In this аction under the Federal Tort Claims Act, 28 U.S.C. § 1346(b), we are called upon to determine the appropriate doctrines of res judicata and collateral estoppel that are to be applied under this statute. The facts of the case set out a particularly compelling drama. In May 1970, Sergeant Jimmy Ray Johnson moved with his wife, Nora'Faye Johnson, appellant in the instant case, and their two young children to the vicinity of Fort Stewart, Georgia, where Sergeant Johnson had been posted. During that summer Sergeant Johnson approached an army chaplain about his marital difficulties, apparently brought on by differences over the manner in which Johnson disciplined the children, a manner that Mrs. Johnson thought much too severe. During the late summer and fall of 1970 the Johnsons received marriage counseling at the post’s Mental Hygiene Clinic. Although much of the Johnsons’ contact was with lower ranking clinic staff, the clinic psychiatrist, Dr. Charles Meredith, noted the sergeant’s possible mental illness and in September ordered him hospitalized for ten days; the discharge diagnosis was paranoid schizophreniа. Sergeant Johnson was prescribed anti-psychotic medication for this condition, but he soon stopped taking the medication.
Over these autumn months the Johnsons’ relationship experienced ups and downs, but Sergeant Johnson on occasion complained at the clinic of agitation and nervousness. His wife reported that he continued to discipline the children severely and that he made threats of serious violence to her and others, along with threats of suicide. In early December Mrs. Johnson left her husband and went with her children to Jacksonville, Florida, where she stayed with her sister. There she admitted herself to a hospital for thirteen days, complaining of depression and an inability to cope with her family situation.
After her release she returned to Georgia to live with her brother, Carroll Johns, in Waynesville, about 80 miles from Fort Stewart. Although her Florida doctor had recommended that she not stay with her husband, she did see Sergeant Johnson on December 26, when he visited the Johns residence. The visit went badly: Sergeant Johnson wished to take the children to his mother’s residence; his wife refused; Johnson threatened to shoot her, although he later calmed down.
Soon after the new year, on January 4, 1971, Johnson again saw Dr. Meredith at the clinic. Dr. Meredith noted Johnson’s erratic behavior, learned that he had not been taking his medication, and once again started him on anti-psychotic drugs. Two days later Johnson got into a heated telephone dispute with his wife. He then went to the Johns residence and sexually assaulted her. As a result, Carroll Johns immediately took out a peace warrant, and within two days Johnson was in jail on the warrant. However, Mrs. Johnson and hеr brother were persuaded to permit Johnson to be released on condition that he return to the post hospital. Mrs. Johnson called Dr. Meredith to inform him of these events, as well as of the December 26 threat on her life.
Dr. Meredith saw Sergeant Johnson again on January 11, when Johnson came to the clinic under the escort of his unit commander; he was hospitalized the same day for a ten-day period. Dr. Meredith allowed him to be released from the hospital on January 21, again prescribing drugs and arranging a January 26 clinic appointment for Johnson. Two days later Johnson again went to Waynesville and saw his wife, this time without incident.
On January 25, Johnson requested leave from his unit commander to straighten out his domestic affairs. The captain, however, denied this request because he felt that Sergeant Johnson would only get into more trouble. Sergeant Johnson appealed to the battalion commander who, apparently after consulting Dr. Meredith, ordered that the leave be granted. Sergeant Johnson then met his wife in her brother’s office in the presence of her brother and a deputy sheriff. The conversation quickly led to serious altercations, as did a telephone discussion *609 the next afternoon. That evening Sergeant Johnson appeared at the Johns residence, where he killed Carroll Johns by firing through a window with a shotgun. He then ran into the house to his wife’s bedroom, shot and wounded her, and finally ran back outside where he shot himself to death.
Within the year both Carroll Johns’ widow and Mrs. Johnson filed suit against the United States under the Federal Tort Claims Act. Both suits charged damage due to the negligence of army employees, particularly in the negligent rеlease of Sergeant Johnson from the army hospital and base without warning. Carroll Johns’ widow filed her wrongful death action in the United States District Court for the Southern District of Georgia; that case resulted in a judgment for Mrs. Johns. Agnes Jacobs Johns v. United States, Civil No. 769, decision filed August 6, 1973, appeal dism’d April 18, 1974, No. 73-4030, 5th Cir. 1974. Sergeant Johnson’s widow, appellant in the present case, filed two actions in the United States District Court for the Middle District of Florida, one (case No. 71-921-CIV-J-T) seeking one million dollars in damages for her own injuries, and the other (case No. 71-922-CIV-J-T) seeking an additional one million dollars for her husband’s wrongful death. The district court decided these companion cases together. It denied a motion for summary judgment based on the collateral-estoppel effects of the Johns case but did take into evidence the entire trial record of the prior case; after hearing additional testimony, the court concluded, contrary to the court in Johns, that there was no negligence on the part of any agent of the government and no malpractice on the part of Dr. Meredith in particular.
The parties agree that the Tort Claims Act requirеs the federal court generally to apply Georgia law in determining liability. But appellant argues, among other points, that the district court erred in failing to hold the United States collaterally estopped on the issue of negligence and cites numerous federal authorities in support of this position. The United States on its part urges that these federal authorities are inapplicable and that under the Federal Tort Claims Act the court was required to apply the collateral estoppel rules of Georgia. That state’s courts, unlike the federal courts, have retained the requirement of mutuality in applying principles of res judicata and collateral estoppel.
Mundy v. Cincinnati Insurance Co.,
I. Federal or State Rules of Collateral Estoppel.
We begin our inquiry by noting the significance of preclusionary principles for our judiciary. As we said in
Southwest Airlines Co. v. Texas International Airlines,
The principle of res judicata serves several policies important to our judicial system. By declaring an end to litigation, the doctrine adds certainty and stability to social institutions. This certainty in turn generates public respect for the courts. By preventing relitigation of issues, res judicata conserves judicial time and resources. It also supports several *610 private interests, including avoidance оf substantial litigation expenses, protection from harassment or coercion by lawsuit, and avoidance of conflicting rights and duties from inconsistent judgments.
State and federal applications of res judicata principles may differ, however, as they do in the present case. Whether state or federal principles apply here must be resolved in the light of the Federal Tort Claims Act itself.
The primary purpose of the Federal Tort Claims Act was “to remove the sovereign immunity of the United States from suits in tort and, with certain specific excеptions, to render the Government liable in tort as a private individual would be under like circumstances.”
Richards v. United States,
It is evident that the Act was not patterned to operate with complete independence from the principles of law developed in the common law аnd refined by statute and judicial decision in the various States. Rather, it was designed to build upon the legal relationships formulated and characterized by the States.
In view of the paramount importance of state law under this Act, several courts have said, without discussion, that state rules of collateral estoppel are applicable to Tort Claims actions.
Filice v. United States,
Contrary to these cases, appellant here urges that we adopt the reasoning of
Aerojet-General Corp. v. Askew,
On its part, the United States urges that Aerojet does not govern the present case. Its first argument is based on a distinction between res judicata and collateral estoppel. It points out that Aerojet concerned res judicata, whereas the present case concerns collateral estoppel. Thus, it argues, even supposing that Aerojet applied to Tort Claims actions, it would not control the present case.
While the term “res judicata” in its broadest sense encompasses collateral estoppel, in a narrower sense these two phrases do carry different although related meanings. Under the principles of “res judicata” in the narrower sense, a judgment in a prior suit between the same parties bars a suit on the same cause of action not only as to all matters offered at the first proceeding, but also as to all issues that could have been litigated. Collateral estoppel, however, precludes reiitigation only of those issues actually litigated in the original action, whether or not the second suit is based on the same cause of action.
Moch v. East Baton Rouge Parish School Board,
The present case is not in diversity jurisdiction, however, and the United States’ second and more troubling argument relates to this point. It argues that despite similarities between federal tort claims actions and actions in diversity jurisdiction, federal courts in Tort Claims actions are required by statute to follow state law. It refers particularly to
Richards v. United States, supra.
In
Richards
the Supreme Court ruled that federal courts, in deсiding actions under the Tort Claims Act, were required to apply the conflict-of-laws rules of the state where the act or omission occurred. This is, of course, also true of federal courts acting in diversity jurisdiction,
Klaxon Co. v. Stentor Electric Manufacturing Co.,
Richards
thus requires that in considering the collateral estoppel rules to be applied in actions under the Tort Claims Act, we look to that statute, as well as to the other federal statutory provisions relating to damage actions against the United States. We note preliminarily that although
Richards
stated that the “whole law” of the state is to be applied in Tort Claims actions,
But despite the fact that state law governs the right of action under the Act, federal courts routinely apply such federal procedural rules as the “clearly erroneous” test under F.R.Civ.P. 52(a).
Neal v. United States,
Moreover, recovery under the Act is subject to the limitations inherent in the language of the Tort Claims Act itself, as well as the explicit limitations of 28 U.S.C. §§ 2401-16, 2671-80. In interpreting these limitations, a court may be required to apply federal law.
See
C. Wright & A. Miller, Federal Practice & Procedure: Civil § 3658. Thus, for example, it has been held that federal law governs the interpretation of 28 U.S.C. § 2401, concerning the running of the statute of limitations in a Federal Tort Claims action.
Ciccarone, supra; Mendiola v. United States,
Thus, in deciding a Federal Tort Claims action, a court may well be called upon to make determinations of federal law, even though state law governs general liability under the Act. These decisions on federal law will, of course, be an integral part of the judgment to which res judicata or collateral estoppel principles apply.
In view of these considerations we think that under the Federal Tort Claims Act a federal court should apply federal principles of res judicata and collateral estoppel in considering the preclusive effect of a prior federal judgment. We note that Congress has lodged exclusive jurisdiction in the federal courts over Tort Claims actions, and we cannot believe that Congress intended state court rules to determine the internal relationships among the federal courts — particularly with regard to the effect one federal court is to give to the judgment of another.
While we are mindful that under Richards diversity jurisdiction principles do not govern Tort Claims actions, we think that similar considerations may apply to the federal courts’ handling of these two very similаr kinds of actions. See, e. g., Application of the “Law of the Place” under the Federal Tort Claims Act, 58 Iowa L.Rev. 715 *613 (1973). In both types of cases the federal court applies state law; indeed, in both types of cases the federal court essentially acts as a state court. Yet Aerojet holds that in diversity cases we are to apply federal res judicata principles to prior federal judgments. We think that the factors enumerated in Aerojet with respect to res judicata issues in diversity cases are equally present in Tort Claims actions. First, Aerojet particularly stressed that:
The importance of preserving the integrity of federal court judgments cannot be overemphasized — out of respect for the federal courts and for the policy of bringing litigation conclusively to an end. If state courts could eradicate the force and effect of federal court judgments through supervening interpretations of the state law of res judicatá, federal courts would not be a reliable forum for final adjudication of a diversity litigant’s claims.
Second, Aerojet noted that a number of federal procedurаl issues affect the application of res judicata in diversity cases. Similarly, as noted above, a number of federal matters affect federal court decisions in Tort Claims actions; as in Aerojet,
We see no persuasive reason to look to state law for some elements of res judicata ... in light of the prominent influence of federal law on other elements of the doctrine. To do so would sacrifice the uniformity of the law which federal courts must apply.
In Aerojet we quoted at length the case of
Kern v. Hettinger,
One of the strongest policies a court can have is that of determining the scоpe of its own judgments. [Citations omitted] It would be destructive of the basic principles of the Federal Rules of Civil Procedure to say that the effect of a judgment of a federal court was governed by the law of the state where the court sits simply because the source of federal jurisdiction is diversity. The rights and obligations of the parties are fixed by state law. These may be created, modified and enforced by the state acting through its own judicial establishment. But we think it would be strange doctrine to allow a state to nullify the judgments of federal courts constitutionally established and given power also to enforce state created rights.
We see no reason for distinguishing Tort Claims actions from diversity actions in this respect. Our decision, of course, does not apply to the preclusive effects to be accorded prior
state
court decisions. In such cases we may well be bound, as we are in diversity cases, to give effect to state principles as to the preclusive effect of a prior state court decision.
See Cleckner
v.
Republic Van & Storage Co.,
II. Application of Federal Collateral Estoppel Principles.
Although the United States concedes that it is bound by the ruling on the
*614
negligence issue in the prior case if federal collateral estoppel rules apply, we think this problem bears some further discussion. In its landmark decision in
Blonder-Tongue Labs, Inc. v. University of Illinois Foundation,
A party who has had one fair and full opportunity to prove a claim and has failed in that effort, should not be permitted to go to trial on the merits of that claim a second time. Both orderliness and reasonable time saving in judicial administration require that this be so unless some overriding consideration of fairness to a litigant dictates a different result in the circumstances of a particular case.
Rachal, supra
at 63 (original emphasis);
Bruzewski, supra
at 421. Thus, in precluding a party from relitigating an issue, the court must be satisfied not only that the party against whom estoppel is urged has had a full and fair opportunity to litigate the issues in the prior proceeding but also that application of the doctrine, under the circumstances, will not result in injustice to the party.
Rachal, supra
at 62. Moreover, the court must be satisfied that the application of res judicata or collateral estoppel does not contravene any overriding public policy.
Garner v. Giarrusso,
In considering fairness to the pаrty against whom preclusion is urged, we have noted that there may be special difficulties in precluding a party who did not have the initiative in the prior action.
James Talcott, Inc. v. Allahabad Bank, Ltd.,
Applying these tests to the instant case, the prior judgment clearly precludes relitigation of facts actually litigated and necessary to the earlier judgment. There was no prejudice to the United States in the choice of the Georgia district court as the forum; that court, as would any federal court in this Tort Claims action, applied Georgia law to the liability issue. Certainly the United States had a pressing need to litigate fully in the prior action, which resulted in a $350,000 judgment against the United States. That case thoroughly explored the relevant negligеnce questions at issue in the present case. Finally, it was entirely foreseeable that the facts of the prior judgment would be important in the present case, since charges of negligence in both cases involve identical circumstances.
We therefore rule that, since federal principles of collateral estoppel applied, the United States was precluded from relitigating issues essential to the prior judgment. Because of our ruling on the preclusive effect of that prior judgment, we need not reach the appellant’s further contention that the district court was in clear error in finding no negligence; the identical issues of negligence were, of course, litigated in the prior action. However, because other issues in the case — including that of proximate cause of damage to appellant— were not disposed of in the prior judgment or necessary to it, we return the case to the district court for resolution of those outstanding questions. In ascertaining the precise preclusive effect of the prior judgment on particular issues, we rеfer the district court to the requirements set out, inter alia, in
International Association of Machinists and Aerospace Workers v. Nix,
REVERSED AND REMANDED.
Notes
. In
Blonder-Tongue
the Supreme Court touched on the question of collateral estoppel applied offensively. But the Court specifically noted that
Blonder-Tongue
itself did not involve such “offensive use” questions.
. In the context of applying state collateral estoppel rules, we have sustained an “offensive” preclusion in
Sequros Tepeyac S. A. v. Jernigan,
