Document: 465 U.S. 463 104 S.Ct. 1161 79 L.Ed.2d 443 Herman S. SOLEM, Warden, and Mark V. Meierhenry, Attorney General of South Dakota, Petitionersv.John BARTLETT. No. 82-1253. Argued Dec. 7, 1983. Decided Feb. 22, 1984. Syllabus The Cheyenne River Act (Act), enacted in 1908, authorized the Secretary Interior "to sell dispose of" for homesteading a specified portion Sioux Reservation located with sale proceeds to be deposited United States Treasury credit Indians having tribal rights on reservation. Respondent, member Tribe, was convicted attempted rape Dakota state court. After exhausting remedies, he filed habeas corpus petition Federal District Court, contending that crime occurred within Indian country, although opened reservation homesteading, it did not diminish reservation, therefore State lacked jurisdiction over him, federal courts exclusive under 18 U.S.C. § 1153. Court issued writ corpus, Appeals affirmed. Held: Pp. 466-481. (a) Only Congress can divest an its land boundaries. But must clearly evince intent change boundaries before diminishment will found. When both surplus legislative history fail provide substantial compelling evidence such intent, this is bound by traditional solicitude tribes rule take place old survived opening unallotted non-Indian settlement. 466-472. (b) Here, Act's operative language authorizing "sell dispose" certain lands, coupled creation accounts proceeds, suggests simply being act as Tribe's sales agent. balance consistent implication but In fact, provisions strongly suggest lands would immediate future remain integral part Isolated phrases supporting view diminished, when balanced against stated limited goal up settlers, cannot carry burden establishing express congressional purpose diminish. 472-476. (c) Nor do either circumstances surrounding passage or subsequent events establish clear Moreover, portions have retained their character since 1908. 476-480. 691 F.2d 420 (CA8 1982), Atty. Gen., Pierre, S.D., petitioners. Tom D. Tobin, Winner, Dewey County, et al., amici curiae, special leave Court. Arlinda Locklear, Washington, D.C., respondent. Justice MARSHALL delivered opinion 1 On May 29, open 1.6 million acres homesteading. ch. 218, 35 Stat. 460 seq. ("Act" "Cheyenne Act"). question presented case whether diminished permitted non-Indians settle existing 2 * 1979, charged respondent John Bartlett, enrolled rape. Respondent pleaded guilty charge, sentenced ten-year term penitentiary at Falls. pro se Dakota. contended which had been Reservation, established March 2, 1889, 405, 4, 25 889; that, settlement committed his crime, nonetheless remained country;1 criminal respondent.2 3 Relying previous decisions Eighth Circuit dealing 1908,3 accepted respondent's claim original corpus. appeal, Circuit, sitting en banc, affirmed, two judges dissenting. Bartlett v. Solem, (1982). Because Supreme has pair opinions offering conflicting interpretation 1908,4 we granted certiorari. --- ----, 103 2427, 77 1314 (1983). We now affirm. II 4 latter half nineteenth century, large sections western Territories were set aside reservations. Towards end however, increasingly adhered should abandon nomadic lives communal reservations into agrarian economy privately-owned parcels land.5 This shift fueled belief individualized farming speed Indians' assimilation American society continuing demand new waves homesteaders moving West.6 As result these combined pressures, passed series acts turn century force onto individual allotments carved out Initially, legislated allotment program national scale,7 time reservation-by-reservation basis, each employing own statutory language, product unique negotiation compromise. 5 modern legacy spate jurisdictional disputes between officials sovereign authority ownership.8 doctrinal matter, if applicable freed status thereby other hand, Federal, State, Tribal authorities share relevant because entire area country 1151(a). See nn. supra. Unfortunately, themselves seldom detail divested all interests. passed, distinction seemed unimportant. notion might coextensive ownership unfamiliar century. judicially defined include only those held some form property interest: trust allotments, and, more degree, yet claimed non-Indians. Bates Clark, 95 204, 24 L.Ed. 471 (1877); Ash Sheep Co. States, 252 159, 40 241, 64 507 (1920). 1948 uncouple from ownership, statutorily define fee June 25, 1948, 645, 1151, 62 757 (codified 1151). 6 Another reason why concern itself effect turn-of-the-century assumption thing past. Consistent prevailing wisdom, members voting believed man short time—within generation most—the enter system cease exist.9 Given expectation, naturally failed meticulous clarifying particular piece legislation formally sliced parcel off one 7 Although Congresses anticipated imminent demise partially facilitate process, never willing extrapolate expectation specific diminishing every act. Rather, settled law reservations, see, e.g., Rosebud Tribe Kneip, 430 584, 97 1361, 51 660 (1977); DeCoteau County 425, 1082, 43 300 (1975), not, Mattz Arnett, 412 481, 93 2245, 37 92 (1973); Seymour Superintendent, 368 351, 82 424, 346 (1962). any given depends underlying passage.10 Our precedents fairly clean analytical structure distinguishing offered opportunity purchase first governing principle Once block no matter what happens title plots area, retains until explicitly indicates otherwise. Celestine, 215 278, 285, 30 93, 94-95, 54 195 (1909).11 8 Diminishment, moreover, lightly inferred. analysis requires "intent boundaries" supra, U.S., 615, S.Ct., 1377. most probative used lands. Explicit reference cession evidencing present total surrender interests meant unalloted 444-445, 1092-1093; 355, 427. buttressed unconditional commitment compensate tribe land, there almost insurmountable presumption tribe's diminished. 447-448, 1094-1095. 9 our demonstrates, see n. 10, explicit compensation are prerequisites finding diminishment. particularly manner transaction negotiated involved tenor reports Congress—unequivocally reveal widely-held, contemporaneous understanding affected shrink proposed legislation, infer shared action notwithstanding presence otherwise unchanged. To lesser extent, also looked after decipher Congress's intentions. treatment areas, years immediately following opening, evidentiary value, does Bureau Affairs local judicial dealt 10 pragmatic level, recognized who actually moved deciding Where settlers flooded long lost character, acknowledged de facto, jure, may occurred. 588, 3, 1364, 604-605, 1372-1373; 429 428, 1085. addition obvious practical advantages acquiescing facto diminishment,12 look demographic additional clue expected happen once settlers.13 11 There are, course, limits how far go intention opening. 505, 2258, III A. 12 apply principles begin reads: 13 "[T]he . hereby [ ] directed, hereinafter provided, Standing Rock14 North lying described 14 "[F]rom arising disposition aforesaid, customary fees commissions, shall belonging aforesaid sums respective entitled ." Ch. §§ 1, 6, 460-461, 463. 15 These stand sharp contrast employed Lake Traverse 1904 Acts discussed Tribe. Rather than reciting agreement "cede, sell, relinquish convey" authorizes Indeed, faced precisely same 356, 427, concluded "did way Government, acting guardian trustee Indians, regarded beneficial development wards."15 16 largely Reservation. Nowhere else Act, "for agency, school, religious purposes, reserved needed, institutions maintained thereon benefit said Indians." 461. It difficult imagine purposes anticipate supported permission continue obtain officially settlers. Id., 462-463. Also instructed Geological Survey examine "lands bearing coal" exempted disposal, apparent reserve mineral resources whole tribe. 462; S.Rep. 439, 60th Cong., 1st Sess., (1908). 17 made difficult, indirectly supports petitioner's For instance, provision permitting already holding unopened territories, refers territories "within thus diminished." C. Elsewhere, permits harvest timber parts conditions grant "only public domain." 9, 464. refer domain vestiges status, petitioners several point "public domain" well phrase "reservations diminished" understood status.16 Undisputedly, references areas "the comprising support isolated phrases, hardly dispositive.17 And, Cf. 497-499, 2254-2255.18 read whole, expression Reservation.19 B 19 Tribes, agreed cede territory government.20 origins "A bill authorize Rock reservations," introduced Senator Gamble December 1907. S.1385, Sess. (1907). consideration, dispatched Inspector McLaughlin Reservations consult Tribes about bills. 20 During meeting admittedly spoke terms relinquishment territories. However, impossible say presented. Due bad weather during McLaughlin's visit, 63 attended meeting. At close presentation, president Business Council discuss could respond bill. delay submission report received word but, vote reached Washington days later, sent conclusion: "The general sentiment council me agency favor [of lands.]" H.R.Rep. 1539, (1908); id., 23-24, 28. McLaughlin, informed low attendance formal approval 8. 21 With full it, considered April neither floor debates statement interpreted areas.21 Indian's position was: upon satisfied disposed amended." (1908), quoted part, debate centered much money paid going buy school mention reservation's areas. 42 Cong.Rec. 4753-4755 (Apr. 15, 1908) (Senate debate); 7003-7007 (May 26, (House debate). 22 sure, few scattered through position. Both Senate House Reports "reduced reservation" use ample needs tribes." adopted 3. unclear alluding reduction Indian-owned occur sold complete precipitate. 17, Without entering absence alter boundaries, ambiguous C 23 Congress, courts, Executive so rife contradictions inconsistencies help side. called "surplus Reservation," suggesting still 23, 1910, 369, 36 602 (emphasis added). But, twelve another referring former" Apr. 1922, 140, 499. Ample examples pointing directions distinct impression A similar confusion characterizes Executive's Reservation's lands.22 parties able cite instances exerted disputed opening.23 Neither dominated decades What clear, happened passed. Most obtained Act.24 lived personnel took primary responsibility policing supplying social services 1908.25 strong continued day. Now roughly thirds live area. seat government town where important activities place. historical fact failure. Few perfected claims due perhaps price probably importantly less fertile southern acts.26 small number high percentage population evenly divided residents. Under circumstances, character. IV 26 passage, nor intend stands, judgment 27 Affirmed. "Indian country" 1151 mean "(a) issuance patent, including rights-of-way running dependent communities borders subsequently acquired thereof, without state, titles extinguished, same." 1153 provides: "Any commits person offenses, namely, assault commit subject laws penalties persons committing above States." Within crimes non-Indians, New York ex rel. Ray Martin, 326 496, 66 307, 90 261 (1946), victimless exercise concurrent minor 1152, 1153, unless assumed 1162. Dupris, 612 319 1979), vacated remanded grounds, 446 980, 100 2959, 836 (1980); Long Elk, 565 1032 1977); Condon Erickson, 478 684 1973). Janis, 317 N.W.2d 133 (S.D.1982); Stankey Waddell, 256 117 (S.D.1977). An account movement appears F. Hoxie, Jurisdiction Reservation: Analysis Causes Consequences 1-30 (undated manuscript) (hereinafter Hoxie), prepared presentation incorporated record case. Note, Jurisdictional Confusion S.D.L.Rev. 355 (1980). Felix Cohen's Handbook Law 127-134 (1982 ed.) Cohen). amount considerable. 2,626 2.8 1,000 per member. program, average 500 acres. Hoxie 38, 40. See, Allotment 1887, c. 119, 388 Regardless allotments. 1151(c). addition, restored Reorganization 1934, 576, 48 984 461 (1982) (authorizing return reservations), fall Montana 450 544, 559-560, 101 1245, 1255-1256, 67 493 (1981); 1-20. rejected policy 1934. extreme, example, 1891, 543, 1035 seq., expressly interest further provided receive consideration loss. found cession, 1906, 1126, 34 80, Colville Reservation; whatever generated, rather sum certain. 9. Stat., 81. divestiture 497, 2254. Between extremes 1901, voted Gregory exchange Three 1904, 1484, 33 254-258, agreement's replaced sum-certain payment guaranteeing Over years, involving counties; disposal promised sales. 1907, 2536, 1230-1232; 30, 260, 448-452. none severed even though last strikingly 1906 three unequivocally demonstrated time, thought consent needed Lone Wolf Hitchcock, 187 553, 216, 47 299 (1903), decided unilaterally. predominately populated surviving pockets remains seriously burdens administration governments. supra; Conversely, problems imbalanced checkerboard arise outside country. 358, 428-429. Resort is, unorthodox potentially unreliable method interpretation. acts, various factors kept focusing issue, 468, technique necessary expedient. reveals, bordering concerned nothing leads us suspect intended different Petitioner stresses, 1907 1908 Acts, colored existence containing "precisely suited" disestablishment, admission second did. 597, 606, 1368, 1373, 29; Brief 19-24; Counties Dewey, Amici Curiae 12-14; Duchesne, 39-45. considerable doubt using phrases. "diminished" art law. "reservation diminished," common 687. Similarly, diminishment, conceived inasmuch they available dissenting so-called liquor prohibition N.W.2d, 121, 126; F.2d, 334; (school provision); 40, 196-197 (liquor act). credited supportive 605-615, 1372-1377, inferences obviously secondary importance decision, independent diminish, suspect. Amicus 14, 16, 16; 623, 12, 1381, (Marshall, J., dissenting). Read serve agent, fulfills plan Mar. 892. 589-598, 1364-1369; 425 436-444, 1089, 1092-1093. One delegation followed back urge pass legislation. 55-56. particulars delegation's trip known. exhaustive list administrative documents collected App. B. 82-1582 (CA8). Additional 87-92. According study, Tribal, 100-128. 1910 1920, tried court 128. period, primarily responsible life later came assume fell jurisdiction. Barnes, 81 S.D. 511, 137 683 (1965). 1973 challenged 38 (55% lands). 64-95. Dr. concluded: "Unentered They members, leased tribe, specifically 87. Congressman Burke, sponsor reported: "At sufficient people anywhere near of, undoubtedly too high." 49 1106 (1913). Government's estimates, ever ownership. 31.

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