Document: 369 U.S. 45 82 S.Ct. 552 7 L.Ed.2d 562 METLAKATLA INDIAN COMMUNITY, ANNETTE ISLANDS RESERVE, Appellant,v.William A. EGAN, Governor of the State Alaska, and Alaska. No. 2. Argued Dec. 13 14, 1961. Decided March 5, 1962. Richard Schifter, Washington, D.C., for appellant. Oscar H. Davis, United States, as amicus curiae, by special leave Court. Avrum M. Gross, appellee pro hac vice, Ralph E. Moody, Anchorage, appellee. Mr. Justice FRANKFURTER delivered opinion 1 This is an appeal from a decision Supreme Court 362 P.2d 901, affirming denial injunction against interference with appellant's use fish traps in Annette Islands southeastern Appellant rests its claim part on regulations promulgated Secretary Interior whereby Metlakatla Indian Community was accorded right to erect operate salmon at four locations waters surrounding Islands, which Congress set aside 1891. Alaska challenged this authorization state conservation law forbidding traps. 2 Long before white man came annual migrations sea into Alaska's rivers spawn served food supply natives. Commercial fishing has become vital economy, but exploitation seriously threatened resource even turn century. See Gruening, The (1954), pp. 75, 97. 1889, 1896, 1906, again 1924 enacted measures, prohibiting any obstruction impede migration, limiting times means taking authorizing appropriate department impose further restrictions.1 When established State, withheld jurisdiction over her fisheries until she had made adequate provision their administration.2 3 Equally Congress, been concerned evils overexploitation. In particular saw menace trap, labor-saving costly device, became eyes symbol resources 'Stateside' colonialism. Rogers, Transition (1960), 4—15; supra, 392—407; Let Us End American Colonialism (1955), reprinted 103 Cong.Rec. 470—474. 'a formidable structure,' Pacific Fisheries v. 248 78, 87, 39 40, 63 L.Ed. 138, consists principally fence or netting stretched across partly stream obstruct upstream progress 'heart' 'pot' where they are imprisoned removed. p. 7; 169—170. At one time there were about 700 operation felt that trap's threat could be adequately dealt regulating number permitted escape.3 vigorously opposed this. Territorial Legislature several sent memorials urging abolition trap fishing.4 An ordinance abolish all commercial approved voters along proposed Constitution 1956, early 1959 first turned statute here under review.5 4 Indians, some 800, led British missionary, moved Columbia 1887. 1891 south Ketchikan extreme lower end Alaskan archipelago, 'set apart reservation' Metlakatlans other 'to held used them common, such rules regulations, subject restrictions, may prescribed Interior.' 26 Stat. 1095, 1101, 48 U.S.C. § 358, U.S.C.A. 358. 1915 issued 25 CFR (1939 ed.), pt. 1, establishing elective council make local ordinances Metlakatla, also permitting members obtain permits adjacent Islands. next year, furtherance Secretary's plan establish cannery President Wilson proclamation declared within 3,000 feet certain these islands Reserve, Indians source intended cannery, 'under general laws States administered Commerce.' 1777.6 1918, without reference proclamation, upheld exclude others ground included original reservation Congress. 138. 5 Ever since 1915, operated consent Interior. Following enactment State's fish-trap 1959, exercise his transitional power banned except those involved companion case, Organized Village Kake Egan, 60, 562, 573, 24 Fed.Reg. 2053, 2056, 2069 (1959). following having relinquished control fisheries, authorized eight specified locations, citing authority White Act, 43 464, amended, §§ 221—228, Statehood 72 339, amended 73 141, preceding 21. (1961 Supp.), 88.7 6 With background we reach present controversy. May, just season began, warned would enforce fishtrap them. intensified when arrested communities seized trap. Suits thereupon filed appellants case interim District seeking asserted federal rights All complaints dismissed, 174 F.Supp. 500. Appeal brought Court, not yet fully organized. Pending decision, BRENNAN granted stay enforcement 80 33, 34. assumed continued remanded newly constituted primarily disposition matters law, 363 555, 1321, 1397. That affirmed Court's dismissal, holding applicable appellants, upholding validity so applied, 901. From judgment, properly 28 1257, 1257. We noted probable jurisdiction, 368 886, 137, 86. Several grounds below now out concession error firmly stands judgment favor. argues it immune because (1) cannot regulate activities reservations; (2) instrumentality; (3) appellant supported see 967, 953. 8 who have very substantially adopted man's civilization, never hostile isolated position many tribes States. As 1886 judge, Thirteenth Amendment, denied principle national sovereignty enunciated Worcester Georgia, Pet. 515, 483, applied re Sah Quah, 31 F. 327 (D.Alaska). There no wars although least occasion, 36—37, fears uprising. attempt isolate reservations. Very few ever created, purpose these, contrast confine protection settlers safeguard exploitation. voting citizens, whom occupy prominent public office government. Booth, 161 269, 17 561 (D.Alaska 1958); Libby, McNeil & 107 697, 699, 14 37, 41—42 1952). Metlakatlans, tells us, always paid taxes, practice described reservations Kansas Wall. 737, 18 667, laws. F.Supp., 270, 563. 1936, 49 1250, 358a, create land reserved uses seems believed ordinary reservation, alone covered Finally, crime comitted extension country U.S., 56, 560, infra, punishable territorial laws, reasons outlined Reserve 'Indian country' meaning 1151—1153, 1151—1153. 9 words reservation,' appearing creating same numerous statutory E.g., (Unita Valley, Utah); 541, 559 (Colorado River); (Gros Ventre others); 19 28, 29 (Pawnee). None statutes express self-government Some treaties, Cherokees 1828, 311, expressly excluded Other however, while sometimes phrased terms gift assignment rather than land, mention power. Treaty Shawnee Tribe, 1825, 284; Potawatomies, 1837, 532; New York 1838, 550, 551; Sacs Foxes, 1842, 596. Later treaties absolute undisturbed occupation' lands. Arapahoes Cheyennes, 1867, 15 593, 594; Crow 1868, 649. 650. 1868 Navajos similar. 668. And 1855 treaty Quiault 12 971, Washington barred regulation fishing, promised only lands 'reserved, occupation tribes.' It implemented executive order November 7, 1873, 'withdrawn sale use' tribe. Pioneer Packing Co. Winslow, 159 Wash. 655, 657—658, 294 P. 557, 558. 10 added House bill dealing timber floor Senate Nebraska's Senator Manderson. Reciting unfortunate experience emigration Manderson explained amendment designed dispel expulsion new old, intrusion outsiders exploit islands. purpose, he stated, 'simply allow band remain impose, give recognized footing place.' Remarks Senators Dawes Dolph effect. 21 10092—10093(1890). agreed both Houses after conference, discussion. 11 subjecting unusual. Since 1849 officer charged administration none come our attention contained provision. Cheyenne provided might reservations, delegation Congress' powers Secretary. recognition gave legislature. government January appear parallel. No applying found Code Federal Regulations. vested council, 1.2, given pass required conflict 'the Territory part,' 1.10, review Secretary, 1.62. condition vote elections, Reserve—limited natives, 1.51—were swear obedience 1.52. Thus delegated him subjected oversight well. However, discussed above, additional permission statehood. urges invalid neither Act nor conferred permit premise correct, 573. governing Reservation, authority, like itself, extended Does validate light subsequent legislative actions? Presidential Proclamation 1916, 1777, Reservation should place fishermen 1916 federal; State. Therefore, contends, policy requires construed fishermen, include law. waters, agrees, free regulation. does argue deprived prescribe Assuming do so, did purport it. Quite contrary. recites determined 1891, Indians' assure cannery. Apparently prompted encroachment non-Indian fear protect intrusions. cited. States.' clear attempting assist promote plans develop reserve limit destroy authority. subjection Commerce thus superior Rather far modification 16 Nor impair purposes areas designation, prohibited granting exclusive doing. Hynes Grimes Co., 337 86, 69 968, 93 1231, prohibition bars well non-Indians, disclaimed exist. 118—119, 122 123, 968. exclusivity; created clarified waters. 1958, 545, list Territories civil criminal argued took away contrary argued, contrary, preserved passed 1953, 67 588, 1162, 1360, 1360. Subsection (b) 1162 provides nothing therein shall authorize alienation encumbrance, taxation property, 'or property manner inconsistent treaty, agreement, pursuant thereto; deprive tribe, band, community right, privilege, immunity afforded respect hunting, trapping, control, licensing, thereof.' protects invasion statute, regulation, privileges statute. plausibly therefore, protected established. Legislative history silent interpretation R. Rep. 848, 83d Cong., 1st Sess.; S.Rep. 99 9962, 10782, 10928 (1953). apparent proviso preserve federally rights. sheer speculation attribute significance imperfect parallelism provisions protecting absence suggested reason excluding based regulations. process drafting evolution, veiled scrutiny, too imprecise inference. Cf. Mersky, 361 431, 437, 459, 423. event, respecting Section 6(e) 340 341, 21, providing conveyance properties 'used sole wildlife Alaska,' contemplated transfer measure possessed 1929, 81st 2d Sess. 13—14 (1950); H.R. 1731, 80th (1948); S. 1028, (1954); 1163, 85th (1957), Geer Connecticut, 519, 600, 40 793, transition period during machinery purpose. 4, disclaim title (including rights), Eskimos, Aleuts (hereinafter called natives) trust said natives.' Such 'be disposed extent hereafter prescribe,' immaterial exceptions, claims enlarged, diminished, provisions. disclaimer Acts admitting 315, 82d (1951). 20 destroyed Act. She does, contend transferred exception exclusiveness Metlakatla's preserved. But makes 4. S.Rep.No.1929, (1950). Clearly section 'recognized' rights—those compensable Committee reports demonstrate aim status quo broader class 'right,' including, mere possession occupancy. Compensation issue pains avoid. Rep.No. 255, (1949); 29—30 (1957). need explore remoter reaches protection. Whether 'absolute jurisdiction' retained clearly preserves reservation. lodged dislodged 22 issuing relied action. letter Solicitor General, Appendix brief left doubt acted compulsion what conceived duty quo. He deemed himself, were, automaton. necessarily involves complex facts, evaluation relative weights impact interest conservation. determination him. 23 course vacate remand ample opportunity reasonable expedition determine prior 1963 what, if any, chooses opinion. Should fail act, parties apply court proceedings Addison Holly Hill Fruit Products, Inc., 322 607, 618—619, 64 1215, 88 1488. MR. JUSTICE will force 1962 season, defined ordered. Judgment vacated, remanded. 1009; 316 (Treasury Department); 34 478, 230—239, 241—242 (Commerce Department), 241—242; 221—228 221—228. succeeded responsibilities 1939. 1939 Reorganization Plan II, 4(e), 53 1431, 1433. 340—341. comprehensive game code April 17, Laws c. 94, received full soon afterward. Letter Douglas McKay, Interior, Herbert C. Bonner, Chairman, Comm. Merchant Marine Fisheries, Oct. 1955. 1931, 275—276; 1947, 325—326; 401—402; 1955, 447—448. 17. id., 95, reads follows: 'Section 1. unlawful traps, including limited floating, pile—driven hand-driven lands, tidelands, submerged waters; prevent small type ordinarily otherwise legally above mouth river Alaska; violate Sec. Public Law 85—508, constitutes compact between disclaims Natives) Natives.' 1934, order, 'continue effect,' 667. 1944 chartered corporation constitution Wheeler-Howard 984, 988, 473a, 476, 477, 477.

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