Sault Ste. Marie Tribe Of Chippewa Indians v. Jennifer Granholm

475 F.3d 805, 2007 U.S. App. LEXIS 1944
CourtCourt of Appeals for the Sixth Circuit
DecidedJanuary 30, 2007
Docket05-2146
StatusPublished

This text of 475 F.3d 805 (Sault Ste. Marie Tribe Of Chippewa Indians v. Jennifer Granholm) is published on Counsel Stack Legal Research, covering Court of Appeals for the Sixth Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Sault Ste. Marie Tribe Of Chippewa Indians v. Jennifer Granholm, 475 F.3d 805, 2007 U.S. App. LEXIS 1944 (6th Cir. 2007).

Opinion

475 F.3d 805

SAULT STE. MARIE TRIBE OF CHIPPEWA INDIANS, The Grand Traverse Band of Ottawa and Chippewa Indians, The Keweena Bay Indian Community, The Bay Mills Indian Community, The Lac Vieux Desert Band of Lake Superior Chippewa Indians, and The Saginaw Chippewa Tribe of Indians, Plaintiffs,
Hannahville Indian Community, Plaintiff-Appellant,
v.
Jennifer GRANHOLM, Governor, Public Officer, Successor in Interest Party, Defendant-Appellee.

No. 05-2146.

No. 05-2603.

United States Court of Appeals, Sixth Circuit.

Argued: November 2, 2006.

Decided and Filed: January 30, 2007.

ARGUED: Anthony Mancilla III, Hannahville Indian Community, Wilson, Michigan, for Appellant. Todd B. Adams, Office of the Attorney General, Lansing, Michigan, for Appellee. ON BRIEF: Anthony Mancilla III, Hannahville Indian Community, Wilson, Michigan, Paul W. Shagen, Raymond & Prokop, Sault Saint Marie, Michigan, for Appellant. Todd B. Adams, Office of the Attorney General, Lansing, Michigan, for Appellee.

Before CLAY and ROGERS, Circuit Judges; KATZ, District Judge.*

CLAY, J., delivered the opinion of the court, in which ROGERS, J., joined. KATZ, D.J. (p. 816), delivered a separate concurring opinion.

OPINION

CLAY, Circuit Judge.

Plaintiff Hannahville Indian Community ("Plaintiff Hannahville") appeals the district court's grant of a Motion to Enforce Stipulation and Consent Judgment in favor of the Governor of the State of Michigan ("Defendant") pursuant to Fed.R.Civ.P. 7 and 54. For the reasons set forth below, we REVERSE the district court's decision and REMAND to the district court to resolve ambiguous terms in the Stipulation and Consent Judgment with the aid of extrinsic evidence.

BACKGROUND

I. Factual History

On October 17, 1988, the Indian Gaming Regulatory Act ("IGRA"), 25 U.S.C. § 2701 et seq., was signed into law. The purpose of the IGRA was to "provide a statutory basis for the operation of gaming by Indian tribes as a means of promoting tribal economic development, self-sufficiency, and strong tribal governments." 25 U.S.C. § 2702(1). Almost immediately after the passage of the Act, Plaintiffs Hannahville, Sault Ste. Marie Tribe of Chippewa Indians, the Grand Traverse Band of Ottawa and Chippewa Indians, the Keweena Bay Indian Community, the Bay Mills Indian Community, the Lac Vieux Desert Band of Lake Superior Chippewa Indians, and the Saginaw Chippewa Tribe of Indians (collectively "the Tribes") began engaging in negotiations with Defendant to enter into an agreement that would govern the operation of class III games ("slot machines") on the Tribes' native lands. Disagreements about the scope of the IGRA led to a breakdown in these negotiations and subsequently to a suit filed in the district court by the Tribes alleging that Defendant refused to negotiate gaming compacts as was required by the IGRA. On August 20, 1993, the parties reached an agreement with respect to that claim, which was memorialized in a Stipulation and incorporated into a Consent Judgment.

The Stipulation and Consent Judgment set forth guidelines as to how the Tribes would operate their Michigan casinos. The district court retained jurisdiction to enforce the Consent Judgment. One of the terms of the Consent Judgment was that the Tribes agreed to "make semiannual payments to any local unit of state government in the immediate vicinity of each tribal casino in the aggregate amount equal to two percent (2%) of the net win at each casino derived from all class III electronic games of chance." (J.A. at 76-77). The term "net win" was defined in the Stipulation. Specifically it stated: "`[n]et win' is defined as the total amount wagered on each electronic game of chance, minus the total amount paid to players for winning wagers at said machines." (J.A. at 69).

Plaintiff Hannahville owns and operates the Island Resort and Casino ("the Island Casino") in Harris, Michigan. Around 1998, the Island Casino began producing and distributing promotional tokens to customers, which were good for a free play on the promotional slot machines. The tokens, called QuickSilver tokens, were given out to customers completely free of charge. Such "comps" are standard at casinos and are often used for marketing and promotional purposes. The QuickSilver tokens could only be used while playing the QuickSilver slot machines. The QuickSilver machines accepted only those tokens, and the tokens themselves could not be redeemed for real money. The QuickSilver machines did, however, pay out in real money: One "credit" on a QuickSilver machine was denoted as a quarter, and the machines paid quarters to patrons when they won.

While the tokens were not redeemable for cash, there was some discrepancy with respect to how they were valued. In its Daily Revenue Report, which was an internal record kept to keep track of the casinos profits and losses, Plaintiff Hannahville valued QuickSilver tokens at twenty-five cents. Further, the Island Casino advertised their distribution of comps, and afforded them a dollar value in those ads, though there is some discrepancy as to whether those ads were referring to QuickSilver tokens or some other promotional wager program at the casino.

At the time Plaintiffs and Defendant entered into the Consent Judgment, the Island Casino had no promotional wagering programs in place, and accordingly, the Consent Judgment made no mention of how the casino should calculate net win with respect to promotional wagers. According to the Stipulation and Consent Judgment, the Island Casino is required to pay 2% of its net win to Defendant. A dispute arose over how to value the promotional tokens when calculating net win. Defendant argued that they should be valued at twenty-five cents, but Plaintiff Hannahville decided that the tokens should be valued as a zero cent wager. However, because the QuickSilver machines paid out in quarters, the money won by patrons on these machines was reflected in the net win calculus. The effect was that the QuickSilver machines consistently showed no money being wagered, but money being paid out. Thus, Plaintiff Hannahville's practice of assigning the tokens a zero cent value resulted in these machines necessarily producing a net loss. Because net wins are calculated across the entire floor of a casino and not on a machine by machine basis, this method of calculation lowered the Island Casino's overall profits and, accordingly, it lowered the amount Plaintiff Hannahville was required to pay Defendant.

II. Procedural History

Defendant filed a Motion to Enforce the Stipulation and Consent Judgment on January 25, 2005. There were originally three issues Defendant raised in the motion: "1) the calculation of `net win' from promotional wagers (which is the issue currently before this Court); 2) the inclusion of expenses from wide area progressive slot machines in the net win calculation; and 3) the process by which Plaintiff Hannahville distributes 2% of the net win to local units of state government." (J.A. at 78).

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475 F.3d 805, 2007 U.S. App. LEXIS 1944, Counsel Stack Legal Research, https://law.counselstack.com/opinion/sault-ste-marie-tribe-of-chippewa-indians-v-jennifer-granholm-ca6-2007.