Document: 463 U.S. 713 103 S.Ct. 3291 77 L.Ed.2d 961 Baxter RICE, Individually and as Director of the Department Alcoholic Beverage Control California, Petitionerv.Eva REHNER. No. 82-401. Argued March 21, 1983. Decided July 1, Syllabus Respondent is a federally licensed Indian trader who operates general store on an reservation in California. When she was refused exemption from California's law requiring state license order to sell liquor for off-premises consumption, respondent filed suit Federal District Court seeking declaratory judgment that did not need license. The dismissed suit, holding required have under 18 U.S.C. § 1161, which provides transactions country are subject prohibition federal if such "in conformity both with laws State [they] occu[r] ordinance duly adopted by tribe having jurisdiction over area country." Appeals reversed, 1161 pre-empts licensing distribution tribal sales country. Held: California may properly require obtain consumption. Pp. 718-735. (a) There no tradition sovereign immunity or inherent self-government favor regulation Indians. Although matters, Congress usually acts "upon assumption States power regulate affairs Indians reservation," Williams v. Lee, 358 217, 220, 79 269, 271, 3 251, unwarranted narrow context regulation. In addition congressional divestment this area, also been permitted, even required, impose regulations. concurrent use alcoholic beverages justified relevant interests. Here, respondent's has significant impact beyond limits reservation, State, independent Twenty-first Amendment, interest traffic within its borders. 720-725. (b) Title authorized, rather than pre-empted, transactions. It clear face statute legislative history intended remove sale imposed would apply their own force govern long itself approved these enacting ordinance. contemplated absolute but exclusive be delegated tribes themselves, States, historically shared Government. Because lack regulation, it necessary indicate expressly distribute liquor. This will canon construction generally applicable except where provided shall apply, when application tantamount formalistic disregard intent. Thus, scheme here does impair right granted reserved law, but, contrary, specifically authorized interfere policies concerning reservation. 725-735. 678 F.2d 1340 (9th Cir.1982), reversed remanded. Alan S. Meth, San Diego, Cal., petitioner. Stephen V. Quesenberry, Escondido, respondent. Joshua I. Schwartz, Washington, D.C., amicus curiae, special leave Court. Justice O'CONNOR delivered opinion 1 question presented case whether trader, we find authority well country,1 reverse Ninth Circuit. 2 * Rehner trader2 Pala Reservation Tribe had permitting providing conformed Secretary Interior. See 25 Fed.Reg. 3343 (1960). then sought retail distilled spirits consumption.3 exemption, directing wholesalers could her. C urt State's motion dismiss, ruling those act transaction occurs . ."4 Court, confer licenses. court held "18 preempts Rice, 1340, 1351 (CA9).5 deciding pre-emption issue, focused two aspects 1161. First, "there insufficient evidence show section states regulatory on-reservation traffic." Id., at 1343. reasoned issue were governed exclusively wished "its veil pre-emption," needed do so express statement requirement. Ibid. Second, "section pre-emptive effect" because ordinances certified Interior published Register. 1348-1349, 1349, n. 18. way, "the safeguarded supervision." 1349.6 II 4 decisions principles applied determining activities pre-empted static. Worcester Georgia, 31 (6 Pet.) 515, 561, 8 L.Ed. 483 (1832), Chief Marshall wrote "is distinct community, occupying territory, boundaries accurately described, [state laws] can ." Despite early emphasizing importance self-government, "Congress substantial degree opened doors reservations laws, marked contrast what prevailed time Marshall," Organized Village Kake Egan, 369 60, 74, 82 562, 570, 7 573 (1962). "[E]ven reservations, unless law." Mescalero Apache Jones, 411 145, 148, 93 1267, 1270, 36 114 (1973) (hereafter Mescalaro ). 5 "[f]ederal treaties statutes consistently construed reserve tribes," Cohen's Handbook Law 273 (1982) Cohen), our recent cases established "trend away idea sovereignty bar toward reliance pre-emption." McClanahan Arizona Tax Commission, 164, 172, 1257, 1262, 129 (footnote omitted). goal any inquiry "to determine plan," Pennsylvania Nelson, 350 497, 504, 76 477, 481, 100 640 (1956), ignored necessarily "those standards emerged other areas White Mountain Bracker, 448 136, 143, 2578, 2583, 65 665 (1980). We instead employed analysis informed historical notions sovereignty, determined them. "[C]ongressional 'semi-independent position' [are] related barriers assertion members." supra, U.S., 142, S.Ct., 2583. "[t]he ultimately dependent broad Congress," id., still employ "backdrop against must read" analysis. McClanahan, 1262. explicitly pre-empt insofar concerned, recognized "any given weight" " 'automatic exemptions "as matter constitutional law" ' unusual." 144, 2584 (quoting Moe Salish & Kootenai Tribes, 425 463, 17, 96 1634, 1645, 48 (1976)). 6 role varies accordance particular "notions developed traditions independence." 2584. These themselves reflect "accommodation between interests Tribes Government, one hand, other." Washington Confederated Colville Reservation, 447 134, 156, 2069, 2083, 10 However, remembered "tribal on, subordinate to, only States." 154, 2589. "The retain unique limited character. exists sufferance complete defeasance." United Wheeler, 435 313, 323, 98 1079, 1086, 55 303 (1978) (emphasis added). 178-179, 2094-2095 (opinion REHNQUIST, J.). some respect, reluctant infer respect 'except apply.' 171, 1261 Dept. Interior, 845 (1958) Law)). Repeal implication self-governance disfavored. Bryan Itasca County, 426 373, 392, 2102, 2113, 710. If, however, tradition, balance state, federal, requires, accord less weight "backdrop" sovereignty. 154-159, 2081-2082, 2084; Tribe, supra. A. first nature inform concerns beverages, there repealed explicit directive Congress. 9 begin noting nothing record like consumption members Tribe. Indeed, contends, dispute, Rehner, non-Indian buyers alike. Brief Petitioner 81; Tr. Oral Arg. 14. To extent seeks non-Indians, occurred, already foreclosed Rehner's argument requirements infringe upon sovereignty.7 If implicated imposition beverage attempts advances regard freedom important self-governance. number licenses distributes, effectively preclude aspect 63-74. relies Mazurie, 419 544, 557, 95 710, 717-718, 42 706 (1975), intoxicants "matter[ ] affect[s] internal social relations life." 11 Mazurie establishing misplaced. "independent quite sufficient protect Congress' decision vest councils portion [Congress' authority" commerce declined base [tribal] impose" 12 reason apparent light control context, characterized "one most comprehensive [federal] Cohen, 307. Unlike tax certain "a fundamental attribute divested status," 152, 2081, simply colonists regulated trading before Nation formed, exercised 1802. Law, 381. 1832, prohibitions effect suspension conditioned compliance ordinance.8 reservation." 251 (1959), regulations As condition entry into Arizona, New Mexico, Oklahoma enact introduction country.9 Several states, including pursuant police power, prohibited Indians.10 'absolute' invariably jurisdiction." Village, 68, 567. taking colony deprive Nevada question. Government assert colony. Enactments passed guard wards affect operation, colony, conflict enactments." McGowan, 302 535, 539, 58 286, 288, 410 (1938) omitted) 13 beverag involved. 2082-2083. Reservation. unquestionable borders, conferred Amendment. Crowley Christensen, 137 86, 91, 13, 15, 34 620 (1890). Liquor sold non-members easily way out hands whom, whatever reason, wish possess them through network control. "spillover" qualitatively different effects income taxes cigarettes. "A particularly point off-reservation necessitate intervention." Mexico --- ----, 2378, 2387, 75 (1983). 14 doubt area. "congressional enactments demonstrating firm policy promoting self-sufficiency economic development." 2583 With transactions, opposed taxation involved cannot said "possess usual accoutrements self-government." 167-168, 1259-1260. 15 below erred thinking single notion served direct preemption involving F.2d, 1348.11 favors consider activity engage potentially little asserted case. B 16 next auth rity law. 2583; distribution, reference sufficiently permit 17 disagree court's explained A above, ago command status." 2081. permitted criminal penalties supply liquor, introduce Therefore, presumption authority. derives rule construing legislation repeal self-government. 391-392, 2112-2113, 710 (1976); Morton Mancari, 417 549-551, 94 2474, 2482-2483, 41 290 (1974). requires deference reflected requirement provide "impair 1270; 75, 570-571. Our examination leads us conclude 19 indicates alcohol 1953, curtailing came "viewed discriminatory." 382. originally introduced, bill later become "[t]o terminate discriminations Arizona." Hearings H.R. 1055 Before Subcomm. Affairs House Comm. Insular Affairs, 83d Cong., 1st Sess. (March 18, 1953), reprinted Petitioner, Vol. II, A-4.12 hearings original bill, Rep. Rhodes speaking behalf Patten, introduced stated sole purpose eliminate discriminatory detrimental He commented amend constitution At same hearings, Dillon Myer, Commissioner Bureau submitted revision proposed Patten. respects, present purposes all just Arizona. discussing Myer "[w]e certainly intend revise regarding anyone else, should provided. [The revision] sections discriminate opportunity they covered A-26-A-27. 20 hearing, unofficial report again urged ended generally, "transactions concerned contrary (May 6, A-54. D'Ewart read telegram sent Chairman Navajo Tribal Council. indicated people supported "anti-discrimination bill" measure ensure "equal rights." A-59. 21 sponsor "if discrimination, comply every regard. (June 2, A-69. Patten's remarks valuable meaning interpretation 'authoritative guide statute's construction.' Bowsher Merck Co., 1587, 1593, 580 (1983) North Haven Board Education Bell, 456 512, 527, 102 1912, 1921, 72 299 (1982). 22 Report eliminating discrimination caused "applicable Indians." H.Rep. 775, (1953). included official stating lifted 3. Senate expressed sentiments: enacted, local municipality tribes, desire, enactment proper ordinance, restrict Indians, so." S.Rep. 722, (1953), U.S.Code Cong. Admin.News pp. 2399, 2400 23 viewed abolishing prohibition, legalizing government Early administrative practice prior confirm understanding 24 noted heavily drafting revised eventually became 1954 opinion, ironically rendered response Solicitor plainly laws. Specifically, stated: fact authorize reserva ion packages off premises not, my impinge foregoing Equalization sold. circumstances, person on-premises his license, presumably he immune prosecution and, thus, issued agency fully effective far concerned." Memo. Sol. M-36241 (September 22, 1954) 26 Interior's Handbook, 1958, Solicitor, citing permits package premises, give protection prosecutions, prosecutions 1156." 382-383 added).13 27 Both believed merely liability, affirmatively empowered neither nor 1345; 9. 554, 716, rejected accept State. delegate reservations. Since found delegation basis statutory language conform "both adopted" governing added), ignore plain failed States.14 argues acknowledged "possessed Respondent, 67. discussion doctrine i self-government; rather, 717-718. doubted borders enough 28 thrust argument, primary focus below, preempted quoted supra: 'State 845). alcohol.15 29 Even case, result same. 1958 edition 845. volume, assumed failing 382-383. Whatever "expressly" obviously done suggested satisfied satisfy canon, cited "state reservations." 177, 16, 1265, 16.16 More important, "We [resolving ambiguities Indians] broadest possible scope, remains anon complex treaties, statutes, contracts define status tribes. expressions intent." DeCoteau County 420 425, 447, 1082, 1094, 43 300 (1975). Andrus Glover Construction 446 608, 619, 1905, 1911, 64 548 intent history.17 30 resulted Native Americans. aware never enjoyed concerned. prohibiting By fill void created absence prohibition. make "super citizens" trade traditionally substance free self-imposed 1352 (Goodwin, J., dissenting). Rather, believe recognize Americans "weak defenseless," capable making personal about without assistance Application 571.18 On "specifically [does] th Warren Trading Post Co. 380 685, 687, 3, 85 1242, 1243, 165 (1965). III remanded further proceedings consistent opinion. 32 ordered. 33 BLACKMUN, whom BRENNAN MARSHALL join, dissenting. today holds prevent selling trader's payment fee. I lacks dissent. 35 1790, see Act Stat. 137, persons engaging Existing provides: appoint traders rules deem specifying kind quantity goods prices Aug. 1876, ch. 289, 5, 200, 261 37 wishing "permitted prescribe," once satisfaction trade." Mar. 1901, 832, 1066, amended 1903, 994, 10, 1009, 262. 38 Pursuant authority, promulgated detailed conduct traders. CFR §§ 140.1-140.26. An applicant submit information financing, background business experience, intends employ. employees references. 140.9(a). Gambling drug prohibited. 140.19, 140.21. reviewable officials, books inspection, merchandise good quality, credit practices restricted. 140.22, 140.24. described aptly "comprehensive" "all-inclusive." Comm'n, 690, 1245, 39 Post, "would seem taken hand room imposing additional burdens traders." levy gross proceeds reasoning 40 frustrate evident ensuring burden Acts valid Acts. put financial [the trader] deals prescribed, thereby disturb disarrange plan set up. 691, 1246. recently reaffirmed Central Machinery 160, 2592, 684 lacked unlicensed maintained place "It existence statutes," said, "and administration, field occurring 165, 2596. 'undertaken legislate subject.' 166, 2596, quoting 1246, Court's Machinery, taxes, extends types well. requirement, choose sell. "sole type vested 261, applicants win Commissioner's approval trade, authorities scheme. Yet imposes product—liquor. reserves deny sell, t grants permission, fee.1 clearly "frustrate[s] regulations." explain how reconciles Instead, appears rest conclusion three propositions. asserts "tradition Ante, 722; ante, 725, 731. finds "historical 724; 726, 728, 731, Third, concludes "authorized transactions" 726. None propositions supports conclusion. 44 gives too much cases, reach comprehensiveness colored recognition "traditional deeply engrained jurisprudence 'backdrop' vague ambiguous always measured." (1980), (1973). turned being tribe's Ramah School Board, Inc. Revenue, 458 3394, 73 1174 (1982), example, pervasive schools precluded school. "encourag[ed] development Indian-controlled institutions" until 1970's, 3400, school modern times," 3397. (1976), operator "smoke shop" cigarette retailer's license; inquire sales. And (1973), concluded personalty installed ski ifts resort, yet scarcely argued resorts 45 hardly surprising, once-prevalent view constant supervision, times extended education, retailing, resorts. fall tribes' historic powers, leaving control, States' exercise "[c]ontrol affairs." F. 307 (1982 ed.). began 1802, 30, 146, absolutely 1953. 1154, 1156. 46 perceives country," 724, disingenuous best. correctly notes instances enforce 723-724, nn. 9-10. But sources suggest decide might country, law.2 47 source sales, relies, various [the] ."3 Section "local-option allowing [is] violated." 547, 713, demonstrated review history, 726-728, indeed itself, ensures remain statute. altogether "dry," "dry" bans minors Sundays, Sunday forbidden words, past, "permit[s] sta dards added).4 course, raised respecting standards. challenged substantive conditions or, authorizes doing business.5 question, silent. 49 silence significant, frequent "State apply." 170-171, 1261, (1958); 376, 2105, (1976). more mere grant 4(a) Pub.L. 280, 67 589, 1360(a), "civil private property elsewhere." seemingly language, "remotely resembling intention civil 384, 2109. several Congress—the so-called termination Acts6—expressly Construing 280 pari materia, powers 390, 2111-2112. 50 here. contexts "compl[iance] requirements" party E.g., Hancock Train, 167, 2006, 555 (1976) (interpreting 118 Clean Air Act, 1857f); EPA Water Resources 2022, 578 313 Pollution Amendments 1972, 1323). charged administering takes position Applicability Laws Montana Rocky Boy's 78 I.D. (1971), entitled deference.7 considered position. 590 323 (CA10 1978), cert. denied, 444 63, 62 (1979).8 hold attempt 51 strongly feels desirable good. that, however strong feelings be, activism indulge. therefore 1151 defines "Indian country" "(a) land government, notwithstanding issuance patent, rights-of-way running communities subsequently acquired territory thereof, (c) allotments, titles extinguished, same." confusion among parties amici irrespective identity vendor. acknowledge somewhat construe applying vendors, tribe. Cal Bus. Prof.Code Ann. 23000 et seq. (West). provisions 1156, 3113, 3488, 3618, title, Register." appealed Circuit, three-judge panel appeal, arose presenting similar issues. Circuit scheduled en banc cases. companion Muckleshoot 79-4403 (CA9), Tulalip 79-4404 (CA9). involved, inter alia, discussed relied district made Amendment re ervations. 1360; 1162. oral General curiae "substantive" Oral. 31-32, 40. infra. Finally, reject suggestion moot now Cal.Bus. 23384 (West) (Supp.1983). confirmed despite change, effect. 19. nondiscriminatory customers retailers conducted businesses retailer collect tax. upheld non-Indians though 'the taxation, absent cessation it, o satisfactory taxing lands carried .' 475-476, 1642 (1973)). "[s]uch seriously disadvantages eliminates non-Indians. [because] volume all." 151, 27, 2080, 27. resident nonmembers "stand footing reservation" 161, 2085. Regulation "contravene principle self-government," ibid., therefore, militates Cohen notes: "Restriction colonial times. use, worthy note least part, verbal plea chief President Jefferson That depended trafficking. enacted 1822 monetary added Trade Intercourse 1834, imprisonment 1862." "Since 1834 penalized operation distillery therein. Possession separate crime since 1918. (or otherwise conveying) country; 1862 replacement broadened include superintendence agent, outside provision code part 1854, confined conditionally suspended latter section." 306-307 (footnotes Ariz.Const., art. 20, (prohibition removed 1954); N.M. Const., 1953); Okla.Const., 1959). See, e.g., Rorvick, Idaho 58, 277 P.2d 566 (1954); Lindsey, 133 Wash. 140, 233 P. 327 (1925); Dagan 162 Wis. 353, 156 N.W. 153 (1916); Justice, Utah 484, 141 109 (1914); Mamlock, 631, (1910); People Gebhard, 151 Mich. 192, 113 54 (1908); Tate Neb. 296, 494 (1899); Wise, 70 Minn. 99, 843 (1897); Bray, 105 Cal. 344, 731 (1894); Territory Guyott, Mont. 46, 134 (1889); Coleman, Or. 191 (1855). G. Colby, Digest Excise Some Union Foreign Countries 9, 36, (1888) (describing Colorado, Missouri, Nevada). preemptive 1348, obligated incorporate analysis." 1348. dissent, BLACKMUN "never control." 739 original). support proposition, Revenue Moe, fail BLACKMUN's Ramah, 'permanently attached realty'. [and] ad valorem tax." 158, 1275. Contrary suggestion, none situation regulate. May June officially published, brief. changed 1971, Decisions whose 1055, surely indicative 1953 1971 contrary. addition, based (1965), drew distinction Decisions, 40, 1. actually "permitting conditions." understand description interpreted creating "regulatory" Solicitor's new owes anything interpretation. accepts believes articulated For reasons infra, arguments successful. readily based, normally resolve "wards nation." 174, 1263, Carpenter Shaw, 363, 367, 121, 122, 74 478 (1930)). problematic. largely due seek controlling access Talk Little Turtle Thomas January 4, IV American Papers, I, Class 655 (1802). many responsible primarily "dependent" status, makes sense say "wards" giving delegated. (1962), consent itself." 712-713, Termination Acts, [28 1161] applicability para materia together." 1345, view, contain statutes. passing contingent 41-44. neglects return acquiescence 459, 3235, 3624 82d 2d (1952). appeared distribution. According refers violation incorporated difficulty apparent. Nowhere text possibly distinction. Cf. 2111-2112, (grant 1360 taxation). interpreting scope jurisdiction. holding. shown occupy field. history. exclusion earned while think difference similarly fails point. off-sale accompanied fee $6,000, deposited Fund. 23954.5 (West Supp.1983). Once granted, licensee pay annual fees totalling $409. 23053.5, 23320(21), 23320.2. Portions Fund 23320.2, 25761. Licenses available very numbers, 23817 1964), transferable Control, 24070 alleged market price approximately $55,000. App. JA-7. convictions barring descent. Such unconstitutional today, event activities. (1925), conviction operating land. "no Indian, non-tribal, [was] action," P., 328, relying Draper 164 240, 107, (1896). cross-referenced prohibit possession establish procedures enforcing prohibitions. exercises 588, 1162, directly misdemeanor furnish minor, 25658 1964); elsewhere. regulating affairs, chosen (Assimilative Crimes Act); 1153 (Major Act). enforcement States. 68 718, 564; 768, 726; 1099, 757. Relying "contemplated laws." 729. fact, limit i.e., limit, individual obtained case: "What constitute appropriate me Nor discuss Liquor—Tribal Ordinance Regulating Traffic Within (Sept. 1954), Opinions Relating 1917-1974, 1648, 1650. addressed 1971: "If jurisdiction, sec. do. used standard measurement lawful unlawful I.D.,

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