Mayes v. Cherokee Nation (In Re Mayes)

294 B.R. 145, 2003 Bankr. LEXIS 578, 2003 WL 21354687

• Court: Bankruptcy Appellate Panel of the Tenth Circuit
• Decided: June 11, 2003
• Docket: BAP No. EO-02-067. Bankruptcy No. 02-70643
• Status: Published

Opinions

OPINION

NUGENT, Bankruptcy Judge.

This appeal presents a question of tribal sovereign immunity to certain proceedings in bankruptcy. The debtor Robin Carter Mayes (“Appellant”) appeals from the bankruptcy court’s Order denying his Motion to Avoid Judicial Lien and granting 1¿he Cherokee Nation’s (“Appellee”) Motion to Dismiss Debtor’s Motion to Avoid Judicial Lien on the ground that Appellee was immune from suit. The issue presented is whether a motion to avoid an Indian nation’s judicial lien pursuant to 11 U.S.C. (f)(1)(A)¹ constitutes a “suit,” and is thereby subject to the common law doctrine of tribal sovereign immunity. We conclude that in bankruptcy, a motion to avoid a hen is a “suit,” and that in the absence of an “unequivocal waiver” of immunity, an Indian nation is immune from suit under common law tribal immunity. We AFFIRM the bankruptcy court.

Appellate Jurisdiction

The Bankruptcy Appellate Panel has jurisdiction over this appeal. The Appellant timely filed his notice of appeal, and the parties have consented to this Court’s jurisdiction by failing to elect to have the appeal heard by the United States District Court for the Eastern District of Oklahoma.²

The Order is a final, appealable order under 28 U.S.C. § 158(a)(1) because it conclusively determines and disposes of Appellant’s Motion to Avoid Judicial Lien and Appellee’s Motion to Dismiss.³

Standard of Review

The application of tribal sovereign immunity is a question of law subject to de novo review by this Court.⁴

Factual Background

The facts in this appeal are undisputed. In October 2001, the Appellee obtained a judgment against Appellant in the amount of $4,417.82.⁵ Thereafter, Appellee recorded its judgment, and in accordance with Oklahoma law, the judgment became a lien upon Appellant’s real property — his homestead.

In February 2002, the Appellant filed his Chapter 7 bankruptcy petition. Appellant claimed the real property exempt as his homestead.⁶ On March 28, 2002, Appellant filed a Motion to Avoid Judicial Lien (“Avoidance Motion”), seeking to avoid the Appellee’s judgment lien on his exempt homestead.⁷ Appellant served his Avoidance Motion on Appellee by regular mail, addressed to Cherokee Nation at a post office box.⁸ Nothing in the record suggests that prior to receiving the Avoidance Motion, Appellee had filed a proof of claim or otherwise participated in the Appellant’s bankruptcy case in any way. In response to the Avoidance Motion, the Ap-pellee filed a Special Entry of Appearance and Motion to Dismiss Debtor’s Motion to Avoid Judicial Lien (“Dismissal Motion”), asserting sovereign immunity.

The bankruptcy court set a briefing schedule on the Appellee’s Dismissal Motion, and the parties thereafter submitted briefs. The Appellant asserted two objections to the Dismissal Motion: (1) his Avoidance Motion was not a “suit” against Appellee and therefore sovereign immunity was inapplicable; and (2) even if the Avoidance Motion was a “suit,” Congress abrogated the Appellee’s sovereign immunity by its enactment of § 106(a).

After taking the matter under advisement, the bankruptcy court entered its Order on August 21, 2002, granting the Dismissal Motion and denying the Appellant’s Avoidance Motion. The bankruptcy court concluded that the Avoidance Motion was a suit for purposes of sovereign immunity⁹ and, relying on our prior decision in Straight v. Wyoming Department of Transportation (In re Straight), that Section 106(a) is an unconstitutional abrogation of sovereign immunity.

This appeal followed. On appeal, Appellant asserts as the sole error the bankruptcy court’s conclusion that his Avoidance Motion was a “suit” for purposes of sovereign immunity. Because Appellant does not challenge the bankruptcy court’s conclusion that § 106(a) is an unconstitutional abrogation of sovereign immunity, the Appellant is deemed to have abandoned this argument.¹⁰

While this appeal was pending, this Court issued an order requesting supplemental briefing on the question of whether the Appellee had waived sovereign immunity by initiating the state court lawsuit that gave rise to its judgment and judgment lien. Both Appellant and Appellee submitted supplemental memoranda on this point.

Analysis

The bankruptcy court held that the Avoidance Motion was a “suit” barred under sovereign immunity arising under the Eleventh Amendment. While, for the reasons stated herein, we agree with this conclusion, we think it is necessary to first clarify that Appellee’s immunity arises not under the Eleventh Amendment, but rather under federal common law. Common law tribal immunity, however, applies the same requirement of the existence of a “suit,” and for the reasons discussed, we agree with the bankruptcy court that Appellant’s Avoidance Motion is a “suit” from which Appellee is immune. These issues are discussed below.

Tribal Sovereign Immunity

The doctrine of tribal immunity developed under federal common law and is similar, but not identical, to the sovereign immunity of States as preserved by the Eleventh Amendment. Tribal immunity is described in Three Affiliated Tribes of the Fort Berthold Reservation v. Wold Engineering: ¹¹

The common law sovereign immunity possessed by the Tribe is a necessary corollary to Indian sovereignty and self-governance. See, e.g., Santa Clara Pueblo v. Martinez, 436 U.S. 49, 98 S.Ct. 1670, 56 L.Ed.2d 106 (1978). Of course, because of the peculiar “quasi-sovereign” status of the Indian tribes, the Tribe’s immunity is not congruent with that which the Federal Government, or the States, enjoy. And this aspect of tribal sovereignty, like all others, is subject to plenary federal control and definition. See Santa Clara Pueblo v. Martinez, supra, 436 U.S., at 58, 98 S.Ct., at 1677. Nonetheless, in the absence of federal authorization, tribal immunity, like all aspects of tribal sovereignty, is privileged from diminution by the States.¹²

The Supreme Court drew a further distinction between state sovereign immunity and tribal sovereign immunity in Kiowa Tribe v. Manufacturing Technologies, Inc.:¹³

We have often noted, however, that the immunity possessed by Indian tribes is not coextensive with that of the States.... [W]e distinguished state sovereign immunity from tribal sovereign immunity, as tribes were not at the Constitutional Convention. They were thus not parties to the “mutuality of ... concession” that “makes the States’ surrender of immunity from suit by sister States plausible.” So tribal immunity is a matter of federal law.... ¹⁴

Although the Supreme Court has distinguished between tribal and state sovereign immunity, it has long recognized that Indian tribal immunity is similar in scope to that enjoyed by the states.¹⁵ For this reason, we find the case law defining and interpreting “suit” as contained in the Eleventh Amendment¹⁶ instructive and persuasive in the context of matters against Indian tribes in bankruptcy.¹⁷

The Avoidance Motion is a “Suit” Barred by Tribal Sovereign Immunity

Before deciding whether a lien avoidance application is a “suit” for immunity purposes, we consider the nature of a lien avoidance action in bankruptcy. Ordinarily, prepetition hens pass through a bankruptcy case unaffected.¹⁸ In the absence of a hen avoidance action, a secured creditor may look to the property securing the claim for satisfaction of its prepetition hen, but may not look to the debtor personally for payment.¹⁹ Moreover, hens that are not avoided may be enforced against exempt property.²⁰ Thus, absent hen avoidance, a judgment hen creditor may look to exempt property to satisfy its judgment lien. A successful hen avoidance action effectively divests a creditor of its hen to the extent that it impairs an exemption.

Here, the Appellant’s Avoidance Motion is brought pursuant to § 522(f)(1), which provides in pertinent part:

Notwithstanding any waiver of exemptions but subject to paragraph (3), the debtor may avoid the fixing of a hen on an interest of the debtor in property to the extent that such hen impairs an exemption to which the debtor would have been entitled under subsection (b) of this section, if such hen is- — (A) a judicial hen....²¹

Under the Bankruptcy Code, a hen avoidance apphcation brought pursuant to § 522(f) is a “contested matter” and not an adversary proceeding.²² Unlike an adversary proceeding, a contested matter is initiated by filing a motion rather than a complaint.²³ While no summons is issued and served upon the “defendant” in a contested matter, service of a pleading initiating a contested matter is made in the same manner as service of a summons and complaint in an adversary proceeding.²⁴

The different procedural treatment of § 522(f) lien avoidance actions (contested matters) from all other lien avoidance actions (adversary proceedings) is explained by one bankruptcy commentator as follows:

Rule 4003(d) is a recognition that in the vast majority of cases brought under section 522(f) the proceeding is not contested, and that even if there is a contest, the issue usually a relatively simple question of valuation. The rule thus distinguishes these proceedings from the exercise of the avoiding powers under Code sections 544-553 and 724(a), by either the trustee or the debtor. The exercise of those powers, which is more likely to raise issues about whether the nature of the transfer renders it avoidable, must be through an adversary proceeding.²⁵

In this case, we are asked to decide whether the Avoidance Motion is a contested matter that amounts to being a “suit” to which tribal immunity applies. The Tenth Circuit has not decided this precise question, and this Court has cautioned that not all legal actions are suits for purposes of sovereign immunity.²⁶

On two occasions, this Court has held that an adversary proceeding against a state is a suit for purposes of the Eleventh Amendment sovereign immunity. In Chandler v. State of Oklahoma (In re Chandler)²⁷ the debtor brought a § 523(a) dischargeability action against the State of Oklahoma seeking a determination that a tax debt was dischargeable. In concluding that the adversary proceeding was a suit and subject to the state’s sovereign immunity, this Court noted that monetary relief need not be sought.²⁸ Citing to numerous cases from other jurisdictions, this Court also observed that in bankruptcy, the “overwhelming view” is that an adversary proceeding is a suit for Eleventh Amendment purposes, regardless of whether the plaintiff is seeking monetary relief.²⁹ The reasoning was explained by this Court as follows:

The rationale behind the “adversary proceeding” rule is twofold. First, the commencement of an adversary proceeding naming a State as a defendant results in the issuance of a summons against the State thereby subjecting it to the “indignity” of a required appearance in a judicial tribunal. Second, the commencement of an adversary proceeding against a State entails the bankruptcy court’s exercise of in personam jurisdiction over the State, and the resolution of the proceeding results in a decision that is specifically binding on the State.³⁰

In Straight,31 the debtor brought an adversary proceeding seeking lost profits against the Wyoming Department of Transportation for revoking debtor’s disadvantaged business enterprise certification in violation of §§ 362(a) and 525(a). Although Straight dealt primarily with the constitutionality of § 106(a) to abrogate a state’s sovereign immunity, this Court also concluded that debtor’s adversary proeeed-ing was a suit against the state within the meaning of the Eleventh Amendment.³²

Seizing upon dicta in Chandler as well as the form of his Avoidance Motion, the Appellant argues that his Avoidance Motion is not a suit. Specifically, he points out that he has not commenced an adversary proceeding, he has not caused a summons to be issued and served compelling the Appellee to appear, he has not asked for monetary relief but rather has sought declaratory relief, and he does not seek to dispossess the Appellee of an asset. Appellant cites to Chandler where this Court said:

[W]e note that had the relief sought in the Dischargeability Action been brought by motion, such as a motion to clarify or enforce a discharge order, as opposed to a § 523(a) ■ adversary proceeding, the same result may not have ensued. Although the issue is not squarely before us, existing law indicates that if a monetary recovery or dispossession of assets from a State are not sought in a contested matter, a suit does not exist and, therefore, the Eleventh Amendment does not apply.³³

We are not persuaded, however, that the form the action takes controls whether it is a suit for immunity purposes. Were we to look only to the procedure or form of the pleading, we would be constrained to reach the anomalous result that all lien avoidance actions, save those brought under § 522(f), would be deemed to be suits simply because they are brought as adversary proceedings rather than contested matters.³⁴ Accordingly, we cannot mechanically conclude that contested matters are not suits.³⁵ Rather, the Court must look beyond the procedure and form an action takes, and examine its substance to determine whether it is a suit and sovereign immunity applies.³⁶

Circuit authority is sparse as to whether a contested matter, generally, or a § 522(f) lien avoidance motion, in particular, qualifies as a suit for sovereign immunity purposes. The Fourth Circuit Court of Appeals in In re NVR, LP,37 has concluded that a contested matter by a debtor seeking a declaration that it was exempt from taxes under § 1146 and a return of allegedly exempt tax payments is a suit for sovereign immunity purposes. No circuit court has directly addressed whether a § 522(f) lien avoidance motion is a suit,³⁸ but the analysis of the contested matter in NVR is instructive:

[T]his action was initiated as a motion under Rule 9014 of the Federal Rules of Bankruptcy Procedure. Rule 9014 is entitled “Contested Matters” and as commentators have noted, it is unlike an administrative matter in bankruptcy because “there are (at least) two parties who are opposing each other with respect to relief sought by one of them. The motion thus set NVR’s interests at odds with the states”....

The ultimate resolution of the dispute between NVR and the states does require, however, that the federal courts exercise jurisdiction over the states. The states persuasively framed this issue by noting that if the federal court action could not result in ordering the states to return the tax payments, then any opinion issued would be advisory and improper. It is apparent, however, that absent the ability of the bankruptcy court to exercise jurisdiction over the states and compel the turnover of the tax payments, no remedy effectively could be granted. This ease is indeed one in which “adjudication ... depend[s] on the court’s jurisdiction over the state.” Antonelli, 123 F.3d at 787. This finding alone is enough to determine that the action, if it is to meet the requirements of Article III, is a suit against the states.

In sum, despite the fact that neither Maryland nor Pennsylvania suffered the indignity of being summonsed to appear in a federal court, we determine that they are immune from the prosecution of NVR’s Rule 9014 motion. The motion initiated a “contested matter” pitting Maryland and Pennsylvania against NVR.... The “suit” clearly sought a determination that the states owed NVR money — repayment of exempt transfer and recordation taxes.... ³⁹

In a matter similar to this case, the debtor in In re National Cattle Congress⁴⁰ sought to extinguish a tribe’s mortgage lien. In that case, the debtor filed neither an adversary proceeding nor a contested matter motion, but proposed through a Chapter 11 plan to extinguish the mortgage lien. The tribe argued that sovereign immunity barred the bankruptcy court from altering its lien on debtor’s property through the plan confirmation process. The bankruptcy court, after looking at the substance of the proceeding, concluded that this was a suit and tribal immunity applied.

“The general rule is that a suit is against the sovereign if ‘the judgment would expend itself on the public treasury or domain, or interfere with the public administration,’ or if the effect of the judgment would he ‘to restrain the Government from acting, or to compel it to act.’”

... The Court concludes that regardless of the posture from which Debtor attempts to extinguish the Tribe’s lien, whether through plan confirmation, adversary proceeding or filing a proof of claim on the Tribe’s behalf, Debtor is barred by the Tribe’s assertion of sovereign immunity. All of these methods of extinguishing the Tribe’s lien result in a “suit against the Tribe.” ⁴¹

Similarly, in the case at bar, a successful lien avoidance by Appellant has the effect of preventing or “restraining” the tribe from enforcing its judicial lien against Appellant’s property.

In In re Pitts⁴² the debtor filed an adversary proceeding against Ohio taxing authorities seeking to determine the dis-chargeability of certain tax debts under § 523 and avoidance of the liens created thereby under § 522(f). The bankruptcy court made no mention of the fact that the lien avoidance was brought as an adversary proceeding, rather than as a contested matter as required under Fed. R. Bankr.P. 4003(d). In deciding that Ohio was immune from the action, the bankruptcy court applied a six factor test to the substance of the action.

[T]he substance of the underlying action must be examined to determine if an action is a suit for purposes of the Eleventh Amendment. In makng this determination, this Court, ... will take into consideration the following six factors:

1) whether the proceeding is adversarial;

2) whether the proceeding arose as a result of a deprivation or injury;

3) whether there are at least two parties involved in the proceeding;

4) whether the attendance of the parties is required;

5) whether one of the parties is prosecuting a claim against the other;

6) whether the injured party is demanding the restoration of something from the defending party.⁴³

The court did not hesitate to conclude that the lien avoidance portion of the debtor’s complaint was a “suit” and sovereign immunity applied, stating:

Applying these factors to the instant case, it is clear that the portion of the Plaintiffs Complaint relating to the avoidance of the Defendant’s liens comports with all of the above factors. For example, a proceeding to avoid a lien clearly stems from a deprivation or injury, and upon a favorable outcome for the plaintiff, will also result in the restoration of something from the defending party.⁴⁴

As noted by the amicus party here, at least four, and arguably five, of the six Pitts factors are present in the instant case. While Appellant’s Avoidance Motion is not an adversary proceeding per se, it is nonetheless adversarial in nature, pitting Appellant-debtor against Appellee-tribe, and seeking to restore his exempt property free of the tribe’s judicial lien.

The Appellant argues that the Avoidance Motion is not a suit because he does not seek monetary relief against the Appellee nor seek to divest Appellee of an asset. He maintains that his Avoidance Motion merely seeks declaratory relief and therefore sovereign immunity does not apply. Appellant’s “form of relief’ argument is without merit. Seminole Tribe v. Florida45 makes clear that the nature of the relief sought is irrelevant to the question whether the suit is barred by sovereign immunity.⁴⁶

The Court also disagrees with Appellant’s contention that his Avoidance Motion does not seek to dispossess the Appellee of an asset. Appellant argues that the judicial lien is not an “asset,” but is merely a “method of enforcement of a debt.” Numerous courts, however, hold that a judicial lien is a property interest.⁴⁷ This Court therefore concludes that an attempt to avoid a judicial lien is an action to extinguish the lien or divest the holder of its lien and is tantamount to dispossessing Appellee of a property interest.

The Appellant also urges this Court to adopt an in rem exception to sovereign immunity. He essentially asserts that the bankruptcy court’s in rem jurisdiction over a debtor’s property trumps Appellee’s immunity. The Appellant cites no authority to this Court that recognizes such an in rem exception to sovereign immunity in the context of a bankruptcy case.⁴⁸ This argument appears to be nothing more than a variation of Appellant’s “form of relief’ argument premised upon the notion that the type of recovery sought matters and has been rejected by Seminole Tribe, as previously noted.

The Appellant confuses bankruptcy cases that affect all of the creditors alike because of the bankruptcy court’s in rem jurisdiction with bankruptcy proceedings affecting only a specific creditor.⁴⁹ Courts must examine the substance of the particular bankruptcy matter in question to determine whether it affects all of the debtor’s creditors or only a specific creditor.⁵⁰ The latter is much more akin to the exercise of personal jurisdiction over the creditor and constitutes a suit.

In addition, if a bankruptcy court’s in rem jurisdiction over a debtor’s property always prevailed over sovereign immunity, Appellant’s so-called in rem exception would swallow the rule. There would be no bankruptcy case or proceeding where sovereign immunity would apply. Yet there are numerous actions and proceedings in bankruptcy, apart from adversary proceedings, where sovereign immunity is recognized and applied. Finally, the broad jurisdictional grant under 28 U.S.C. § 1334(e) over all of a debtor’s property and property of the estate does not automatically preclude the assertion of a sovereign immunity defense. In Blatchford v. Native Village of Noatak, the Supreme Court noted the distinction: “The fact that Congress grants jurisdiction to hear a claim does not suffice to show Congress has abrogated all defenses to that claim. The issues are wholly distinct.”⁵¹

Based upon the reasoning set forth above, this Court concludes that the bankruptcy court did not err in determining that the Avoidance Motion was a suit for purposes of sovereign immunity.

The Appellee Has Not Waived Its Tribal Immunity

We now address the remaining issue of waiver raised by this Court during the pendency of the appeal. The Appellant contends that the Appellee waived its tribal immunity by commencement of the state court action that gave rise to its judicial lien. The Appellant’s argument is one of implied waiver and is based solely upon the Appellee’s previous litigation conduct in the Oklahoma state court.

The Appellant relies upon Lapides v. Board of Regents of the University System.52 That case is readily distinguishable and inapposite. In Lapides, the state entity was sued in Georgia state court. The state entity affirmatively removed the case to federal court where it then asserted sovereign immunity. The Supreme Court held that the removal of the case from state court to federal court constituted a waiver of sovereign immunity in federal court.

In the instant case, the Appellee engaged in no affirmative conduct in the Appellant’s federal bankruptcy case. The Appellee’s waiver of immunity in Oklahoma state court occurred at a time when Appellant’s bankruptcy case did not even exist. A tribe’s waiver of its immunity must be clear and unequivocal.⁵³ Ordinarily, a waiver of immunity in state court does not waive immunity in federal court.⁵⁴ The Tenth Circuit has recently held, in the context of a State’s waiver of sovereign immunity, that there must be “ ‘an unequivocal waiver specifically applicable to federal-court jurisdiction.’ ”⁵⁵ Based upon the law of waiver of sovereign immunity, the Appellee’s commencement of the state court action against Appellant and waiver of immunity in Oklahoma state court, without any affirmative action in the bankruptcy case, constitutes neither a “clear” nor an “unequivocal” waiver of its tribal immunity in federal bankruptcy court.⁵⁶

Conclusion

The Court today holds that a § 522(f) lien avoidance brought as a contested matter under Fed. R. Bankr.P. 9014 constitutes a suit and, in the absence of an unequivocal waiver of immunity in federal bankruptcy court, is subject to tribal immunity. The bankruptcy court’s Order granting the Appellee’s Motion to Dismiss and denying the Appellant’s Motion to Avoid Judicial Lien is AFFIRMED.

1 . Unless otherwise noted, all future statutory references herein are to title 11 of the United States Code.

2 . See 28 U.S.C. § 158(c)(1); Fed. R. Bankr.P. 8002.

3 . See In re Fox, 241 B.R. 224, 228 (10th Cir. BAP 1999) (citing Cascade Energy & Metals Corp. v. Banks (In re Cascade Energy & Metals Corp.), 956 F.2d 935, 938-39 (10th Cir.1992)) (final order includes those that conclusively determine "discrete disputes” within a bankruptcy case); see also Quackenbush v. Allstate Ins. Co., 517 U.S. 706, 712, 116 S.Ct. 1712, 135 L.Ed.2d 1 (1996) (order is final if it ends the litigation on the merits and leaves nothing for the court to do but execute the judgment); Bank of Okla. v. Muscogee (Creek) Nation, 972 F.2d 1166, 1168-69 (10th Cir.1992) (order granting Indian nation's motion to dismiss based on sovereign immunity is a final order).

4 . E.F.W. v. St. Stephen’s Indian High School, 264 F.3d 1297, 1302-03 (10th Cir.2001) (tribal sovereign immunity is matter of subject matter jurisdiction to which de novo review is applied); Fletcher v. United States, 116 F.3d 1315, 1323-24 (10th Cir.1997) (de novo review of sovereign immunity issue); Muscogee (Creek) Nation, 972 F.2d at 1168-69 (10th Cir.1992) (de novo review of order granting motion to dismiss interpleader action on grounds of sovereign immunity); Straight v. Wyoming Dep’t of Transp. (In re Straight), 248 B.R. 403, 409 (10th Cir. BAP 2000) (de novo review of sovereign immunity issue).

5 . This money judgment was in addition to other relief granted against Appellant.

6 . Although the Appellant has not included a copy of Schedule C in his appendix, the Appellant represented in his Motion to Avoid Judicial Lien that his real property was claimed exempt as his homestead.

7 . See 11 U.S.C. § 522(f)(1)(A).

8 . Appellant’s service of the Avoidance Motion did not comply with Fed. R. Bankr.P. 9014(b) and 7004(b)(3). No individual was named as an agent for service of process for the Appel-lee. But, this issue has not been raised and, given the disposition of this case, need not be addressed.

9 . The bankruptcy court erroneously referred to the Appellee’s sovereign immunity as deriving from the Eleventh Amendment. Tribal sovereign immunity is a matter of common law, not the Eleventh Amendment. Technically speaking, the immunity that States and Indian tribes enjoy is not identical. See infra at 149-50. However, this Court finds persuasive case law defining the parameters of States' sovereign immunity and interpreting the term “suit” under the Eleventh Amendment.

10 . Having failed to raise and brief the § 106 issue in his opening brief, the Appellant has abandoned this argument, and the Court will not consider or address it. Dry v. United States, 235 F.3d 1249, 1252 (10th Cir.2000); Coleman v. B-G Maint. Mgmt., 108 F.3d 1199, 1205 (10th Cir.1997); Artes-Roy v. City of Aspen, 31 F.3d 958, 960 n. 1 (10th Cir.1994).

But, we note that even if § 106(a) is a constitutional abrogation of sovereign immunity, contra Straight, 248 B.R. at 406, it probably does not apply to the Appellee, an Indian nation. That section expressly states that it applies to abrogate the sovereign immunity of "governmental units.” 11 U.S.C. § 106(a). The phrase "governmental units”—

means United States; State; Commonwealth; District; Territory; municipality; foreign state; department, agency, or instrumentality of the United States (but not a United States trustee while serving as a trustee in a case under this title), a State, a Commonwealth, a District, a Territory, a municipality, or a foreign state; or other foreign or domestic government,[.]

11 U.S.C. § 101(27) (emphasis added). Section 101(27) does not refer to Indian nations or tribes. The only portion of that section that could be said to apply to an Indian nation or tribe is its reference to a "domestic government.” While several bankruptcy courts have either expressly or impliedly held that Indian nations or tribes are “domestic governments” to which §§ 101(27) and 106 apply, see Warfield v. Navajo Nation (In re Davis Chevrolet, Inc.), 282 B.R. 674, 678 n. 2 (Bankr.D.Ariz.2002); Turning Stone Casino v. Vianese (In re Vianese), 195 B.R. 572, 575-76 (Bankr.N.D.N.Y.1995); In re Sandmar Corp. 12 B.R. 910, 916 (Bankr.D.N.M.1981), we conclude that they probably are not. Accordingly, § 106(a) likely could not abrogate Ap-pellee's immunity even if it were constitutional. See In re National Cattle Congress, 247 B.R. 259, 266-67 (Bankr.N.D.Iowa 2000). Our conclusion comports with the general proposition that Congress must make its intent to abrogate an Indian nation’s immunity clear and unequivocal, and actions against tribes cannot merely be implied. See, e.g., Santa Clara Pueblo v. Martinez, 436 U.S. 49, 58-59, 98 S.Ct. 1670, 56 L.Ed.2d 106 (1978).

11 . 476 U.S. 877, 890-91, 106 S.Ct. 2305, 90 L.Ed.2d 881 (1986).

12 . Id. (citations omitted).

13 . 523 U.S. 751, 755-56, 118 S.Ct. 1700, 140 L.Ed.2d 981 (1998).

14 .Id. (citations omitted).

15 . Three Affiliated Tribes, 476 U.S. at 890-91, 106 S.Ct. 2305 (citing Santa Clara Pueblo, 436 U.S. at 58, 98 S.Ct. 1670); see Kiowa Tribe, 523 U.S. at 754, 118 S.Ct. 1700 (“As a matter of federal law, an Indian tribe is subject to suit only where Congress has authorized the suit or the tribe has waived its immunity.”).

16 . "The Judicial power of the United States shall not be construed to extend to any suit in law or equity, commenced or prosecuted against one of the United States by citizens of another State, or by Citizens or Subjects of any Foreign State.” U.S. Const, amend. XI.

17 . Seminole Tribe v. Florida, 517 U.S. 44, 54, 116 S.Ct. 1114, 134 L.Ed.2d 252 (1996); National Cattle Congress, 247 B.R. at 269 n. 1.

18 . Dewsnup v. Timm, 502 U.S. 410, 417, 112 S.Ct. 773, 116 L.Ed.2d 903 (1992); Farrey v. Sanderfoot, 500 U.S. 291, 297, 111 S.Ct. 1825, 114 L.Ed.2d 337 (1991).

19 . See 11 U.S.C. § 524(a)(1).

20 . Id. at § 522(c)(2); Farrey, 500 U.S. at 297-98, 111 S.Ct. 1825.

21 . 11 U.S.C. § 522(f)(1).

22 . See Fed. R. Bankr.P. 4003(d) and 7001(2). All other actions that seek to avoid a lien are adversary proceedings. Cf. 11 U.S.C. §§ 544-545, 547-548, 553; Fed. R. Bank. P. 7001(2).

23 . Compare Fed. R. Bankr.P. 7001 and 7003 (requiring the filing of a complaint to commence an adversary proceeding) with Fed. R. Bankr.P. 9014 (relief in a contested matter is requested by motion).

24 . Fed. R. Bankr.P. 9014(b). Proper service of a contested matter requires that an individual be named as an agent for service of process for the Cherokee Nation. See Fed. R. Bankr.P. 7004(b)(3). Appellant failed to do this here.

25 . 9 Collier on Bankruptcy ¶ 4003.05 (15th ed. rev.2002) (footnotes omitted). See In re Coats, 232 B.R. 209, 214 (10th Cir. BAP 1999) (lien avoidance under § 522(f)(1)(A) is strictly a matter of applying the formula set forth in § 522(f)(2)).

26 . Chandler v. State of Oklahoma (In re Chandler), 251 B.R. 872, 875 (10th Cir. BAP 2000).

27 .Id.

28 . Id. (citing Seminole Tribe of Florida, 517 U.S. at 54, 116 S.Ct. 1114).

29 . Id.

30 . Id. at 876.

31 . 248 B.R. at 406.

32 . Id. at 409 n. 4.

33 . 251 B.R. at 876 (footnote omitted) (emphasis added).

34 . Fed. R. Bankr.P. 7001(2) and 4003(d).

35 . See University of Va. v. Robertson, 243 B.R. 657, 665 (W.D.Va.2000), where in the setting of an adversary proceeding involving a determination of a § 523(a)(8) hardship discharge of a student loan, the district court stated: "The decision before me means that a state may assert sovereign immunity when a debtor asks, by motion or adversary proceeding, that a federal court dispossess that state of an asset presently in its possession.”

36 . See NVR Homes, Inc. v. Clerks of the Circuit Courts (In re NVR, LP), 189 F.3d 442, 452 (4th Cir.1999), cert. denied, 528 U.S. 1117, 120 S.Ct. 936, 145 L.Ed.2d 815 (2000) (a thorough analysis of whether a judicial proceeding constitutes a suit must consider both the procedural posture and substantive nature of the proceeding); National Cattle Congress, 247 B.R. at 269 (for sovereign immunity purposes, suits are defined by looking to the essential nature and effect of the proceeding); Pitts v. Ohio Dep’t of Taxation (In re Pitts), 241 B.R. 862, 869 (Bankr.N.D.Ohio 1999) (applying a six part test to determine whether a proceeding is a suit).

37 . 189 F.3d at 452.

38 . At least two bankruptcy courts have applied sovereign immunity in a § 522(f) lien avoidance setting, assuming that such a lien avoidance action is a suit. In In re Christie, 222 B.R. 64 (Bankr.D.N.J.1998), the bankruptcy court, on a motion for reconsideration, vacated its previous order avoiding a state’s judicial lien for lack of jurisdiction, holding that the order was entered in violation of the state's sovereign immunity. The bankruptcy court assumed, without discussion, that the debtor's § 522(f) motion was a "suit” and subject to the Eleventh Amendment. Id. at 69. In Pitts, 241 B.R. at 868-69, the debtor brought an adversary complaint to discharge a tax debt and to avoid the lien created thereby under § 522(f). In applying sovereign immunity, the bankruptcy court did not mention the fact that the debtor brought its § 522(f) lien avoidance by an adversary proceeding rather than as a contested matter under Fed. R. Bankr.P. 4003(d) and 9014.

39 . 189 F.3d at 452-54 (citations omitted).

40 . 247 B.R. at 263-64.

41 . Id. at 269-71 (quoting Pennhurst State Sch. & Hosp. v. Halderman, 465 U.S. 89, 102 n. 11, 104 S.Ct. 900, 79 L.Ed.2d 67 (1984)) (emphasis added).

42 . 241 B.R. at 868-69.

43 . Id. at 869.

⁴⁴

45 . 517 U.S. at 58, 116 S.Ct. 1114.

46 . Accord Chandler, 251 B.R. at 875 (quoting Seminole Tribe and recognizing that monetary recovery against a state is not required for an action to be a suit; sovereign immunity also serves to avoid a state being subjected to the "coercive process of judicial tribunals at the instance of private parties.”).

47 . See United States v. Sec. Indus. Bank, 459 U.S. 70, 74-75, 103 S.Ct. 407, 74 L.Ed.2d 235 (1982) (§ 522(f) involves the taking of a property interest); Verba v. Ohio Cas. Ins. Co., 851 F.2d 811, 817 (6th Cir.1988) (A "judicial lien constitutes a property interest entitled to the protections of the due process clause” of the Constitution); In re Rivera, 256 B.R. 828, 833 (Bankr.M.D.Fla.2000) ("A judgment lien is a right affecting a property interest and therefore a judgment lien is a properly interest itself”).

48 . The existence of such an in rem exception is doubtful. See United States v. Nordic Village, Inc., 503 U.S. 30, 38, 112 S.Ct. 1011, 117 L.Ed.2d 181 (1992); In re Greene, 980 F.2d 590, 598 (9th Cir.1992) (Bankruptcy court jurisdiction over property of estate and adversary proceedings does not operate to pierce tribe’s immunity from suit); French v. Ga. Dep’t of Revenue (In re ABEPP Acquisition Corp.), 215 B.R. 513, 517 (6th Cir. BAP 1997).

49 . See NVR, 189 F.3d at 451 (jurisdiction over the dischargeability of debt and confirmation of a plan of reorganization derives from jurisdiction over debtors and their estates, not from jurisdiction over the state or other creditors); Maryland v. Antonelli Creditors’ Liquidating Trust, 123 F.3d 777, 786-87 (4th Cir. 1997) (determination of whether reorganization plan complied with federal law was not a suit; when defining the rights and disposition of the estate, it collaterally affects the rights of virtually every party related to the estate— even if one happens to be a state).

50 . "The substantive consideration focuses upon whether the action was, as stated by Chief Justice Marshall, 'the prosecution of some demand in a Court of justice,’ as opposed to the orderly disposition of an estate, with the states’ role limited to that of any other creditor.” NVR, 189 F.3d at 452.

51 . 501 U.S. 775, 786 n. 4, 111 S.Ct. 2578, 115 L.Ed.2d 686 (1991).

52 . 535 U.S. 613, 122 S.Ct. 1640, 152 L.Ed.2d 806 (2002).

53 . C & L Enters., Inc. v. Citizen Band Potawatomi Indian Tribe, 532 U.S. 411, 418, 121 S.Ct. 1589, 149 L.Ed.2d 623 (2001); In re White, 139 F.3d 1268, 1271 (9th Cir.1998).

54 . Big Horn County Elec. Coop., Inc. v. Adams, 219 F.3d 944, 955 (9th Cir.2000); In re White, 139 F.3d at 1272 (citing general rule that a tribe's waiver of sovereign immunity is only valid in particular proceeding in which waiver is knowingly and expressly given); Jicarilla Apache Tribe v. Hodel, 821 F.2d 537, 539 (10th Cir.1987) (Tribe’s initiation of litigation does not necessarily establish waiver with respect to related matters.).

55 . Estes v. Wyo. Dep't of Transp., 302 F.3d 1200, 1203 (10th Cir.2002) (quoting Atascadero State Hosp. v. Scanlon, 473 U.S. 234, 241, 105 S.Ct. 3142, 87 L.Ed.2d 171 (1985)).

56 . See White, 139 F.3d at 1271-72.