U.S. v. STATE OF WASH.

Nos. 96-35014, 96-35082, 96-35142, 96-35196, 96-35200 and 96-35223.

135 F.3d 618 (1998)

UNITED STATES of America; Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Lummi Indian Tribe; Makah Tribe; Tulalip Tribe; Swinomish Indian Tribal Community; Quileute Indian Tribe; Puyallup Tribe; Hoh Indian Tribe; Suquamish Tribe; Quinault Indian Nation; Confederated Tribes & Bands of the Yakima Indian Nation; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam Tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle Tribe; Stillaguamish Tribe, Plaintiffs-Appellees, v. STATE OF WASHINGTON, Defendant-Appellant. UNITED STATES of America; Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Lummi Indian Tribe; Makah Tribe; Tulalip Tribe; Swinomish Indian Tribal Community; Puyallup Tribe; Quileute Indian Tribe; Suquamish Tribe; Hoh Indian Tribe; Quinault Indian Nation; Confederated Tribes & Bands of the Yakima Indian Nation; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam Tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle Tribe; Stillaguamish Tribe, Plaintiffs-Appellees, v. STATE OF WASHINGTON, et al., Defendants, and 26 Upland and Tideland Private Property Owners, (Dan Buehler, Robert L. Davis, Bruce I. Fielding, Arthur J. Gerdes, Joe Hoots, Keith C. Huetson, Commander J.C. James, Richard Sayre Koch, Elaine C. Lefler, Joan Lemonds-Roush, John S. Lewis, Steven L. Luke, Edward R. McMillan, Robert F. Newman, Mark A. Nysether, Arthur I. Price, Ray D. Randall, Cynthia Ramussen, Robert G. Shanks, Axel Strakeljahn, Leana Tracy, Stuart W. Turner, George B. Usnick, Lee S. Vincent, Joan Walker and William E. Whitney, Jr.), Defendants-intervenors-Appellants. UNITED STATES of America, et al.,; Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Lummi Indian Tribe; Makah Tribe; Tulalip Tribe; Swinomish Indian Tribal Community; Puyallup Tribe; Quileute Indian Tribe; Suquamish Tribe; Hoh Indian Tribe; Quinault Indian Nation; Confederated Tribes & Bands of the Yakima Indian Nation; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle tribe; Stillaguamish Tribe, Plaintiffs-Appellees, v. STATE OF WASHINGTON, et al., Defendants, and James Hadley; James Carter; Ann Carter; Charmond Adkins; Larry Alexander; Shirlee Alexander; Grace Boyd; Pierce Davis; Rosemary Duncan; May Davis; James C. Johnston; Sarah Johnston; W.K. Kirch; Jo Ann Kirch; David Mitchell; Louis Nawrot, Jr.; Boon Ho Woo; Harold Bauer; Billie Bauer; William Chase; Frances Fellows; George Grader; Earl Hunsperger; Millicent Hunsperger; Edward Krenz; Eleanor Krenz; H.J. Merrick; Moss Gordon; Margaret Moss; Sewall Reynolds; Emma Reynolds; John Riach; Alva Hazel Robb; Irene Smith; Providence Worley, Defendants-Intervenors-Appellants. UNITED STATES of America, et al., Plaintiff, and Lummi Tribe; Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Makah Tribe; Swinomish Indian Tribal Community; Tulalip Tribe; Puyallup Tribe; Quileute Indian Tribe; Hoh Indian Tribe; Suquamish Tribe; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam Tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle Tribe; Stillaguamish Tribe, Plaintiffs-Intervenors-Appellants, and Quinault Indian Nation; Confederated Tribes & Bands of The Yakima Indian Nation, Plaintiffs-Intervenors, v. STATE OF WASHINGTON, et al., Defendants-Appellees. UNITED STATES of America, et al., Plaintiff-Appellant, and Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Lummi Indian Tribe; Makah Tribe; Tulalip Tribe; Swinomish Indian Tribal Community; Puyallup Tribe; Quileute Indian Tribe; Hoh Indian Tribe; Suquamish Tribe; Quinault Indian Nation; Confederated Tribes & Bands of the Yakima Indian Nation; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam Tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle Tribe; Stillaguamish Tribe, Plaintiffs-Intervenors, v. STATE OF WASHINGTON, et al., Defendant-Appellee. UNITED STATES of America, Plaintiffs-Appellees, and Lummi Indian Tribe; Muckleshoot Tribe; Nooksack; Upper Skagit; Squaxin Island; Makah Tribe; Swinomish Indian Tribal Community; Tulalip Tribe; Puyallup Tribe; Quileute Indian Tribe; Hoh Indian Tribe; Suquamish Tribe; Quinault Indian Nation; Confederated Tribes & Bands of the Yakima Indian Nation; Nisqually Indian Tribe; Jamestown Tribe; Lower Elwha Klallam Tribe; Port Gamble Bands; Skokoish Tribe; Sauk-Suiattle Tribe; Stillaguamish Tribe, Plaintiffs-Intervenors-Appellees, v. STATE OF WASHINGTON, et al., Defendant, and Puget Sound Shellfish Growers, Defendants-Intervenors-Appellants.

United States Court of Appeals, Ninth Circuit.

Decided January 28, 1998.


Attorney(s) appearing for the Case

Phillip E. Katzen (Argued), and Allen H. Sanders, Columbia Legal Services, Seattle, Washington, for plaintiff-appellee cross-appellant Jamestown, Lower Elwha and Port Gamble Bands of S'Klallams, Nisqually, Nooksack, Sauk-Suiattle, Skokomish, Squaxin Island, Stillaguamish and Upper Skagit Tribes, Indian Tribes.

Evelyn S. Ying (Argued), Ann C. Juliano, Martin W. Matzen, Peter C. Monson, Attorneys, United States Department of Justice, Environment & Natural Resources Division, Washington, DC, for appellee/cross-appellant United States.

Jay D. Geck (Argued), Fronda Woods, and Robert C. Hargreaves, Assistant Attorneys General, John W. Hough, Senior Assistant Attorney General, Attorney General's Office, State of Washington, Olympia, Washington, for defendants-appellants cross-appellees.

James M. Johnson (Argued), Olympia, Washington, for intervenor defendant-appellant, 26 Tideland and Upland Private Property Owners ("UPOW").

Howard M. Goodfriend (Argued), and Malcolm L. Edwards, Edwards, Sieh, Hathaway, Smith & Goodfriend, Seattle, Washington, for Private Owners.

Michael Himes (Argued), and Albert Gidari, Jr., Perkins Coie, Seattle, Washington, for intervenors defendants-appellants, Puget Sound Shellfish Growers.

Eric Richter, Skeel Henke, Evenson & Roberts, Seattle, Washington, for intervenor defendant-appellant Adkins, et. al.

Mason D. Morisset, Seattle, Washington, for Tulalip Tribes.

Riyaz A. Kanji, Williams and Connolly, Washington, DC, for plaintiffs-appellees cross-appellants Jamestown, Lower Elwha and Port Gamble Bands of S'Klallams, Nisqually, Nooksack, Sauk-Suiattle, Skokomish, Squaxin Island, Stillaguamish and Upper Skagit Tribes, Indian Tribes.

John Sledd, and Mary Linda Pearson, Suquamish, Washington, for Suquamish Tribe.

Daniel A. Raas and Harry L. Johnsen, Bellingham, Washington, for Lummi Tribe.

Richard Berley, John Arum, Mark Slonim, Seattle, Washington, for Makah Tribe.

Bill Tobin and Christina Berg, Seattle, Washington, for Nisqually Tribe.

Annette M. Klapstein, John Howard Bell, and Debra S. O'Gara, Tacoma, Washington, for Puyallup Tribe.

Kevin R. Lyon and Ronald Whitener, Olympia, Washington, for Squaxin Island Tribe.

Robert L. Otsea, Seattle, Washington, for Muckleshoot Tribe.

Kathryn Nelson and Amy C. Lewis, Tacoma, Washington, co-counsel for Port Gamble, Lower Elwha and Jamestown Bands of S'Klallams and Skokomish Tribe.

Leslie Barnhart, Port Angeles, Washington, Lori Salzarulo and Ruth Kennedy, Seattle, Washington, for Quileute Tribe.

Nettie Alvarez and Richard Ralston, Seattle, Washington, for Hoh Tribe.

Jeffrey Jon Bode, Bellingham, Washington, co-counsel for Nooksack Tribe.

Edward G. Maloney, Sedro Woolley, Washington, co-counsel for Skagit Tribe.

Harold Chesnin, Seattle, Washington, co-counsel for Upper Skagit Tribe.

Allan E. Olson, La Conner, Washington, for Swinomish Indian Community.

Daniel W. Wyckoff, Olympia, Washington, Tom D. Tobin, Winner, South Dakota, for amicus curiae Inner Sound Crab Association and Washington Dungeness Crab Fishermen's Association.

Stephanie L. Striffler, Assistant Attorney General, Salem, Oregon, for amicus curiae State of Oregon.

Nancie Marzulla, Washington, DC, for amicus curiae Defenders of Property Rights.

Robin Rivett, Sacramento, California, John M. Groen, Bellvue, Washington, amicus curiae Pacific Legal Foundation.

Toby Thaler, Seattle, Washington, for amicus curiae Washington Environmental Council.

Before: LAY, BEEZER and TROTT, Circuit Judges.


Opinion by Judge TROTT; Concurrence by Judge BEEZER.

TROTT, Circuit Judge:

I. OVERVIEW

The State of Washington, groups of private tideland property owners ("Private Owners"), and commercial shellfish growers ("Growers") (collectively, "Appellants") appeal the district court's judgment following two bench trials in an action brought by numerous Indian Tribes1 (the "Tribes") and...

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