ADKINS v. VIM RECYCLING, INC. (May 3, 2011)
VIM Recycling operates a waste dump in Elkhart, Indiana. It entered into an Agreed Order with the Indiana Department of Environmental Management in 2007 relating principally to the removal of certain waste it referred to as "C" grade waste. When VIM did not comply with the order by the September 2008 deadline, IDEM sued them in state court. A group of area residents attempted to intervene and expand the scope of the lawsuit beyond "C" waste. They also sought damages. When the state court judge limited their intervention to the original scope of the lawsuit, they withdrew their claims. Instead, in October, they brought a RCRA suit in federal court, after providing the required notice and waiting the required time period. Their federal suit included claims relating not only to "C" waste, but also to “A”, “B”, and “C&D” wastes. It sought relief both under RCRA’s "violation" provision, alleging that VIM violated several Indiana regulations, and under RCRA’s "endangerment" provision, alleging that the VIM waste site presented an imminent and substantial danger. About a month later, IDEM brought a second lawsuit in state court, this one relating to "B" waste. VIM moved to dismiss the RCRA "violation" action on the grounds that RCRA prohibited a private action when the state is diligently prosecuting an action. VIM also asked for abstention under both Burford and Colorado River. Chief Judge Simon (N.D. Ind.) agreed, dismissed the "violation" count, and abstained on the "endangerment" count. Plaintiffs appeal.
In their opinion, Circuit Judges Ripple (concurring in part and dissenting in part) and Hamilton and District Judge Murphy reversed and remanded. The Court first addressed the "violation" count and the statutory bar. The Court corrected the parties’ treatment of the issue as jurisdictional, noting the Supreme Court's recent reminders to distinguish between truly jurisdictional rules and other, claims-processing rules. The RCRA statutory bar is a claims-processing rule. On the merits, the statutory bar prohibits the commencement of an action if a state "has commenced and is diligently prosecuting" an action requiring compliance with the same standard or regulation. The Court concluded that neither IDEM action totally barred the private action. The second action was not "commenced" at the time of the federal action so it cannot bar the action. The first action was commenced before the federal action so it bars the federal action -- but only to the extent that the claims overlap. The RCRA plaintiffs’ "C" claims were properly dismissed but the plaintiffs' other claims with respect to other types of waste can be pursued. The Court turned to the two abstention doctrines at issue in the case. Although the Court noted that it was applying an abuse of discretion standard of review, it also noted that federal courts have a "virtually unflagging obligation" to exercise their jurisdiction and should not abstain from doing so except in exceptional circumstances. Colorado River abstention comes into play when there are parallel state and federal proceedings and judicial economy supports abstention. But there must be both parallel proceedings and exceptional circumstances. Here, the Court found neither. The parties are not the same, the claims are not the same, and the state court case would not dispose of the federal case. Furthermore, Congress, in enacting RCRA, expressly contemplated simultaneous federal and state court proceedings. The Court concluded that the district court did abuse its discretion in adopting Colorado River abstention. Burford abstention, on the other hand, comes into play when a federal proceeding could be disruptive to a coherent state policy on a matter of public concern. But the Court noted that Burford abstention requires a state forum with specialized expertise. Since the IDEM cases are proceeding before a court of general jurisdiction, Burford abstention simply does not apply.
Judge Ripple concurred with most of the majority's conclusions but dissented with respect to Colorado River abstention. He believed that the simultaneous proceedings were a "recipe for delay, confusion, and wasted judicial resources" and satisfied the requirements for Colorado River abstention.