Koppers Co. v. Aetna Casualty & Surety Co. , 158 F.3d 170 ( 1998 )


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  •                                                                                                                            Opinions of the United
    1998 Decisions                                                                                                             States Court of Appeals
    for the Third Circuit
    7-22-1998
    Koppers Co Inc v. Aetna Cslty & Surety
    Precedential or Non-Precedential:
    Docket 97-3432
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    Recommended Citation
    "Koppers Co Inc v. Aetna Cslty & Surety" (1998). 1998 Decisions. Paper 167.
    http://digitalcommons.law.villanova.edu/thirdcircuit_1998/167
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    Filed July 22, 1998
    UNITED STATES COURT OF APPEALS
    FOR THE THIRD CIRCUIT
    No. 97-3432
    KOPPERS COMPANY, INC.,
    Appellant
    v.
    THE AETNA CASUALTY AND SURETY COMPANY; ZURICH
    INSURANCE COMPANY; THE TRAVELERS INDEMNITY
    CO.; THE AMERICAN HOME ASSURANCE COMPANY;
    COMMERCIAL UNION INSURANCE COMPANY; THE
    HOME INSURANCE COMPANY; UNDERWRITERS AT
    LLOYD'S OF LONDON
    On Appeal from the United States District Court
    for the Western District of Pennsylvania
    (D.C. No. 85-cv-02136)
    Argued, Monday, April 27, 1998
    BEFORE: ALITO, RENDELL and GARTH, Circuit Judges
    (OPINION FILED AS A NOT-FOR-PUBLICATION
    OPINION ON JULY 22, 1998)
    Joseph W. Montgomery, III (Argued)
    Jones, Day, Reavis & Pogue
    500 Grant Street - 31st Floor
    Pittsburgh, PA 15219
    Attorneys for Appellant
    Hershel J. Richman
    Jennifer R. Clarke
    Fred H. Nemeth
    Dechert, Price & Rhoads
    1717 Arch Street
    4000 Bell Atlantic Tower
    Philadelphia, PA 19103
    Peter M. Page
    Kathleen A. McQueeny
    Brian D. Bossert
    Blatt, Hammesfahr & Eaton
    333 West Wacker Drive, Suite 1900
    Chicago, IL 60606
    Martin R. Baach
    Bruce R. Grace (Argued)
    Duane K. Thompson
    Baach, Robinson & Lewis
    One Thomas Circle, Suite 200
    Washington, DC 20005-5803
    Attorneys for Appellee,
    Underwriters at Lloyd's of London
    OPINION OF THE COURT
    GARTH, Circuit Judge.
    The issue we must decide in this appeal is whether an
    excess insurer (here, INA) was an indispensable party
    under Rule 19(b) of the Federal Rules of Civil Procedure so
    as to cause the dismissal of certain of the Appellant's
    claims when INA was not joined in this action against
    various other excess insurers. We hold that INA was not an
    indispensable party and accordingly that the claims should
    not have been dismissed. We therefore reverse.
    I.
    Appellant Koppers Company, Inc. ("Koppers") appeals the
    district court's dismissal of its claims against Appellees,
    certain underwriters from Lloyd's of London and certain
    2
    London market insurance companies (hereinafter, "the
    London Insurers"), pertaining to seven (7) insurance
    policies that the London Insurers issued to Koppers to
    provide coverage for various environmental property
    damages that occurred from 1960-65 (hereinafter, "the
    1960-65 policies"). The district court dismissed the claims
    relating to these policies because Koppers failed to join two
    other insurers -- Indemnity Insurance of North America
    and Insurance Company of North America (collectively,
    "INA") -- as indispensable parties pursuant to Rule 19(b) of
    the Federal Rules of Civil Procedure.
    II.
    As we have set forth the facts of the underlying dispute
    in an earlier opinion, see Koppers Co., Inc. v. Aetna Cas. &
    Sur. Co., 
    98 F.3d 1440
    , 1444 (3d Cir. 1996), we recite only
    the facts pertinent to the issues before us here.
    Koppers is a large manufacturing company based in
    Pittsburgh, Pennsylvania. In the 1980s, federal and state
    agencies brought claims against Koppers based on
    environmental contamination at approximately 150 plant
    and disposal sites. Although Koppers had purchased
    insurance from several insurance companies, all of the
    insurers initially denied coverage for these claims when
    Koppers sought indemnification. Accordingly, in 1985,
    Koppers sued its two (2) primary comprehensive insurers
    for breach of contract in federal court, based upon diversity
    of citizenship.
    In 1988, Koppers amended its complaint to sue other
    primary insurers and several excess insurers. Excess
    insurers -- such as the London Insurers in this case -- are
    insurers who contract to provide coverage only when the
    amount of the claim is beyond that of a primary insurer. In
    amending its complaint, however, Koppers decided not to
    sue INA (an excess insurer) because INA is a Pennsylvania
    company and joining it to the instant action would have
    defeated complete diversity. Thus, instead of suing INA in a
    3
    federal forum, Koppers initiated suit in Pennsylvania state
    court over the same insurance claims.1
    In July 1994, the London Insurers filed a Motion to
    Dismiss claims pertaining to the 1960-65 policies because
    Koppers failed to join INA pursuant to Rule 19 of the
    Federal Rules of Civil Procedure. The London Insurers
    claimed that the relationship between the coverage that
    they provided and the coverage that INA provided
    concerning the 1960-65 policies made INA an indispensable
    party to the federal suit.
    On October 20, 1994, without comment, the district
    court granted the London Insurers' Motion to Dismiss.
    Koppers filed a Motion for Reconsideration, but the district
    court denied that motion on March 24, 1995. As a result,
    Koppers brought suit against the London Insurers relating
    to the 1960-65 policies by adding them as defendants in
    the state court action against INA.
    After the initial dismissal of Koppers' claims against the
    London Insurers pertaining to the 1960-65 policies, all of
    the defendant insurers except for the London Insurers
    settled with Koppers before trial. Thus, following the
    dismissal and settlement, the only remaining claims in the
    case were those against the London Insurers for the period
    from the 1940s to 1959 and 1966 to the 1970s. See
    
    Koppers, 98 F.3d at 1444
    .
    In April-May 1995, the district court conducted a trial
    over Koppers' claims against the remaining defendants (the
    London Insurers) but the court limited the scope of that
    trial to policies that provided coverage from late 1953 until
    January 1960. The district court further limited the scope
    of the trial to only eighteen of the contaminated sites.
    Following a three week trial, the jury awarded Koppers $70
    million. See id.
    _________________________________________________________________
    1. During the period in question, Koppers' primary insurance carrier was
    Aetna which was liable for $50,000 for each occurrence. As an excess
    carrier, INA then became liable for $1,000,000 per occurrence. The
    London Insurers thus became liable for amounts in excess of
    $1,050,000.
    4
    On July 20, 1995, pursuant to Rule 54(b), the district
    court certified as final for interlocutory appeal the part of
    its judgment relating to the claims litigated at the jury trial,
    noted above. Although Koppers cross-appealed, it did not
    challenge the district court's decision to dismiss the 1960-
    65 policy claims against the London Insurers.
    On appeal, in reversing the district court's method of
    apportioning liability, we commented that
    the district court would not need to determine whether
    the non-settling pre-1971 policies were triggered
    because the London Insurers concede -- against their
    interests -- that all of Koppers' policies up to 1971 (the
    date from which pollution exclusion clauses have
    appeared in all the policies) were triggered.
    
    Id. at 1456.
    In addition, in a footnote, we suggested that
    INA was not a necessary party for a proper adjudication of
    the claims involved in this dispute:
    We recognize that some of Koppers' insurers are not
    part of this action because they are non-diverse with
    the plaintiff. Under [Gould Inc. v. Continental Gas, 
    585 A.2d 16
    (Pa. Super. Ct. 1991)], however, these insurers
    need not participate in the case in order for the district
    court to determine their apportioned shares of liability
    for purposes of reducing the judgment against the
    London Insurers. 
    See 585 A.2d at 19
    (stating that
    court need only look at policies' terms and limits). Of
    course, any determination that these policies were
    triggered would not be binding or preclusive against
    the absent insurers in future litigation because they
    are not parties here. We note also that the London
    Insurers' interests are aligned with those of the absent
    insurers: each would like to prove that the absent
    insurers' policies were not triggered. For the London
    Insurers, such a determination would increase the
    settling insurers' shares (thereby decreasing the
    London Insurers' liability), and the absent insurers
    would naturally like to avoid a determination of liability
    in the first place.
    
    Id. n.21. 5
    Prompted by our intimation that INA was not an
    indispensable party, Koppers moved to reinstate the
    dismissed claims pertaining to the 1960-65 policies.
    Essentially, then, Koppers requested the district court to
    reconsider its earlier decision which had dismissed the
    claims pertaining to the 1960-65 policies on the grounds
    that INA was an indispensable party. On June 10, 1997,
    the district court denied this motion from the bench, ruling:
    I think that's the law of the case[.] It could have been
    appealed at the time the rest of this case went up and
    therefore, I'm going to deny the motion to reinstate any
    claims. I'm not going to listen to any arguments, I'm
    just going to just deny it.
    Tr. June 10, 1997, at 2.
    Thereafter, Koppers moved for certification under Rule
    54(b). Complying with the requirements set forth in Allis-
    Chalmers Corp. v. Philadelphia Elec. Co., 
    521 F.2d 360
    (3d
    Cir. 1975), the district court granted that motion on July
    15, 1997, and at the same time formally denied Koppers'
    Motion to Reinstate the claims that had been dismissed.
    III.
    As a threshold matter, we must address a motion by the
    London Insurers urging this Court to dismiss the instant
    appeal for lack of appellate jurisdiction.
    The London Insurers contend that the dismissal of the
    1960-65 claims ("the dismissal order") becamefinal and
    appealable when the district court entered a final judgment
    over the litigated claims on July 20, 1995. The London
    Insurers claim that the dismissal order merged with the
    final judgment at that time. Thus, they argue that Koppers
    should have appealed the dismissal order then, and by
    failing to do so, Koppers waived its right to appeal that
    dismissal at the present time.
    Koppers counters that this Court does have appellate
    jurisdiction as there was no appealable order concerning
    the dismissal of the 1960-65 policies until the district court
    certified this issue under Rule 54(b). Koppers points out
    that the appeal of the July 20, 1995 judgment concerned
    6
    different policies than those at issue here as the present
    appeal specifically addresses the dismissed claims.
    Furthermore, Koppers argues that as there is still no final
    judgment over all of the claims in the instant case, the
    "merger rule" does not apply.2 We agree.
    Rule 54(b) provides:
    When more than one claim for relief is presented in an
    action, whether as a claim, counterclaim, cross-claim,
    or third-party claim, or when multiple parties are
    involved, the court may direct the entry of a final
    judgment as to one or more but fewer than all of the
    claims or parties only upon an express determination
    that there is no just reason for delay and upon an
    express direction for the entry of judgment. In the
    absence of such determination and direction, any order
    or other form of decision, however designated, which
    adjudicates fewer than all the claims or the rights and
    liabilities of fewer than all the parties shall not
    terminate the action as to any of the claims or parties,
    and the order or other form of decision is subject to
    revision at any time before the entry of judgment
    adjudicating all the claims and the rights and liabilities
    of all the parties.
    Fed. R. Civ. P. 54(b) (emphasis added). As the Rule 54(b)
    certification pertaining to the July 20, 1995 order did not
    encompass the claims involving the 1960-65 policies, the
    Rule 54(b) certification did not -- indeed, could not --
    implicate those claims.3 Contrary to what the London
    Insurers argue, there was no final order from which
    Koppers could have appealed. Thus, Koppers did not waive
    its right to appeal this issue.
    _________________________________________________________________
    2. Under the "merger rule," prior interlocutory orders merge with the
    final judgment in a case, and the interlocutory orders (to the extent that
    they affect the final judgment) may be reviewed on appeal from the final
    order. See In re Westinghouse Sec. Litig., 
    90 F.3d 696
    , 706 (3d Cir.
    1996).
    3. The July 20, 1995 order concerned only eighteen (18) sites and
    insurance policies providing coverage from 1953-60. See Order July 20,
    1995 at 2-4.
    7
    The London Insurers have not brought to the Court's
    attention nor have we found any cases that have held that
    a district court could not enter a Rule 54(b) certification
    under delayed circumstances such as those present in this
    matter. Accordingly, we conclude that this Court has
    appellate jurisdiction over the instant matter.4
    Accordingly, we now address the merits of the dispute at
    hand -- whether, in fact, INA was an indispensable party
    under Rule 19(b) of the Federal Rules of Civil Procedure.5
    We exercise plenary review over a district court's
    determination that a party's joinder is necessary under
    Rule 19(a). See Janney Montgomery Scott, Inc. v. Shepard
    Niles, Inc., 
    11 F.3d 399
    , 404 (3d Cir. 1993). We review a
    district court's ruling that a party is indispensable under
    Rule 19(b), however, for abuse of discretion. See 
    id. at 403.
    IV.
    The London Insurers contend that INA is a necessary
    (and indispensable) party and thus that the district court
    properly dismissed the claims pertaining to the 1960-65
    policies. The London Insurers claim that they cannot be
    held liable to pay on their excess policies unless and until
    _________________________________________________________________
    4. Along the same lines, the London Insurers also argue that because
    Koppers failed to appeal the district court's dismissal of the claims
    pertaining to the 1960-65 policies, Koppers did not preserve this issue
    and the district court's dismissal became the law of the case. This
    argument fails for the very reasons that we conclude that this Court has
    appellate jurisdiction. As the initial Rule 54(b) certification did not
    encompass the dismissal of the claims pertaining to the 1960-65 policies,
    Koppers could not have raised this issue in the prior appeal. Cf. United
    States v. U.S. Smelting Co., 
    339 U.S. 186
    , 198-99 (1950) (holding that
    the law of the case did not bar appeal despite party's failure to raise
    issue in a prior interlocutory appeal, although party could have raised
    issue in that prior appeal). Moreover, the district court's reference to
    "law
    of the case" cannot bind this Court on appeal. See Messenger v.
    Anderson, 
    225 U.S. 436
    , 444 (1912).
    5. In response to the London Insurers' Motion to Dismiss for lack of
    appellate jurisdiction, Koppers filed a Motion for Attorneys' Fees and
    Costs incurred in opposing that motion in this Court. Koppers has not
    furnished us with a basis for granting its motion for fees and costs. We
    will therefore deny Koppers' motion.
    8
    the underlying insurers -- including INA -- have paid or
    have been held liable to pay the full amount of their
    underlying policies. The London Insurers submit that their
    policies are "directly excess to [the INA policies] and
    contingent upon their liability under them," Appellee's Br.
    at 20, and that payment or liability under the underlying
    policies is a condition precedent to any obligations that the
    London Insurers might incur. In support, the London
    Insurers point to the following passage quoted from the
    issued policies:
    [L]iability shall attach to the Underwriters only after
    the Underlying Umbrella Insurers have paid or have
    been held liable to pay the full amount of their
    respective ultimate net loss liability . . . .
    App. 343 (Policy No. 60/473/3 at 1). Thus, the London
    Insurers maintain that the district court could not impose
    liability upon them without INA being a party to the
    litigation at hand. The London Insurers rely upon City of
    Littleton v. Commercial Union Assurance Company, 
    133 F.R.D. 159
    (D. Colo. 1990) (holding that absent primary
    insurers were indispensable parties when defendant excess
    insurers' policies were dependent upon whether the
    primary insurers' policies provided coverage), in support of
    their argument that underlying insurers are indispensable
    parties in cases involving excess insurers.
    In response, Koppers asserts that the district court erred
    in determining that INA was an indispensable party under
    Rule 19(b) because INA is not, in fact, a necessary party
    under Rule 19(a). See Janney Montgomery Scott, Inc. v.
    Shepard Niles, Inc., 
    11 F.3d 399
    , 405 (3d Cir. 1993) (stating
    that a court's determination that a party is necessary is a
    "necessary predicate" to its determination that a party is
    indispensable). Contrary to the London Insurers' position,
    Koppers claims that the London Insurers' policies are not
    contingent upon nor dependent upon INA's obligations
    under its insurance policies, as the London Insurers'
    policies do not incorporate the terms of INA's policies and
    do not make the London Insurers' obligations to pay
    contingent upon whether INA pays its claims. Indeed,
    Koppers argues that the plain language of the policies
    establishes that the London Insurers' liability is
    9
    independent from any liability incurred by INA. To the
    extent that the London Insurers assert otherwise, Koppers
    submits that the London Insurers improperly rely upon
    cover notes rather than provisions in actual policies.6
    Koppers also claims that INA's policy is not an
    "Underlying Umbrella Policy" and is not identified as such,
    so that the London Insurers' obligations are not dependent
    upon nor contingent upon INA's policy being paid. Rather,
    Koppers argues that the London Insurers' policies provide
    coverage only in excess of what is provided by INA's
    policies. As a result, Koppers contends that INA is not a
    necessary nor an indispensable party to the instant
    dispute, as the London Insurers' obligations can be
    determined fairly and properly without INA being a party.
    Indeed, Koppers points to this Court's earlier observation
    that the district court could determine the scope of the
    London Insurers' liability without INA being a party to the
    instant litigation. See 
    Koppers, 98 F.3d at 1456
    n.21.
    Accordingly, Koppers argues that complete relief can be
    granted in INA's absence, INA will not be prejudiced by the
    adjudication of the present matter, and that the London
    Insurers run no risk of incurring multiple or inconsistent
    obligations as a result of INA's absence.
    Subsection (a) of Rule 197 addresses the issue of whether
    _________________________________________________________________
    6. Cover notes are documents that a broker issues to an insured to
    notify the insured that an insurance policy has been obtained as is in
    effect. See Decl. Michael Jackson at 3 (P 6). As the cover note is not
    issued by the insurers but rather by an insurance broker, "insurers in
    the London Market typically do not recognize a cover note as binding
    upon them." 
    Id. 7. Rule
    19 governs the joinder of parties. It provides:
    (a) Persons to be Joined if Feasible. A person who is subject to
    service of process and whose joinder will not deprive the court of
    jurisdiction over the subject matter of the action shall be joined
    as
    a party in the action if (1) in the person's absence complete
    relief
    cannot be accorded among those already parties, or (2) the person
    claims an interest relating to the subject of the action and is so
    situated that the disposition of the action in the person's absence
    may (i) as a practical matter impair or impede the person's ability
    to
    protect that interest or (ii) leave any of the persons already
    parties
    10
    a party should be joined as a "necessary" party. See
    
    Janney, 11 F.3d at 404
    . Subsection (b) concerns the issue
    of whether a party is an "indispensable" party. In reviewing
    a district court's determination pursuant to Rule 19, we
    must first determine whether a party is a necessary party
    to the dispute. See 
    id. If the
    party is determined to be a
    necessary party but cannot be joined because such joinder
    would defeat diversity, it must then be determined whether
    the absent party is an indispensable party. See 
    id. Rule 19(a)
    states that a party is necessary if either (1) the
    present parties will be denied complete relief in the absence
    of the party to be joined, or (2) the absent party will suffer
    some loss or be put at risk of suffering such a loss if not
    joined. As Rule 19(a) is stated in the disjunctive, if either
    subsection is satisfied, the absent party is a necessary
    party that should be joined if possible. Under Rule 19(a)(1),
    we first address whether the parties can be afforded
    complete relief in the absence of the non-joined party. We
    hold that they can.
    _________________________________________________________________
    subject to a substantial risk of incurring double, multiple, or
    otherwise inconsistent obligations by reason of the claimed
    interest.
    If the person has not been so joined, the court shall order that
    the
    person be made a party. If the person should join as a plaintiff
    but
    refuses to do so, the person may be made a defendant, or, in a
    proper case, an involuntary plaintiff. If the joined party objects
    to
    venue and joinder of that party would render the venue of the
    action
    improper, that party shall be dismissed from the action.
    (b) Determination by Court Whenever Joinder not Feasible. If a
    person as described in subdivision (a)(1)-(2) hereof cannot be made
    a party, the court shall determine whether in equity and good
    conscience the action should proceed among the parties before it,
    or
    should be dismissed, the absent person being thus regarded as
    indispensable. The factors to be considered by the court include:
    first, to what extent a judgment rendered in the person's absence
    might be prejudicial to the person or those already parties;
    second,
    the extent to which, by protective provisions in the judgment, by
    the
    shaping of relief, or other measures, the prejudice can be lessened
    or avoided; third, whether a judgment rendered in the person's
    absence will be adequate; fourth, whether the plaintiff will have
    an
    adequate remedy if the action is dismissed for nonjoinder.
    Fed. R. Civ. P. 19 (West 1998).
    11
    In order to determine whether the parties can be afforded
    complete relief in the absence of INA, we turn to the
    contract provisions which governed the 1960-65 policies.
    Policy No. 60/473/2 is the "Umbrella Policy" upon which all
    of the disputed policies at issue rely to define the scope and
    the terms of the London Insurers coverage and liability. See
    Decl. Michael Jackson at 4-7. Policy No. 60/473/2
    explicitly provides:
    Nothing herein shall be construed to make this policy
    subject to the terms, conditions, and limitations of
    other insurance.
    App. 275 (Condition L). In addition, Policy No. 60/473/2
    states:
    It is a condition of this policy that the policy or policies
    referred to in the attached "Schedule of Underlying
    Insurance" shall be maintained in full effect during the
    currency of this policy except for any reduction of the
    aggregate limit or limits contained therein solely by
    payment of claims in respect of accidents and/or
    occurrences occurring during the period of this policy.
    Failure of the Assured to comply with the foregoing shall
    not invalidate this policy but in the event of such failure,
    the Underwriters shall only be liable to the same extent
    as they would have been had the Assured complied
    with the said condition.
    App. 276 (Condition S) (emphasis added). Moreover, the
    loss payable clause of Policy No. 60/473/2 reads, in
    pertinent part:
    Liability under this policy with respect to any
    occurrence shall not attach unless and until the
    Assured, or the Assured's underlying insurer, shall
    have paid the amount of the underlying limits on
    account of such occurrence.
    App. 274 (Condition J) (emphasis added).
    Our reading of the Koppers' policies requires a total of
    $1,050,000 to be paid by either Koppers or its underlying
    insurance carrier -- in this case Aetna and INA-- before
    any liability of the London Insurers is triggered. Our
    understanding in this respect is that the London Insurers'
    12
    excess policy has, in effect, a $1,050,000 deductible
    amount before any payment must be made pursuant to the
    policy's terms. We thus conclude that insofar as liability
    under the London Policies is concerned, complete relief can
    be accorded to the parties present to this litigation without
    the joinder of INA. Accordingly, we hold that INA is not a
    necessary party under Rule 19(a)(1). In addition to the fact
    that complete relief is available, INA's ability to protect its
    interests will not be impaired or impeded by the disposition
    of the action in its absence. See Fed. R. Civ. P. 19(a)(1)(i).
    By the same token, under Rule 19(a)(2)(ii), the London
    Insurers face no risk of multiple or otherwise inconsistent
    obligations as a result of INA's absence from this action.
    As we noted above, the Limits of Liability section of Policy
    No. 60/473/2 provides that liability does not attach to the
    London Insurers unless a claim exceeds at least
    $1,050,000. This provision underscores the independence
    between any liability that the London Insurers have under
    their policies and any liability that may result from INA's
    own policy coverage. To the extent that the London Insurers
    rely upon the cover notes to "stand as clear evidence of the
    fundamental structure" of the insurance coverage provided
    by the respective excess insurance policies, such reliance is
    misplaced.8 Appellee's Br. at 23. By their own terms, the
    cover notes became void when the actual insurance policies
    were issued. See App. 37 ("This cover note shall be
    automatically terminated and voided by delivery of policy or
    certificate of insurance to the Assured.")
    As we have concluded that INA is not a necessary party
    under Rule 19(a), INA cannot be an indispensable party
    under Rule 19(b). See 
    Janney, 11 F.3d at 405
    . Accordingly,
    the district court erred in dismissing Koppers' claims
    pertaining to the 1960-65 policies for failure to join INA as
    an indispensable party.9
    _________________________________________________________________
    8. We note that under Pennsylvania law, if the language of an insurance
    policy is ambiguous, the ambiguous language is construed against the
    drafter. See Board of Pub. Educ. v. National Union Fire Ins. Co., 
    709 A.2d 910
    , 
    1998 WL 111558
    , at 2 (Pa. Super. Ct. Mar. 16, 1998).
    9. We have considered the following issues that the London Insurers
    have raised on appeal and have found them to be without merit: the risk
    13
    V.
    In sum, as we conclude that INA is not a necessary and
    therefore not an indispensable party to the instant action,
    we will reverse the district court's dismissal of Koppers'
    claims relating to the 1960-65 policies and remand for
    further appropriate proceedings.
    A True Copy:
    Teste:
    Clerk of the United States Court of Appeals
    for the Third Circuit
    _________________________________________________________________
    of duplicative litigation over identical issues in both state and federal
    fora; reinstating the 1960-65 policy claims weighs against judicial
    economy as INA policies would have to be analyzed in both state and
    federal courts; the district court cannot grant complete relief because it
    has no jurisdiction over INA; this Court should affirm under the doctrine
    of Wilton v. Seven Falls, 
    515 U.S. 277
    (1995) (holding that a
    discretionary standard governs a district court's decision to stay a
    federal declaratory judgment action during the pendency of parallel state
    court proceedings).
    14