Document: 430 U.S. 73 97 S.Ct. 911 51 L.Ed.2d 173 DELAWARE TRIBAL BUSINESS COMMITTEE et al., Appellants,v.Wanda June WEEKS al. ABSENTEE TRIBE OF OKLAHOMA Appellants, v. Wanda Cecil D. ANDRUS, Secretary of the Interior, Nos. 75-1301, 75-1335 and 75-1495. Argued Nov. 10, 1976. Decided Feb. 23, 1977. Rehearings Denied 6, See 431 960, 2688. Syllabus The Delaware Indians, who originally resided in Northeastern United States, were gradually forced to move westward 19th century, tribe became geographically scattered. One group (the Cherokee Delawares), which initially had settled on a Kansas reservation as part tribe's main body, eventually moved "Indian Country" Oklahoma, assimilated with Cherokees, is today federally recognized tribe. Another Absentee never joined body Kansas, but migrated Oklahoma Wichita Caddo also A third Delawares) lived reservation, remained when Delawares Oklahoma; under an 1866 treaty elected become States citizens receive individual parcels land condition that they dissolve their relationship participate tribal assets only extent "just proportion" credits "then held trust by States," descendants this are not question presented litigation whether denied equal protection laws violation Due Process Clause Fifth Amendment because excluded from distribution funds authorized Act Congress, provided for pursuant award Indian Claims Commission redress breach 1854 Tribe. Held : 1. plenary power Congress matters affairs does mean challenge instant statute justiciable. "The over may be nature; it absolute." Alcea Band Tillamooks, 329 40, 54, 67 167, 174, 91 29. appropriate standard judicial review legislative judgment should disturbed "(a)s long special treatment can tied rationally fulfillment Congress' unique obligation toward Indians," Morton Mancari, 417 535, 555, 94 2424, 2485, 41 290. Pp. 83-85. 2. exclusion offend Amendment, since record such was "tied Indians." 85-89. (a) Delawares, being entity, simply Indians no vested rights any property, distributed Act. As appropriated subject exercise its traditional broad authority management property tribes, "drawn both explicitly implicitly Constitution itself," supra, at 551-552, 2483. 85-86. (b) An earlier participation another settling claims Tribe, while itself legitimating question, nevertheless indicates has historically distinguished them distributing awards. 86-87. (c) It appears history deliberately limited avoid undue delay, administrative difficulty, potentially unmeritorious claims, congressional choice supported, even though based unrelated experience ignorance effect limitation Delawares. 87-89. 406 F.Supp. 1309, reversed. George B. Christensen, Chicago, Ill., A. Raymond Randolph, Jr., Washington, D.C., Bernard J. Rothbaum, City, Okl., appellants. Delmer L. Stagner, appellees. Mr. Justice BRENNAN delivered opinion Court. 1 providing certain treaty, challenged action distribution. denies Amendment.1 2 * brief migrations will serve helpful backdrop litigation.2 what now southern New York, Jersey, Pennsylvania, Delaware. Munsee related northern area. Under pressure new settlers, Munsees westward, 1820 During trek branch stopped varying lengths time Ohio, Indiana, Missouri, others went Arkansas, Texas. In 1818, Indiana ceded lands State return promise west Mississippi River.3 then Missouri short time, 1829 "supplementary article" 1818 again told would permanent residence Kansas.4 establishment purportedly made provide western agreement leave lands. 3 Some however, reservation. Among these small Indians. For during 1850's 1860's, expected rejoin there, called "Absentee Delawares" suit, stayed Wichitas Caddos.5 Their have through present day, tribe.6 4 By 1850's, Nation, together number Munsees, assembled "permanent" confluence Rivers. But hope Delawares' last stopping place short-lived. 1866, living signed live Cherokees.7 Each moving Country enrolling proper register life estate 160 acres right member Nation. Most accepted conditions where most purposes into permitted share equally Cherokees general See, e. g., 193 127, 24 342, 48 L.Ed. 646 (1904); Nation Journeycake, 155 196, 15 55, 39 120 (1894). Despite association "Cherokee years maintained distinct identity, tribe.8 5 did require all Oklahoma. Rather, agreed "dissolve relations tribe" might elect remain Kansas. Such 80 fee simple thereafter could "further (tribal) councils, nor or annuities."9 Twenty-one adult chose accept Kansas.10 descendants, "Kansas tribe.11 6 1854, still sell "trust" public auction. 1856 1857, breached selling privately Approximately 100 later, brought separate identical before arising out treaty. found two groups "entitled jointly represent entire Tribe," Tribe 21 Ind.Cl.Comm. 344, 345 (1969), citing 253 (1952), aff'd parties, 128 391, 130 Ct.Cl. 782 (1955), determined private sales realized $1,385,617.81 less than been awarded sum plus interest, total $9,168,171.13.12 Ind.Cl.Comm., 369-370. pay later enacted Pub.L. 92-456, distribution.13 amounts payable formula 25 U.S.C. § 1294. Ten percent set aside bodies, retained credit used ways approved Interior. remaining 90% divided among whose names appeared "per capita payroll" described 1292(c)(1), "constructed base census roll" 1292(c)(2).14 7 Appellee Weeks, behalf instituted against Interior District Court Western alleging constituted denial guaranteed Amendment. three-judge court convened.15 declared, one judge dissenting, failure include those entitled 92-456 violated Clause. enjoined pending amendment provisions statute, enactment further legislation funds. Weeks 1346-1347 (1975). defendant separately appealed Court, No. 75-1495, 75-1335. We noted probable jurisdiction three appeals, 426 933, 96 2645, 49 385 (1976). reverse.16 II 8 (1) Appellants differ issue suit presents nonjusticiable political pervasive authority, rooted Constitution, control property. Stated other words, final scrutiny, "been committed Constitution" Baker Carr, 369 186, 211, 82 691, 706, 663 (1962), "(t)he nonjusticiability primarily function separation powers," id., 210, 706. Lone Wolf Hitchcock, 187 553, 23 216, 47 299 (1903), argue plan reflects determination scrutiny Judicial Branch, therefore erred reaching merits action. Appellant hand, submits "does federal concerning . immune (appellees), justiciable." Brief p. 19 n. 19. agree 9 (2-6) statement Wolf, 565, 221, "has always deemed one, controlled department government," however pertinent abrogate treaties, see generally Antoine 420 194, 201-204, 95 944, 949-950, 43 129 (1975), deterred particularly scrutinizing determine violates component 2474, 290 (1974). 29 (1946) (plurality opinion); Creek 295 103, 109-110, 55 681, 683, 684, 79 1709 (1935); cf. Jim, 409 80, 3, 93 261, 262, 34 282 (1972). 10 light prescribe tribes. rule emerging our decisions ordinarily requires judiciary defer best efficient use employed. Sizemore Brady, 235 441, 449, 35 135, 136, 59 308 (1914). Thus, choose differentiate same making Simmons Seelatsee, 384 209, 86 1459, 16 480 (1966), aff'g 244 808 (ED Wash.1965), hand expand class beneficiaries royalties lands, devote mineral allotments otherwise gone allottees, Northern Cheyenne Hollowbreast, 425 649, 1793, 274 recently expressed ." 2485. III 11 persuaded us omission appellee 12 First, Public Law distributes rather individually owned redressing represented appellants suffered States' breach, appropriation means compensating entity wrong done it. Indeed, empowered hear individuals' adjudicate tribe, band, identifiable group." §§ 70a, 70i; Minnesota Chippewa 315 F.2d 906, 913-914, 161 258, 270-271 (1963). itself." This termed "one fundamental expressions, if major expression, constitutional .." F. Cohen, Handbook Federal 94, (1942). 13 ancestors severed proportion cash value said States." (Emphasis supplied.) cannot say decision exclude ended membership took proportionate more century ago, distribute members persons closely affiliated 14 Second, first assets. 1904 $150,000 settle injustice forms basis 92-456.17 427 1218, 1229-1230, 192 385, 403-405 (1970). directed Treasury settlement known "as shall council direct," thereby excluding 33 Stat. 189, 222. although compensation, inter alia, split off unsuccessfully sought but, case, "were grounds similar some argued case." F.Supp., 1321 15. Comptroller concluded "(m)anifestly annuities due belonging for: provision (A)ct April 21, 1904, authorizes directs payment 'Delaware residing direct' .. proviso immediately following emphasizes clear indication Comp. Dec. 496, 500 (1905) (emphasis original). While precedent legitimate very involved litigation. 17 Third, substantial problems apprehended attend wider H.R. 5200, bill introduced funds, contained "catchall" clause authorizing "to born prior date lineal existed ."18 catchall analogous 1968 compensate inadequate 1818.19 clause, distribution, 1181(d), about 300 allowed wrong. 18 finally enacted, followed hearings testified. At attention arisen addition claimed eligibility statute.20 Because dispute there inordinate delays late 1972 many Munsees' unresolved, virtually paralyzed. Hearings 5200 Subcommittee Affairs House Committee Insular Affairs, 92d Cong., 2d Sess., 12, 22, 59, 79, 97, 105-106, 113 (March 13, 1972) (unpublished). recognize, omitted order repetition "made aware trace descendancy do." 1332.21 we do conclude elimination irrational. limit prosecuted Commission, whom interests Regardless knowledge choice, predicated upon support Delawares.22 IV 20 Our conclusion course preclude revising scheme yet occurred, revise original allocation. U.S., 82-83, S.Ct., 262-263. Reversed. 22 BLACKMUN, THE CHIEF JUSTICE joins, concurring result. I join Parts Court's opinion, concur me, reversal result so inevitable easily smoothly reached reading Part makes appear. justifications persuasive. favoritism undermined fact participate. Ante, 14. second troublesome difficult me how perceived unfair buttresses unfairness. And wonder statement, ante, 87, distinguished" awards, participated allocation justification convenience eliminating weight. But, acknowledges, 88-89, problem award; difficulty Munsees. Nevertheless, having this, am errs conclusion. case rare type argument each side strong. With lukewarm posture, must acknowledge necessarily large measure arbitrariness century-old regard windfall whichever favored. determining standards selection benefits, unreasonable constitutionally impermissible. flexibility allocating here beyond pale. 26 STEVENS, dissenting. 27 outset proceedings accordance recovery treaties "must benefit 1854," 253, (1952).1 1857 disposed private, public, sale half fair value. accompanying reiterated named plaintiffs (1969). Thereafter, amount required judgment, 83 447, 453, adopted here, intended satisfy 1291-1297 (1970 ed., Supp. V). 28 Appellees, Delawares," proceeding.2 There actual 1854. Nor consequence malfunction process deliberate Congress. urging sure award. Unfortunately, unintended precisely per basis.3 These facts undisputed. They make perfectly rational attempt "fulfillment think hypothetical advanced majority merely lack explanation would, valid, different classification. 30 suggested properly terminated claim reduced judgment. Cherokees. ceased 1867, Nation.4 Moreover, tribe.5 Resignation after consistent treating differently Absentees.6 31 pointed neither reason clear. asserted allotment designed resolve "the band thereof, 32 726. Obviously, qualify That differentiating proceeding 1854.7 valid reasons object concern processing created burdens delay. occurred. Neither relevance admittedly victims shared orderly manner status. thus ironic perhaps perverse justify including application whatsoever administratively inoffensive literally invisible fail difficulty. statutory fund favor belong manifestly unjust arbitrary. explanation, explanations confront ultimate unconstitutional. Improbable possibility seems, prepared actually reviewed status principled discrimination, far evidencing discriminatory intent, accident, caused nothing unfortunate too busy work carefully should. procedures enacting statute. Finally, reluctant suggest constitutionality turn motivation, legislators process. Perhaps, therefore, wise declining intervene area greatest deference four considerations persuade classification invalid. adjudicated ordinary interest treatment.8 need discrimination within litigants; draw line arbitrary character particular drawn.9 identified. fourth, believe product choice.10 circumstances deprivation without "due lawmaking" guarantees.11 cognizable Amendment's Schneider Rusk, 377 163, 168, 84 1187, 1190, 218 (1964); Bolling Sharpe, 347 497, 499, 74 693, 694, 98 884 (1954). "Equal analysis Fourteenth Amendment." Buckley Valeo, 424 1, 93, 612, 670, 46 659 detailed narrative 255-261 below, 1309 (WD Okl.1975). S.Rep.No.1518, 90th 7-12 (1968); C. Weslager, (1972); M. Wright, Guide Tribes 145-155 (1977). Treaty 188. 1829, 327. Article 1860 between 1330, provided: "Whereas ago good down Southern hundred soon, hereby eighty apart them, allotted formal name Appellees concede Jurisdictional Statement 75-1328, 20. 793. contend until commencement lawsuit. Tr. Oral Arg. 58-59. finding dealt entity. 222, payments direct ."; 812; 44 1358; amending 812. 793, Arts. III, IX. adults children who, terms themselves attaining 1874 minor granted citizenship parents. 146, 175. eliminated necessity election children. 1320. stated oral Delaware, Joe Bartles, prominently prosecuting served (Cherokee) Tribal Business Committee, 1952 resolution recognizing 59-61. apparently deliberations disputed States" proportionately included received sold assume compliance auction meant paid bought larger. 762, codified V) follows: 1291: December 26, 1969 (83 453), petitioners, docket 298, others, 72, thereon, attorney fees, expenses, expenses necessary effecting sections 1291 1297 title, sections." 1292: prepare roll meet requirements: "(a) October 1972; "(b) States; "(c)(1) ancestor payroll 20, 1906, "(2) eligible constructed 1940 Secretary." 1293: "All applications enrollment filed either Area Director Bureau Muskogee, Anadarko, day fourth full month 1972, thereafter. give rejection notice sixty days receipt applicant ineligible enrollment. appeal rejected thirty rejection. filed. committee composed representatives submission Secretary, advise writing regarding applicant." 1294: apportion presently constituted, much accrued ratio enrolled section 1292(c)(2) title bears 1292 title. apportioned placed manner: 90 centum shares person Treasury, advanced, expended, invested, reinvested purpose governing 1292(c)(1) body: Provided, approve organized legal adequately protects members." 1295: "Sums enrollees age eighteen older heirs legatees deceased directly persons. Sums disability minority procedures, trusts, determines protect persons." 1296: "None income taxes." 1297: rules regulations carry title." So defined, constituted. award, defined somewhat broadly, nonmembers consolidated Weeks' appeals cases. party defendant, dismissed ground consented No taken dismissal. Andrus, 75-1328. complaint 1181-1186 (relating treaty) Just Compensation Clauses; 1181-1186, wrongfully proposed statute; 1291-1297, classes statute's unconstitutional inclusion classes. aspect 75-1328 taken. today's decision, respect affirmed. 1902 Act, 716, 726, which, gave thereof 1st (1971); S. 1067, (1971). 861, 1181-1186. appellees 16, supra. Sess. (unpublished); 14267 (May 8, 14267, 3113, 2249 2298 Senate 60 seq. (July seems apparent Reports existence, state "(l)iving 1854." S.Rep.No. 92-1126, H.R.Rep. 92-1081, individuals of, clearly identified with, specific tribes statutes. 565-565g (Klamath); 581-590c (Shoshone Shoshone-Bannock); 1071-1073 ed. (Confederated Colville); 1161-1167 (Cheyenne-Arapaho); 1191-1195 Umatilla); 1261-1265 (Blackfeet Gros Ventre); 1300b-1300b-5 (Kickapoo); 1300c-1300c-5 (Yankton Sioux); 1300e-1300e-7 (Assiniboine). Aff'd (1955). relied contemporaneous holding effect, McGhee 122 380, 388, 392, 396 cert. denied, 344 856, 91, 665. court, charged interpreting reviewing actions 70s, continues adhere view: "(T)he ancestral 'owns' claim, present-day entity." Turtle Mountain 490 935, 954, 203 426, 458 chairman plaintiffs' business 1951. 22. words Delaware" appear 1291-1297. below noted: "There evidence least themselves, unaware existence testified Townsend, (Cherokee Delaware) principal witnesses adoption utilizing 1906 rolls, he 1331 conducted extensive history, 1330-1332, 1347-1351, concluded: specifically requested delete (under respondents claimed), response groups. On us, find committees do. Instead focus groups, Christian paramount consideration given situation considering change ". disturbing intent distribution." Id., 1332. view undisputed findings refers "decision" 86. Articles Agreement Apr. quoted Case 199-202, 57-58, 120. states, part: " 'On fulfilment foregoing stipulations, registered above immunities, (and other) national native save hereinbefore provided. 'And hereafter incorporated respects regarded Cherokees.' 202, 58. Aspects Journeycake 646. To reconstituted occur, 1974, acted question. one-eighth blood exists 1339 40. read led resignation affirmative depriving rightful proceeds obtained 1857. expressly becoming citizen patent simple, alienation, heretofore him, his just proportion, bonds, 796. plainly true fulfilled obligation, recognize unknown balance technically surely intention parties books well credits. discussion 1337 39, text. relevant Treaty, 88. All traced ancestry like unlike appropriation, satisfaction Thus recent supports exclusion. culmination quasi-judicial distinguishes policy applicability. Cf. Eastlake Forest City Enterprises, Inc., 668, 680, 2358, 132 (1976) (Stevens, J., dissenting). 'Congress' Indians,' 85, includes responsibility deal fairly similarly situated Mathews Diaz, 67, 82-84, 1883, 1892, 478; Louisville Gas Co. Coleman, 277 32, 41, 423, 72 770 (Holmes, Lucas, 495, 516, 2755, 2767, 651; Weinberger Wiesenfeld, 636, 648 1225, 1233, 514; Flemming Nestor, 363 603, 611, 1367, 1372, 1435; McDonald Board Election Comm'rs, 394 802, 809, 89 1404, 1408, 739; 226, 714, 663; Royster Guano Virginia, 412, 415-416, 40 560, 561-562, 64 989. Although indebted Professor Linde phrase, my compelled illuminating article, Lawmaking, Neb.L.Rev. 197

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