This appeal concerns the disposition of unclaimed funds from a class action settlement. The plaintiffs and defendants settled the underlying antitrust claims, and funds from the settlement were allocated to various identified members of the plaintiff class. The settlement administrator sent checks to the last known addresses of plaintiffs, but many were returned as undeliverable or were never cashed. The district court invoked the doctrine of cy pres and ordered that all unclaimed funds be distributed to the Center for Energy and Environmental Resources at the University of Texas (“Center”). The State of Texas (“Texas” or “State”) intervened seeking to enforce its right to custody of and investment income from unclaimed funds that had been allocated to plaintiffs with last known addresses in Texas. Texas and the Appellees filed cross-motions for summary judgment. The district court granted the Appellees’ motion for summary judgment, denied the State’s, and ordered that the funds allocated to Texas plaintiffs be returned to the fund subject to cy pres distribution. Texas appeals. For the reasons below, we REVERSE and VACATE the judgment of the district court and REMAND for further proceedings in accordance with this opinion.
I
Many of the details of this case can be found in
In re Lease Oil Antitrust Litigation,
Unable to distribute the funds to their rightful ownеrs, the district court decided instead to distribute those funds by
cy pres
order to the Center. After the district com't approved the
cy pres
distribution, Texas filed a motion to intervene and a motion to reconsider. Texas asserted that, under the State’s unclaimed property laws, it had a right to custody of the funds allocated to individuals with last known addresses in Texas, as well as a property right to investment income from those funds. The district court denied the motions, concluding that Texas’s intervention was untimely. Anticipating an appeal, however, the district court ordered that the funds allocated to plaintiffs with last known addresses in Texas be placed in a separate account pending the resolution of Texas’s claims. Texas appealed the denial of its motion to intervene. We concluded that Texas’s motions were timely and that it had met the requirements for intervention as of right. We therefore reversed the denial of intervention and remanded for further proceedings.
Lease Oil,
Upon remand, Texas sought custody of the disputed funds. Texas and the Appеllees filed cross-motions for summary judgment. The district court granted judgment in favor of the Appellees, concluding that the court was permitted to dispose of the funds via cy pres, regardless of the terms of the State’s unclaimed property statutes. It granted summary judgment to the Appellees, denied summary judgment to Texas, and ordered that the funds the prior order had set aside be returned to the general unclaimed funds account. Texas now appeals.
II
Texas argues that the disposition of the unсlaimed funds allocated to Texas plaintiffs should have been governed by the Texas Unclaimed Property Act (“Unclaimed Property Act” or “Act”), Tex. Prop. Code Ann. §§ 72.001-74.710. Although the Appellees ultimately contend that state law should not control the disposition of the funds, they argue, in the alternative, that the Unclaimed Property Act does not reach funds held by the settlement administrator in a class action case in federal court. Because Texas’s interest in the funds is premised on the applicability of the Act, we consider this issue first.
Texas argues that, under the Act, the disputed funds are “property that is presumed abandoned” and therefore the “holder” of the funds must provide them to the Texas comptroller (“Comptroller”). Tex. Prop.Code Ann. § 74.301. The Comptroller is then empowered to invest the unclaimed funds, with any resulting income to be allocated to the State. Tex. Prop.Code Ann. § 74.601(b)(4), (d). At any time, however, the rightful owner of the unclaimed funds may file a claim with the Comptroller, аnd the Comptroller is instructed to pay all valid claims. Tex. Prop. Code Ann. § 74.501(b). For the purposes of the Act, the holder is the person who is “(1) in possession of property that belongs to another; (2) a trustee; or (3) indebted to another on an obligation.” § 72.001(e). Texas argues that the holder of the funds it seeks is the settlement administrator. The Appellees seemingly concede that the settlement administrator fits the statutory definition provided for the holder of unclaimed funds, but argue that, because the settlement administrator is merely carrying out the orders of the district court, we should proceed as if the district court is the holder. The Appellees then argue that a federal district court cannot be a holder *332 under the Act, and therefore the Act does not apply.
The Appellees’ argument is without merit. The settlement administrator is plainly a holder, as that term is defined under the Act, because the settlement administrator is “in possession of property that belongs to another.”
Id.
The Appellees have, moreover, identified nо exception on the face of the Act that is applicable to the settlement administrator. We will not engage in far-ranging discussion regarding the applicability of the Act to funds held directly by a district court, based merely on the speculation that the district court could, in the words of the Appellees, “order[ ] the funds to be deposited into the registry of the court tomorrow.” Appellees’ Br. at 41. The funds are in the possession of the settlement administrator, and the settlement administrator fits the Act’s definition of “holder.” The Act applies.
Cf. State v. Snell,
Ill
The State argues that the Unclaimed Property Act is substantive state law that does not conflict with federal law, and therefore the settlement administrator should comply with the terms of the Act and the district court cannot order the funds to be otherwise distributed via the doctrine of cy pres. 1 The Appellees counter that settlements binding members of a plaintiff class are governed by Rule 23(e) of the Federal Rules of Civil Procedure, and that Rule 23(e) grants the district court broad discretion to approve settlement terms. The Appellees note that the original settlement agreements in this case reserved the district court’s authority to approve the eventual method for distributing any unclaimed funds, and therefore argue that the eventual use of cy pres fell within the scope of its broad discretion of Rule 23(e).
When the original settlement agreements were approved in 1999, Rule 23(e) consisted of little more than a straightforward requirement that a class action settlement be made pursuant to judicial approval and notice to the class: “A class action shall not be dismissed or compromised without the approval of the court, and notice of the proposed dismissal or compromise shall be given to all members of the class in such manner as the court directs.” Fed.R.CivP. 23(e) (1999). When the district court first ordered
cy pres
distribution, Rule 23(e) had been substantially amended to “strengthen the process of reviewing proposed class-action settlements” in order “to assure adequate representation of class members who have not participated in shaping the settlement.” Fed.R.CivP. 23(e), 2003 advisory committee’s note. Both Texas and the Appellees have proceeded, before us, as if the amended version applies in this case. We will therefore assume, without deciding, that the posb-2003 version of the Rule is the relevant one for our analysis. In any event, although the new version of the Rule includes additional procedures, the fundamental role of the district court is largely the same: review and, if appropriate, approval of the settlement reached by
*333
the parties.
See In re Katrina Canal Breaches Litig.,
The background principles governing whether courts should apply state or federal law cаn be found in
Erie Railroad Co. v. Tompkins,
The Supreme Court has never determined whether Rule 23(e) permits a district court to disregard state unclaimed property laws. The Court has, however, considered the effect of other provisions of Rule 23 on stаte laws. In
Shady Grove Orthopedic Associates, P.A. v. Allstate Insurance Co.,
the Court concluded that a New York law prohibiting class actions in suits seeking penalties or statutory minimum damages conflicted with Rule 23(a)-(b), which provides that a class action “may be maintained” if certain requirements — none of which bar penalties or statutory damages — are met.
Allstate asserts that Rule 23 neither explicitly nor implicitly empowers a federal court “to certify a class in each and every case” where the Rule’s criteria are met. But that is exactly what Rule 23 does: It says that if the prescribed preconditions are satisfied “[a] class action may be maintained” (emphasis added) — not “a class action may be permitted.” Courts do not maintain actions; litigants do. The discretion suggested by Rule 23’s “may” is discretion residing in the plaintiff: He may bring his claim in a class action if he wishes.
Id. at 1438 (citation omitted). Because Rule 23 required a district court to authorize suits that the New York statute forbade, the Court concluded that the two laws were in inescapable conflict. Id. at 1442.
Rule 23(e), in contrast, contains no categorical rule entitling plaintiffs to
cy pres
distribution — and, in fact, does not mention
cy pres
distribution at all. Appellees argue instead that the Unclaimed Property Act collides with Rule 23(e) by reducing the sсope of a district court’s
*334
discretion to approve a settlement. The Appellees rely heavily on
Burlington Northern Railroad Co. v. Woods,
in which the Supreme Court concluded that an Alabama statute imposing a 10% “mandatory affirmance penalty” on unsuccessful civil appellants who meet certain criteria was in conflict with Fed. R.App. P. 38’s grant of discretionary authority to impose damages on those who bring frivolous appeals.
Rule 38 affords a court of appeals plenary discretion to assess “just damages” in order to penalize an appellant who takes a frivolous appeal and to compensate the injured appellee for the delay and added expense of defending the district court’s judgment. Thus, the Rule’s discretionary mode of operation unmistakably conflicts with the mandatоry provision of Alabama’s affirmance penalty statute. Moreover, the purposes underlying the Rule are sufficiently coextensive with the asserted purposes of the Alabama statute to indicate that the Rule occupies the statute’s field of operation so as to preclude its application in federal diversity actions.
Id.
at 7,
The Appellees argue that “[precisely the same” analysis that prevailed in
Burlington Northern
dictates that we permit the district court to disregard the Unclaimed Property Act in this case. Appellees’ Br. at 12. We disagree.
Burlington Northern
involved an explicit grant of discretion on a specific issue: the award of costs and damages for a frivolous appeal.
(1) evidence that the settlement was obtained by fraud or collusion; (2) the complexity, expense, and likely duration of the litigation; (3) the stage of the litigation and available discovery; (4) the probability of plaintiffs’ prevailing on the merits; (5) the range of possible recovery and certainty of damages; and (6) the opinions of class counsel, class representatives, and absent class members.
In re Katrina Canal Breaches Litig.,
In sum, Rule 23(e) only “collides” with the Act in this case if one construes the Rule tо include a blanket authorization to disregard state property laws in the context of administering a settlement. Nothing in the Rule’s text or structure leads us to adopt such an aggressive construction. Nor does the text or structure suggest that the Rule implicitly occupies the field that the Act seeks to regulate. We conclude, therefore, that Rule 23(e) does not preclude the application of the Act to unclaimed funds allocated to identified class members in this case. The Act survives the initial Hanna analysis.
IV
We turn, then, to whether the Act applies under
Erie.
Texas argues that the district court was bound to apply the Act under
Erie;
the Appellees argue that it was not. The black letter rule of
Erie
is that federal courts “apply state substantive law and federal procedural law.”
Foradori v. Harris,
The relationship between the various doctrines that courts have developed under Erie makes most sense in the historical context of the developing case law. The “outcome determination” test, which has provided the foundation for most subsequent analyses, was set forth in Guaranty Trust Co. v. New York:
The question is whether [the state law] concеrns merely the manner and the means by which a right to recover, as recognized by the State, is enforced, or whether [it] is a matter of substance in the aspect that alone is relevant to our problem, namely, does it significantly affect the result of a litigation for a federal court to disregard a law of a State that would be controlling in an action upon the same claim by the same parties in a State court?
*336
The Appellees argue that we should consider only the concerns explicitly acknowledged in the “twin aims” analysis and disregard any factors, such as the “bound up with” inquiry set forth in
Byrd,
that cannot be fit neatly into the Appellees’ narrow reading of those aims. As the district court acknowledged, however, a review of case law reveals that
Byrd
and the “twin aims” analysis can function, and have functioned, side by side. Certainly, we have not stopped citing or relying on
Byrd. See, e.g., Hall,
Texas is moreover correct that some aspects of the “twin aims” analysis — in particular, the focus on forum shopping— seem better suited to disputes between plaintiffs and defendants, rather than those involving post-judgment intervenors. Regardless, wе agree with the Appellees that our precedents’ embrace of the “twin aims” analysis prevents us from disregarding that analysis altogether.
See Hall,
As to the first “twin aim,” Texas seemingly concedes that the availability of
cy pres
does not pose a significant threat of forum-shopping by plaintiffs. Lack of an apparent forum-shopping threat, however, is not fatal to Texas’s position if other considerations show that the purposes of
Erie
support applying the Act.
*337
See Walker,
We therefore conclude that the question of who shall have a property right in the unclaimed funds is substantive, as that term was set forth in Erie and refined in subsequent cases including Guaranty Oil, Byrd, Hanna, and Gasperini. The district court therefore erred in concluding that it was free to disregard the Unclaimed Property Act and the rights secured thereunder in favor of distributing the funds to the Center via a cy pres order. Those funds, insofar as they were allocated to plaintiffs with a last known address in Texas, are governed by Texas law of unclaimed property.
V
Based on our review of the relevant law, we conclude that the unclaimed funds allocated to Texas plaintiffs are subject to the Unclaimed Property Act, that Rule 23(e) is not so broad as to preclude application of the Act, that the question of who has a right to the unclaimed funds is substantive in nature, and that therefore the Act controls. The judgment of the district court is REVERSED and VACATED, and the case REMANDED for proceedings in accordance with this opinion.
Notes
. In this context,
"cy pres"
refers to " ‘the proposition ... that where distribution to the class who should ideally receive a fund is impracticable or inappropriate, the distribution should be made in the “next best” fashion in ordеr as closely as possible to approximate the intended disposition.' ”
Wilson v.
Sw.
Airlines, Inc.,
. Appellees attempt to qualify their sweeping assertion of judicial power by pointing out that a district court might still look to the relevant state laws in some advisory or equitable sense — although the court would not be obligated to follow those laws. Surely, though, either the district court’s discretion in approving settlements under Rule 23(e) encompasses the authority to disregard state law in a later order оr it does not. The fact that the court might look to the state law before discarding it is immaterial.
. Citing
Herbert v. Wal-Mart Stores, Inc.,
. The Appellees briefly argue, in the alternative, that if
Byrd
applies, the case favors the
cy pres
distribution.
Byrd
permits us to consider whether the federal practice at issue is an “essential characteristic” of the federal system.
