Document: 402 U.S. 159 91 S.Ct. 1336 28 L.Ed.2d 695 UNITED STATES, Petitioner,v.SOUTHERN UTE TRIBE OR BAND OF INDIANS. No. 515. Argued March 1, 1971. Decided April 26, Syllabus Respondent's claims for compensation and accounting are barred by res judicata since they relate to land 'formerly owned or claimed (the Conferderated Band of Utes) in western Colorado, ceded United States) the Act June 15, 1880' thus were subject a final settlement reduced consent judgment, which respondent was party, made 1950. Pp. 161—174. 191 Ct.Cl. 423 F.2d 346, reversed. Lawrence G. Wallace, Washington, D.C. petitioner. Glen A. Wilkinson, D.C., respondent. Mr. Justice BRENNAN delivered opinion Court. 1 In 1951 Southern Ute Tribe Indians, part Confederated Bands Utes, brought this claim before Indians Claims Commission.1 The asserted that States had violated its fiduciary duty (1) disposing 220,000 acres as 'free homesteads' although obligated 21 Stat. 203—204 (1880) 678 (1895) seel acreage respondent's benefit; (2) failing account proceeds 82,000 land, were, under same Acts, be held benefit. Government's basic defense reason Court judgments entered 1950 between including respondent.2 v. States, 117 433 (1950). Indian Commission rejected defense, 17 Ind.Cl.Comm. (1966); but Claims, an unpublished order, App. 57—58 remanded taking additional evidence. On remand again 268 (1969), affirmed, two judges dissenting. (1970). We granted certiorari. 400 915, 173, 27 154 reverse. 2 judgment gave effect agreement recited stipulation parties that: 3 '(A) * shall cause full payment complete extinguishment plaintiffs' right, title, interest, estate, demands whatsoever nature property Colorado plaintiffs defendant 1880 (21 199), (a) sold cash (b) disposed free homesteads (c) set aside public purposes (between 1910 1938) *. There is filed herewith Schedule contains legal descriptions (lands) remanining purposes. However, case judicata, not only described also any formerly *.' Ct.Cl., at 436—437 (emphasis added). 4 lands involved present suit included 1; rather, Government relies upon clause 'res 5 Both on ground concerning action compromised because those among 'ceded 1880.' 6 Decision turns, then, proper interpretation agreement, embodied 1880, it relates 1950, parties. determination requires somewhat lengthy factual recitation. 7 latter half 19th century, what now composed Uncompahgre White River exchanged their aboriginal New Mexico, Utah, reservation approximately 15.7 million lying wholly within Colorado. 13 673 (1864); 15 619 (1868). Although undivided, Utes lived northern portion reservation, inhabited central part, occupied southern region. however, survived little longer than decade form. 1874 approved Brunot Cession 3.7 east-central after valuable mineral deposits been discovered there. 18 36 (1874).3 result cession almost sever leaving wedged boundary line Mexico border, southernmost strip miles wide 110 long. This strip, includes issue here, referred Royce Area 617, remainder 616.4 8 Within eight years, remained Colorado: departed Utah 1882 consequence massacre 1879 Agent Meeker others station. outcry over incident led negotiations with produced 1880. 9 feature termination tribal ownership lands, limitation such might allotted severalty individual Indians. provision destroy structure change nomadic ways forcibly converting them from pastoral agricultural people. See 10 Cong.Rec. 2059, 2066 (1880). enacted accept 'the submitted confederated bands sale said State 199 Thus, provided 'cede all territory Reservation except hereinafter settlement.' 200 provisions stipulated would leave 'and settle Uintah Utah,' ibid., '(t)he agree remove Grand River, near mouth Gunnison Colorado,' if insufficient found there, go (which soon did). 'remove unoccupied La Plata Colorado; there should sufficiency vicinity then other may Mexico.' Ibid. Finally, 'all so allotted, title is, acceptance released conveyed deemed disposal,' financial benefit Utes. plain wording cedes nonallotted 15-mile (Royce 617) Claims' acknowledges this, stating 11 'The most significant aspects gleaned (Southern included) seemed cede entire 616 617—and moreover promised allotments various sectors beyond boundaries. As sole consideration these promises, receive shares unallotted sales remaining certain reimbursements. apportioned one-third share like confederates understood monies trust benefit.' F.2d, 350, (1970) original). 12 inquiry end Act, claim. did not, tribunals considered conduct relation tribe years subsequent passage Even so, basis rejection does emerge opinions clarity. read Commission's first opinion, (1966), holding expressly withheld Act: 'reserved' 617 Utes.' 10. Some language point suggested view—'the following sequence events support conclusion rate later turns decision different theory: 14 more tenable theory, our estimation, Congress recognized protracted acquiescence occupation, rights somehow lapsed, being executed long time, rescinded dead. It obligation deal justly honorably wards allow insistence implementation apparent terms agreement. hand, obviously see themselves mere squatters. therefore decided going acquired clear new necessary. Hence we find section 1895 explicit waiver created whatever were. follows controversy Id., 356, 19—20. reasoning implies rests application doctrines estoppel, waiver, compound doctrines. disagree history relied supports bases decision, even assuming (and have serious doubts) words can varied phrase 'any ceded' judgment. turn, seriatim below. 16 experienced hardship living strip. Essentially, people narrow difficult keep animals it. addition, white population north south increasing resulting lines commerce cut across Bureau, realizing narrowness remoteness entirely unsuited use into accordance 1878, passed act authrizing (U.S.Stat.L., vol. 20, p. 48), authority commission appointed, during year negotiated whereby agreed exchange another reservation.' S.Rep.No. 279, 53d Cong., 2d Sess., (1894). But bill acted Congress, Massacre occurred.5 caused adopt solution affecting tribes. Contrary view segment show intention treat differently Utes; demonstrates congressional treated, save completely banished 19 'a sent superintend removal well sufficient future 201 visited carry out mandate 1881 chairman reported Congress: 20 'During stay I took occasion talk leading men location severalty. conversations called attention fact work surveyors doing preliminary step (in severalty) one who desired house, dwell built him his own land. will take time careful management induce abandon (way living) mode life contemplated 'In mean while on, must protected annoyance. To prevent intrusion guarantee order protection, no way modify maintain exterior hundred fifteen wide, preserve indefinite period Then selected, located, kept intruders.' H.R.Exec.Doc.No.1, pt. 5, Vol. 2, 47th 1st 393 (1882). 22 create recommended reservation. Instead, consistent adherence plan great pressure open Areas homesteading resulted still occupying 617. July 28, 1882, 178, declared portions 616, Section statute Secretary Interior 'shall, earliest practicable day, ascertain establish between' Areas. 178 nothing legislative finding evidenced contrary, thrust drawn assure interference available allotment H.R.Rep. No.799, (1894); 3—4 (1894).6 23 committee spokesman meeting District Columbia 1886. stated delegation come 'to cannot another. long, want west can't sell it.' 836, 49th (1886). viewed demonstrating possession old right.' 353, 14. do doubt regarded 'our reservation,' fail how nullifies conveyance cogent evidence totally Indians' After bills effectuate failed pass, 25 133 (1888) empowering appoint negotiate band modification treaty rights, desirable Despite reference 'their premise amelioration plight require 'modification rights' fixed thought 1888 respondents' contention: 24 'Although tends favor position means conclusive. merely authorized establishment engage purpose persuading belatedly done some earlier, namely, vacate move elsewhere. A reasonable explanation act's exclusive confederation whom executory.' 353—354, 15. formed pursuant succeed negotiating moved San Juan County, Utah. observed '(p)resumably, evacuated collective prescribed proportions, visualized accuring accrue.' 354, 16. words, treatment precisely accorded when left event serves furnish proof firm 26 confirmed reaction approval—nothing happened six introduced 1894. depicts situation: 'Conceding 'anomalous (of having yet it', Senate Committee Affairs favored ratification (Sen.Rep.No. Sess. 2—3 (1894)). Its House counterpart, concurring presented anomalous situation, assent (H.R.Rep.No. 799, believed proposed too large hence encourage ways. Therefore, instead, enactment pending eventually February (28 677). annul enforce sought severalty.' recital refutes, rather supports, notion followed pattern course owners 29 § 'an were.' 1895, addition annulling directed proceed 'in (1880).' 677 (1895). went grievances wanted providing 'there apart reserved of' defined 678. could 'set reserved' unless belonged east 'be become domain' allocated opened settlement. look vain anything 'explicit waiver' '(i)t 20. belies conclusion. report repeats, once again, previously '(o)n 6, whole any, supra, 2. discern revision formula allocation reservation.7 absolutely thereby, and, indeed, convinced cede.8 simply resolved impasse existed Utes' reluctance them. them, permitting willing qualified farming. clearly constructed reliance upon, derogation of, 30 hold enforcing 'as 1880.'9 31 Reversed. 32 DOUGLAS, 33 Though facts complex, major question, whether question 1880,' 34 More precisely, status 1895? Were until How paid retained since, stated, allowed remain surveyed purported cession, right without further exercised.' 19. 35 Twice considered, Claims. And both respondent, That below amply supported record. 12,000,000 616), separated 617). States. chiefs persuade 37 38 200. 39 express condition: 40 'That properly divided 200—201. 41 allotment. Commissioners make allotments, 42 203. 43 formed. Congress. moved, Chairman unwise them.1 condition made. (22 178). established ordered '(c)ommencing southwest corner lands; thence extending Colorado.'2 (Emphasis supplied.) 44 appears neither nor officials reservation3 Commissioner apparently felt likewise4—all inconsistent theory 45 1888, They approve 677: 46 months severalty, elect embraced amendments thereto 47 expiration President proclamation declaring preceding sections occupancy 4, 48 money realized accepted majority male adult accept. 49 Weeminuche Mountain elected, tract 'present 3. 50 substantial amount settled whites, Government. includes, inter alia, damages given away violation 1895. 51 1934, restoration (48 984.) restored sovereignty began: 52 '(P)ursuant area (Order Restoration, September 14, 1938, S.Doc.No. 194, 76th 3d 659 (1941) (compiled C. Kappler).) 53 sued past arising breaches treaty. One schedule covered included, omissions for: 54 'So far diligence able determine represent aside. but, therein 433, 437. 55 None (360 21.8% total wrongly of) included. 56 acknowledged actions Agreement. Case 30360, 440 (1910), erroneous jurisdiction enter. entering stipulation. Plaintiffs never intended covered. broad insure minor 'Diligence' permitted exclusion 360 refused produce documents disclosed intent signatories, claiming 'work product.' include 57 appeared findings Commission, conclusion, i.e., postpone issuing separation description dividing Interior, move, belief off 'reservation,'5 Utes6 requiring approval.7 weighed 'substantially interpretation.' conduct, said, recognition 'by rescined dead.' 58 'Hence 59 employed Restoration 1938.8 60 Since involving Jurisdictional 1909, 781, improvidently heard 1910. Likewise bar. Neither party apply If irrelevant, face 'areas effectively ceded.' 358, 22. 61 reviews reverses. remarshals result, ignoring limits Court's appellate either or, best, mixed law binding Swift & Co., 270 124, 138, 308, 313, 70 L.Ed. 497; Omaha 253 275, 281, 522, 524, 64 901. supported. function trial de novo issues. John J. Felin 334 624, 650, 68 1238, 1251, 92 1614 (Jackson, J., dissenting); Penn Foundry Mfg. 337 198, 207 n. 69 1009, 1013, 93 1308. 62 affirm U.S.C. 70a. 70k. cases 1209. principally 46640, 436 Related stipulations 434, 438, 440. aggregate settlements exceeded $31 million. unsuccessfully defenses failure state join necessary Those questions us. admits promptly paid. Brief Petitioner 5. Dunn, Massacres Mountains 583—587 (1958). These derive map cessions, Pl. CXVI, Charles connection published study, Land Cessions, 18th Ann.Rep., Bur. Amer. Ethnology, (1896—1897). While 'massacre' blamed. correspondence uprising agents, Governor printed S.Exec.Doc.No.31, 46th (1958), Army, Military Division Missouri (Gen. P. Sheridan, Commanding), Record Engagements Hostile 88—91 Department least already viewing permanent cession,' 352, 13, letter district offices. effect, event, hardly disregarding congressionally expressed design. provides pertinent part: moneys up sum fifty thousand dollars, follows: Five dollars annually ten equally per capita, irrespective age sex; twenty invest sheep divide capita equally, (certain specific headmen) balance deducting expenses survey, Treasury herein manner construed interfere existing regarding annuties funds interest thereon.' seems placed Acting 1938 undisposed of: Stat.L., 677), 199),' S.Doc.No.194, Kappler). demonstrated '(petitioner's) concede enlighten us retrospectively applied agreement.' creation attaching significance quoted treated careless draftsmanship: 1938. here principle courts give weight reading ambiguous document agency charged enforcement. shows, ambiguous. Moreover, consistency shown enforcement acts, cuts against contention unreported 'for hearing making respect 46640 (117 436) 1950.' 57. supplemental 268. propriety remand, Delaware Cherokee Nation, 193 127, 140—141, 342, 347—348, 646 (1904); William Cramp Sons Ship Engine Building 206 118, 128, 676, 983 (1907), decide appear turned has stalling. Manypenny, Commission. settlers dissatisfied learning valleys desired. allotment, residue 'close proximity (and) constant annoyance evil-disposed persons.' this. 'To concerned, let laws reservations force therein. (H.R.Exec.Doc.No.1, 383, (1881)). He indicate live houses, allotments. 'From seem cession. Specifically, states survey commence at, in, Adhering defendant's literal lead result. starting southwestern coincide converging borders. extend start there.' came Washington 1886 west. S.Rep.No.836, 1—2 1886, he '(W)e bound solemn crossing N. supra. required credited credit received unnecessary. 'Thus, Such statement executive bearing meaning weight.'

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