Document: 462 U.S. 324 103 S.Ct. 2378 76 L.Ed.2d 611 NEW MEXICO, et al., Petitionerv.MESCALERO APACHE TRIBE. No. 82-331. Argued April 19, 1983. Decided June 13, Syllabus With extensive federal assistance, respondent Indian Tribe has established a comprehensive scheme for managing the fish and wildlife resources on its reservation in New Mexico. Federally approved tribal ordinances regulate detail conditions under which both members of nonmembers may hunt fish. Mexico hunting fishing regulations that conflict with, some instances are more restrictive than, regulations, State applied to by reservation. The filed suit Federal District Court, seeking prevent from regulating on-reservation fishing. Court ruled Tribe's favor granted declaratory injunctive relief. Appeals affirmed. Held: application Mexico's laws is pre-empted operation law. Pp. 330-344. (a) exercise concurrent jurisdiction would effectively nullify unquestioned authority use nonmembers, interfere with regulatory scheme, threaten Congress' overriding objective encouraging self-government economic development. 338-341. (b) failed identify any interests justify assertion authority. Any financial interest might have way revenues sale licenses who or matching funds based number state sold, insufficient justification, especially where loss such likely be insubstantial. 341-343. 677 F.2d 55 (10 Cir.1983), Thomas L. Dunigan, Santa Fe, N.M., petitioners. George E. Fettinger, Alamogordo, respondent. Louis F. Claiborne, Washington, D.C., U.S., as amicus curiae, special leave Court. Justice MARSHALL, delivered opinion 1 We called upon decide this case whether restrict an regulation assistance supervision, Mescalero Apache reservation's resources. Tribal seeks apply own hold preempted 2 * (Tribe) resides located within Otero County south central reservation, represents only small portion aboriginal domain, was created succession Executive Orders promulgated 1870's 1880's.1 present comprises than 460,000 acres, owns all but 193.85 acres.2 Approximately 2,000 reside along 179 non-Indians, including resident employees Bureau Affairs Health Service. 3 organized Reorganization Act 1934, ch. 576, 48 Stat. 984, 25 U.S.C. § 461 seq., authorizes tribe residing adopt constitution bylaws, subject approval Secretary Interior (Secretary). Constitution, January 12, 1965, requires Council 4 "[t]o protect preserve property, natural tribe, conduct trade disposition property providing ordinance directly affecting non-members shall review Interior." App. 53. 5 Constitution further provides 6 "adopt approve plans govern business industry will well-being undertake activity not inconsistent law constitution, designed social improvement people, . Ibid. 7 Anticipating decline lumber h been largest income-producing recently committed substantial time development other sources income. constructed resort complex financed principally funds,3 undertaken These efforts provide employment opportunities Tribe, related services generates income used maintain government members.4 8 Development involved sustained, cooperative effort Government. Indeed, wholly attributable these recent efforts. Using funds, eight artificial lakes which, together streams, stocked Sport Fisheries Wildlife Fish Service, Department Interior, operates hatchery None waters State.5 United States also contributed substantially creation game Prior 1966 there were 13 elk vicinity In 1967 National Park Service donated herd 162 released Through management range development6 dramatically increased population, 1977 numbered approximately 1,200. significantly includes antelope, bear deer.7 9 Government jointly program. Pursuant agreement Wildlife,8 adopts each year. ordinances, establish bag limits seasons licensing fishing, so approved. basis recommendations submitted conservationist assisted full- ime conservation officers employed Tribe. made light needs determined annual counts surveys. Wildlife, determines stocking periodic surveys 10 Numerous conflicts exist between regulations.9 For instance, often do coincide those imposed State. permits hunter kill buck doe; killed. Unlike State, person purchase license two consecutive years. Moreover, since 1977, specified required Indians non-Indians reservation.10 Game enforced State's arresting non-Indian hunters illegal possession killed accordance regulations. 11 against Director Mexico, nonmembers. On August 2, 1978, relief enforcement activities conducted Tenth Circuit 630 724 Cir.1980). Following petition writ certiorari, vacated Circuit's judgment, 450 1036, 101 1752, 68 234 (1981), remanded reconsideration Montana v. States, 544, 1245, 67 493 (1981). remand, adhered earlier decision. Cir.1982). --- ----, 371, 74 506 (1982), we now affirm. II 12 concedes exercises exclusive over nonmembers.11 contends, however, it therefore governing throughout should Although does claim can require permit claims that, once chooses State-imposed conditions. Under view free impose outright prohibition. question Our decision supra, resolve question. case, concerned lands owned members. held Crow could general matter lands. at 557-567, S.Ct., 1254-1259.12 But "lands belonging trust Tribe," "readily agree[d]" "prohibit [or] condition their entry charging fee creel limits." Id., 557, 1254. had no occasion manner permitted 14 numerous occasions considered assert Worcester Georgia, Pet. 515, 561, L.Ed. 483 (1832), reflected tribes distinct nations whose boundaries "the [a State] force." long ago departed "conceptual clarity Mr. Chief Marshall's Worcester," Jones, 411 145, 148, 93 1267, 1270, 36 114 (1973), acknowledged certain limitations sovereignty. implicitly divested sovereignty respects virtue dependent status,13 circumstances validly reservation,14 exceptional members.15 15 Nevertheless, demarcating respective spheres reservations, continued stress "Indian unique aggregations possessing attributes territory," White Mountain Bracker, 448 136, 142, 100 2578, 2582, 65 665 (1980), quoting Mazurie, 419 95 710, 717, 42 706 (1975). Because sovereign status, insulated "historic immunity local control," 152, 1272, retain aspect historical "inconsistent Government." Washington Confederated Tribes, 447 153, 2588. 16 retained power internal relations," Kagama, 118 375, 381-382, 1109, 1112-1113, 30 228 (1886), cited Wheeler, 435 313, 322, 98 1079, 1085, 303 (1978). A tribe's prescribe never doubted, our cases "absent Acts Congress," act "infringed right make them." McClanahan Arizona Tax Comm'n, 164, 171-172, 1257, 1261-1262, 129 Williams Lee, 358 217, 219-220, 79 269, 270, 251 (1959). See Fisher 424 382, 388-389, 96 943, 947, 47 106 (1976) (per curiam ). 17 exclude entirely presence equally well established. See, e.g., supra; Merrion Jicarilla 455 130, 102 894, 71 21 (1982). Whether raises "[m]ore difficult questions," 144, 2584. While acting see, Moe Salish & Kootenai 425 463, 1634, (1976), asserted if Ramah Navajo School Bd., 3394, 73 1174; Central Machinery Co. 160, 2592, 684 (1980); (1959); Warren Trading Post 380 685, 85 1242, 165 (1965); Kennerly Montana, 400 423, 91 480, 27 507 (1971). 18 Bracker reviewed prior decisions concerning reservations extracted principles determination preempts stated depend "on mechanical absolute conceptions sovereignty, calls particularized inquiry into nature state, federal, stake." 19 emphasized sense doctrine preemption context. id., 143-144, 2583-2584; 3398. certainly without familiar preemption, cautioned tha did limit circumstances. "The origins sovereignty" commitment self-sufficiency self-determination "treacherous import notions properly contexts." 143, 2583. 3399. By resting analysis consideration competing stake, rejected narrow focus congressional intent preempt sole touchstone. They proposition "an express statement effect." 2584 (footnote omitted). interferes incompatible law, unless stake sufficient 3403, Hines Davidowitz, 312 52, 67, 61 399, 404, 581 (1941).16 20 Certain broad considerations guide assessment interests. traditional crucial "backdrop," 2583, citing McClanahan, 172, 1262, must assessed. firmly goal promoting self-government, embodied statutes.17 stressed furthering encompasses far disputes members, "tribal development." 2583 part necessary implication commitment, manage territory nonmembers,18 Merrion, 137, 901; 151, 2587; 1162(b); §§ 1321(b), 1322(b); 1165, 901, defray cost governmental levying taxes. Thus, when undertakes enterprise viewed interference successful accomplishment purpose. generally omitted), 3402, (1941) (State precluded "stands obstacle full purposes objectives Congress"). guides imposes additional burdens ordinarily justified functions performed connection activity. ---- note 7, 3402 7; 148-149, 2586; 174, 2601, (1980) (POWELL, J., concurring). Thus tax transaction point raising revenues. Arizona, supra. 157, 2083 ("governmental strongest directed off-reservation value taxpayer recipient services"); Moe, 481-483, 1645-1646 shops collect cigarette non-member purchasers). particularly effects necessitate intervention. Cf. Puyallup Dept., III 22 mind, turn superimpose scheme. A. 23 It beyond doubt lawfully control luding wildlife. As noted above, 330, conceded Mexico,19 Treaty 1852 non-members. specifically recognized 24 expressly confirmed statutes.20 Pub.L. 280 confirms 588, 1321(b); 1162(b).21 This afforded protection criminal makes violation enter land hunt, trap consent tribe. 562 n. 11, 1256 11. 1981 amendments Lacey Act, 3371 accord force making offense "to import, export, transport, sell, receive, acquire, taken possessed law." 3372(a)(1).22 B Several strongly support Appeals' conclusion jurisdiction. important emphasize Concurrent empower supplant able dictate terms utilize thus sufferance repeatedly treaties explicitly rather hollow ring amounted this. 26 Furthermore, jurisdicti n completely "disturb disarrange", 691, (1965), pursuant described 326, ordinances. Those Affairs. stocks determinations availability fish, biological requirements, pressure 71.23 dual system: governed while regulated laws. severely hinder ability sound reflect specific establishing optimal level occur, simply maximum exceeded. contrast necessarily relevant to, possibly hostile permitting doe curb excessive growth deer population 153-154. Enforcement frustrate objective. Similarly, determining seasons, limits, availability, regulates duration intensity hunting. take account factors, capacity terrain, utilization animals, personnel monitor hunts. Permitting enforce different restrictions because they appropriate whole insurmountable task ensuring patchwork remains consistent 28 commits responsibility most unlikely Congress authorized, established, financed, participated thought entire arrangement.24 Requiring yield whenever seriously "undermine Secretary's [and Tribe's] wide [their] authority." 149, 2586. 390, 948, curiam); (1975).25 29 disrupt engaged concerted sustained undertaking develop benefit project essential removed situations, sales outlets market goods manufactured contribution de minimis. 134, 154-159, 2069, 2081-2084, (1980).26 clearly involves "value generated involving Trib[e]." 156-157, 2082-2083. disruptive effect result plainly "stan[d] 3402-3403, (1941). C "identify function service justify" occur either native joint contribute sig ificant respect maintenance resources, "governmental provides," 3401, 31 cannot warrant Some species lands, points occasionally do. subjects rights common conserving scarce, supply justifies 433 175-177, 97 2622, 2622-2623. adverse impact outside reservation." Appendix Brief Opposition 35a.27 32 recognize deprived calculated sold.28 However, insubstantial given numbers persons licenses.29 unlike here concerns Finally, already noted, 342, pointed imposing form license, 3402; 2601 concurring), desire obtain inadequate case. 150, 3402.30 IV 33 body working closely Governme t exercised lawful firm encouragement Given strong favoring absence authority, conclude preempted. 34 Accordingly, judgment 35 Affirmed. C. Klapper, Affairs, Laws Treaties 870-873 (1904). final fixed Order Mar. 24, 1883 (Order President Arthur). Portions briefly included Forest, restored Feb. 17, 1912 Taft). An intervening 1, 1910, issued Taft exempted "small holdings claims" covering settlements before establishment purchased 23.8 acres covered claims. comprise remaining claims," see St. Joseph's Catholic Church 29, 1928, 299, 45 1716; unimproved unoccupied 160 acre "Dodson Tract" northwest 3. Financing complex, Inn Gods, came Economic Administration (EDA), agency Commerce, sources. addition, obtained $6 million loan Bank 90% guaranteed 1974, 1451-1543, 10% funds. facilities funded EDA public works projects, received 50% funding EDA. 7a-8a. Income licenses, "package hunts" combine Inn, campground picnicking totalled $269,140 1976 $271,520 1977. vast majority nonmember fishermen residents 1976. controlling reducing wild horses cattle, compete available forage importation Wyoming provided requested; requests limited. 16a. That agreement, Bureau, obligates "designate open fishing" fishery resources." 71. persisted despite parties' stipulation Commission attempted "accommodate preferences tribes." 25a. consented Petitioner 20; Tr. Ora Arg. 7. Even so, inherent forms civil even lands." 565, 1258. pleadings "did allege [non-Indian] [had] impaired [the reserved privileges]," 558 6, 1234 "that imperil subsistence welfare 566, 1258, existing record suggested political security." Oneida Nation Oneida, 414 661, 667-668, 94 772, 777, 39 (1974); Oliphant Suquamish 191, 1011, 209 (1976). 165, 2616, 53 667 (1977). upheld Washington's Like rested fact dispute centered although boundaries, longer belonged tribe; 18,000 alienated simple. relied provision treaty qualified Indians' requiring "in citizens Territory," 175, resource. barred independent barrier—inherent sovereignty—if "unlawfully infringe[s] 'on them.' " 220, Yakima Nation, 439 502, 99 740, 762, 58 740 (1979); (1971)." 142-143, 2582-2583. example, 1451 states: "It hereby declared policy help physical human, fully enjoy standard living productive comparable enjoyed neighboring communities." 1451. Similar policies underlie Self-Determination Education Assistance 1975, adopted Constitution. "intent purpose 'to rehabilitate Indian's life give him chance initiative destroyed century oppression paternalism.' H.R.Rep. 1804, 73d Cong., 2d Sess., (1934). Civil Rights 1968, 1301 likewise reflects promote well-established 'policy self-government.' Clara Pueblo Martinez, 436 49, 62, 1670, 1679, 56 (1978), Morton Mancari, 417 535, 551, 2474, 2483, 41 290 (1974). contains "significant geographical component." 2587. prescriptions "nondiscriminatory law" "express contrary." 1270. originally subsistence, freely took ancestral territory, July 1852, 979, regarding domain eventually set apart Brief, 12. Menominee 391 88 1705, 697 (1968); 558-559, 1255, Winans, 198 381, 662, 664, 49 1089 (1905) (recognizing "were much less existence atmosphere breathed"). 476, reaffirms "all powers vested council granting thereby authorized "deprive band, community right, privilege, treaty, statute hunting, trapping, control, thereof." 1321(b) (emphasis added). Sections 3375(a) authorize agreements provisions by, inter alia, arrests serving process. earlier, 327-328, played role assumed precisely opposite true—that preempted—when he need licenses. assumption Interior's openly acknowledges agree "[i]nsofar possible said regulations." (Emphasis reinforced 280. grants limited meet excludes evidences understanding interference, "Congress jealously protected" exemption conflicting "had residual [laws] event." 177, 1265, (1973). concluded Buck 105 exempting grant areas, evidence exempt Tribes smokeshops sold cigarettes 2081-2084. marketing reservation," 2082-2083, instead merely "tax receive significant services." 2083. reject suffers lack fill void. expel violate Trespassers referred prosecution 1165. Amendments 1981, penalties forfeiture vehicles equipment violation, 3373, 3374, provisions. 3375(a), (b). receives through Pittman-Robinson 669 (hunting), Dingle-Johnson 777 (fishing), allocated formula considers years antelope compared 3,500 50 14,000 500 100,000 expended projects during last six Br. 17a-18a. presented expenditures

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