Blue Legs v. U.S. Bureau of Indian Affairs

• Decision Date: 12 May 1989
• Docket Number: 87-5434,Nos. 87-5433,s. 87-5433
• Parties: , 19 Envtl. L. Rep. 20,717 Taylor Wallace BLUE LEGS, Executor of the Estate of Mattie Blue Legs, deceased; and Margaret Jenkins, Appellees, v. UNITED STATES BUREAU OF INDIAN AFFAIRS, United States Indian Health Service and Oglala Sioux Tribe, Appellant.
• Court: U.S. Court of Appeals — Eighth Circuit

Page 1094

867 F.2d 1094

29 ERC 1710, 19 Envtl. L. Rep. 20,717

Taylor Wallace BLUE LEGS, Executor of the Estate of Mattie

Blue Legs, deceased; and Margaret Jenkins, Appellees, v. UNITED STATES BUREAU OF INDIAN AFFAIRS, United States Indian

Health Service and Oglala Sioux Tribe, Appellant.

Nos. 87-5433, 87-5434.

United States Court of Appeals,

Eighth Circuit.

Submitted June 13, 1988.

Decided Feb. 9, 1989.

Rehearing and Rehearing En Banc Denied May 12, 1989.

Marvin Amiotte, Pine Ridge, S.D., Jacques B. Gelin, Washington, D.C., for appellant.

Krista H. Clark, Mission, S.D., for appellees.

Before HEANEY ^* and MAGILL, Circuit Judges, and EDWARDS, ^** Senior Circuit Judge.

HEANEY, Circuit Judge.

Taylor Wallace Blue Legs and Margaret Jenkins are members of the Oglala Sioux Tribe (Tribe) of Indians and reside on the Pine Ridge Indian Reservation (Reservation). They brought suit against the Environmental Protection Agency (EPA), the EPA's Administrator, the Bureau of Indian Affairs (BIA), the Indian Health Service (IHS) and subsequently joined the Tribe, complaining that garbage dumps located on the Reservation were maintained in violation of federal law. The United States District Court for the District of South Dakota dismissed the EPA and its Administrator. It ordered the Tribe, the BIA and IHS to submit a plan within 120 days to bring the dump sites into compliance. 668 F.Supp. 1329 (D.S.D.1987) (stayed pending our review).

On appeal, the Tribe argues that it is immune from suit, that resort must first be made to tribal courts, and that in any event, BIA and IHS are solely responsible for compliance. BIA and IHS argue that they have no legal duty to clean up the dumps; rather, the Tribe is responsible. We affirm the district court and hold that the Tribe, BIA and IHS share the responsibility of bringing the garbage dumps into compliance.

BACKGROUND

The district court's order covered fourteen dump sites located on the Reservation. In conditions of high rainfall and/or flooding, as undoubtedly occurs in your geographical-climatic area, spread of all these potentially pathogenic bacteria would occur readily. Surface wells and insufficiently protected drinking water would be contaminated quite easily. Also, the flies and other disease vectus from the dump sites can spread these organisms to food and other entry sites to humans.

"Most of the sites are in the vicinity of or near one or more of the following: houses, schools, and streams or springs." 668 F.Supp. at 1333. The court found that twelve sites are unfenced. Six sites lack sanitary trenches. No site has a dirt covering. No site is supervised. All locations have had fires at the sites. 668 F.Supp. at 1331-32. Laboratory analysis of water samples from the sites showed "significant contamination," including organisms capable of "caus[ing] disease in wildlife and frequently in humans * * * urinary tract infections and infections of the respiratory system * * * neonatal infections, involving the central nervous system and other organs." Plaintiff's Exhibit No. 63. Children, pets and others can easily come in contact with the sites given the present condition of the dumps. Moreover, the sites represent a danger even to those who do not wander near them.

Id.

An outbreak of disease threatens people living off the Reservation as well.

BIA and IHS operate schools, a hospital, a health station, and own over 47 homes and other residences on the Reservation. BIA and IHS dispose of their trash through the Pine Ridge Village Garbage Service (Service), an adjunct of the Tribe. At some locations BIA personnel transport the waste directly to disposal facilities; at other locations the Service collects the waste. Immediately, infectious waste is incinerated at the IHS health stations. IHS provides technical assistance to the Tribe in the form of information and research about solid waste disposal, and has in the past provided some money to help purchase relevant equipment. Neither agency supervises the Tribe's waste disposal but both are aware of the conditions on the Reservation and continue to contract with the Service for disposal in violation of law. 668 F.Supp. at 1331-33.

There is little disagreement between the parties about these facts. This dispute concerns who is to pay for the initial clean-up and subsequent maintenance.

I. THE TRIBE

The Tribe argues that it is immune from this suit, that the plaintiffs must exhaust tribal remedies before proceeding in federal court and that the federal defendants are solely responsible for cleaning up the sites. The district court rejected the Tribe's first two contentions, as do we.

A. Sovereign Immunity

Over the course of the last two centuries Indian tribes have evolved into dependent associations with limited powers of self-government. See Santa Clara Pueblo v. Martinez, 436 U.S. 49, 55-57, 98 S.Ct. 1670, 1675-76, 56 L.Ed.2d 106 (1978). Where Congress clearly indicates that Indian tribes are subject to a given law, no tribal sovereignty exists to bar the reach or enforcement of that law. Id. at 58-59, 98 S.Ct. at 1677; United States v. United States Fidelity and Guar. Co., 309 U.S. 506, 512-13, 60 S.Ct. 653, 656-57, 84 L.Ed. 894 (1940); Iron Crow v. Oglala Sioux Tribe, 231 F.2d 89, 94 (8th Cir.1956). We turn to the question of whether Congress has abrogated the tribe's immunity in this matter.

Congress passed the Resource Conservation and Recovery Act of 1976 (RCRA) to remedy national problems caused by hazardous waste and solid waste disposal. Pub.L. No. 94-580, 90 Stat. 2795, codified at 42 U.S.C. Secs. 6901 et seq., amending the Solid Waste Disposal Act, 42 U.S.C. Secs. 3251-59. Congress was concerned that a failure to address all sources of pollution would render efforts aimed at other Congress also decided to regulate the disposal of discarded materials on reservations. Under the RCRA, citizens are permitted to bring compliance suits "against any person (including (a) the United States, and (b) any other governmental instrumentality or agency * * * ) who is alleged to be in violation * * *." 42 U.S.C. Sec. 6972(a)(1)(A). ² "Person" is subsequently defined to include municipalities. 42 U.S.C. Sec. 6903(15). Municipalities include "an Indian tribe or authorized tribal organization * * *." 42 U.S.C. Sec. 6903(13)(A). See also House Report, supra note 1, at 37, USCAN 6275 (specific examples of harm to be avoided, including Indian children playing in dumps on reservations); State of Washington Dep't of Ecology v. E.P.A., 752 F.2d 1465, 1469-71 (1985) (RCRA applies to Indian tribes). It thus seems clear that the text and history of the RCRA clearly indicates congressional intent to abrogate the Tribe's sovereign immunity with respect to violations of the RCRA.

sources ineffectual. ¹

B. Exhaustion

The Tribe makes a related claim that even if it is not immune from suit, respect for tribal self-government requires that the plaintiffs initially bring suit in tribal courts. The government defendants endorsed this claim but clearly indicated under questioning that they would not submit to the jurisdiction of a tribal court.

The judicial preference for tribal court exhaustion is an adjunct to Congress' general preference for tribal self-government. National Farmers Union Ins. Cos. v. Crow Tribe, 471 U.S. 845, 856-57, 105 S.Ct. 2447, 2453-54, 85 L.Ed.2d 818 (1985). We agree that tribal courts are presumed to have civil jurisdiction over the actions of non-Indians on reservation lands absent the affirmative limitations of federal treaties and statutes. Iowa Mutual Ins. Co. v. LaPlante, 480 U.S. 9, 15, 107 S.Ct. 971, 976, 94 L.Ed.2d 10, 21 (1987). See also, Fisher v. District Court, 424 U.S. 382, 388-89, 96 S.Ct. 943, 947-48, 47 L.Ed.2d 106 (1976); Williams v. Lee, 358 U.S. 217, 79 S.Ct. 269, 3 L.Ed.2d 251 (1959). Determining the "extent of a tribal court's jurisdiction * * * require[s] a careful examination of tribal sovereignty, the extent to which the sovereignty has been altered, divested, or diminished, as well as a detailed The RCRA places exclusive jurisdiction in federal courts for suits brought pursuant to section 6972(a)(1) of the Resource Conservation and Recovery Act.

                study of relevant statutes, Executive Branch policy as embodied in treaties and elsewhere, and administrative or judicial decisions."    National Farmers, 471 U.S. at 856, 105 S.Ct. at 2454.    Our examination of the RCRA leads us to conclude that exhaustion of tribal remedies is not required in this case
                

Any action under paragraph (a)(1) of this subsection [as this case is] shall be brought in the district court for the district in which the alleged violation occurred.

42 U.S.C. Sec. 6972(a). Accord Middlesex County Board of Union Freeholders v. New Jersey, 645 F.Supp. 715, 719-20 (D.N.J.1986).

Moreover, Congress has expressed a preference for prompt federal adjudication of citizen suits to enforce the RCRA.

Although the Committee has not prohibited a citizen from raising claims under state law in a section 7002 action, the Committee expects courts to exercise their discretion concerning pendent jurisdiction in a way that will not frustrate or delay the primary goal of this provision, namely the prompt abatement of imminent and substantial endangerments.

H.R.Rep. No. 98-198, 1, 98th Cong., 2nd Sess., pt. 1, at 53 (1984), reprinted in 1984 U.S. Code Cong. & Admin.News 5576, 5612 (relating to Pub.L. 98-616, Title IV, Sec. 401, Nov. 8, 1984, 98 Stat. 3268; amending section 6972).

C. The Tribe's Responsibilities

Finally, the Tribe argues that the federal defendants are responsible for cleaning up the dump sites pursuant to the RCRA and other laws. We agree. We do not accept, however, the Tribe's contention that the Tribe possesses no responsibility to help.

The district court found that the Tribe established and operated the dumps through the Service. The Tribe also generated waste dumped at these sites. We agree with the district...