1986 was signed into law. Pub. L. 99-499, 100 Stat. 1613. CNA claims that § 113(e) of these amendments shows that affected groups such as CNA are allowed to intervene as of right in proceedings designed to clean up hazardous waste sites. We express no opinion on the new legislation, because we find it irrelevant to the question before us. CNA’s argument addresses the merits of the District Court intervention order; we granted certiorari, however, only to decide whether this type of order is immediately appealable. The possibility that the District Court order is legally flawed has no bearing on our decision, given that “interlocutory orders are not appealable ‘on the mere ground that they may be erroneous.’ ” Firestone Tire & Rubber Co. v. Risjord, 449 U. S. 368, 378 (1981) (citation omitted).