Document: 445 U.S. 535 100 S.Ct. 1349 63 L.Ed.2d 607 UNITED STATES, Petitioner,v.Helen MITCHELL et al. No. 78-1756. Argued Dec. 3, 1979. Decided April 15, 1980. Rehearing Denied June 2, See 446 992, 2979. Syllabus Section 1 of the Indian General Allotment Act 1887 authorizes President to allot each residing on a reservation specified acreage agricultural and grazing land within reservation; § 2 provides that all such allotments shall be selected by Indians so as include improvements made them; 5 United States retain title allotted lands in trust for benefit allottees. Pursuant Act, Government Quinault Reservation's individual Indians. Respondents, allottees Reservation, Tribe, which now holds some allotments, an association allottees, brought actions, consolidated Court Claims, recover damages from alleged mismanagement timber resources found Reservation. Denying Government's motion dismiss actions ground it had not waived its sovereign immunity with respect asserted claims, Claims held created fiduciary duty States' part manage properly constituted waiver against suit money compensation breaches duty. Held : The cannot read establishing has responsibility management forest lands, thus does provide respondents cause action sought. Pp. 538-546. (a) Neither Tucker under claimants premised jurisdiction nor 24 Commission over Tribe's claim was based, confers substantive right damages. 538-540. (b) only limited relationship between allottee impose any upon resources. language must pari materia §§ both indicate allottee, representative States, is responsible using or purposes. Act's legislative history also indicates Congress placed scope, appearing when enacted intended hold because wished control use subject duty, but simply prevent alienation ensure would immune state taxation. Furthermore, certain events surrounding following passage should authorizing, much less requiring, 540-546. 219 Ct.Cl. 95, 591 F.2d 1300, reversed remanded. Louis F. Claiborne, Washington, D. C., petitioner. Charles A. Hobbs, respondents. Mr. Justice MARSHALL delivered opinion Court. This case presents question whether award forests located Act. * In 1873, Reservation established Executive Order State Washington Tribe. C. Kappler, Affairs 923 (2d ed. 1904.) Much forested. By 1935, acting authority 1887, ch. 119, Stat. 388, amended, 25 U.S.C. 331 seq., Other enactments require Secretary Interior these forests, sell timber, pay proceeds sales, administrative expenses, allottees.1 3 are 1,465 contained Allottees Association, unincorporated formed promote interests four sought Government: (1) failed obtain fair market value sold; (2) sustained-yield basis rehabilitate after logging; (3) payment merchantable timber; (4) develop proper system roads easements operations exacted improper charges roads; (5) interest funds paid insufficient other funds; (6) excessive contended they were entitled this misconduct breached owed them trustee 4 moved respondents' claims raised. sitting en banc, denied motion. 1300 (1979). Reasoning kind court States. We granted certiorari, 442 940, 99 2880, 61 309 (1979), reverse remand. II 6 It elementary "[t]he sovereign, save consents sued . ., terms consent define court's entertain suit." v. Sherwood, 312 584, 586, 767, 769-770, 85 L.Ed. 1058 (1941). A "cannot implied unequivocally expressed." King, 395 1, 4, 89 1501, 1503, 23 52 (1969). absence clear congressional consent, then, "there no more than suits States." supra, U.S., at 587-588, S.Ct., 770. 7 28 1491, gives "any founded either Constitution, Congress." "only jurisdictional statute; create enforceable damages." Testan, 424 392, 398, 96 948, 953, 47 114 (1976). merely "confers [the Claims] whenever exists." Ibid. claimants, therefore, look beyond statute their claims. 8 same true tribal claimant. Jurisdiction based 1505. That provision states: 9 "The have accruing August 13, 1946, favor tribe, band, identifiable group American territorial limits Alaska one arising laws treaties orders President, otherwise cognizable if claimant band group." 10 enacting statute, plainly give access provided individuals House Committee Report stated: 11 "As respects adoption bill determine adjudicate character tribe. cases manner, extent, conditions limitations, defenses, law equity, non-Indians section 145 Judicial Code [now 1491], amended." H.R.Rep.No. 1466, 79th Cong., 1st Sess., 13 (1945). 12 Hearings H.R.1198 H.R.1341 before Affairs, 149 (1945) (statement Assistant Solicitor Cohen); H.R.Rep.No.352, 81st 15-16 (1949) (recodifying statute). Under 1505, defenses equity statutes. follows 1505 1491.2 III 14 up 80 acres 160 reservation. 331. allottees: 15 "Upon approval act Interior, he patents issue therefor name legal effect, declare will allotted, period twenty-five years, sole whom allotment been expiration said convey patent fee, discharged free charge incumbrance whatsoever: Provided, may his discretion extend period. And conveyance set apart herein provided, contract touching same, time above mentioned, absolutely null void." 389, 348. 16 Reorganization 1934, 48 984, 462, indefinitely. 17 creates constitutes drew conclusions providing "hold the" allottee. express trust, concluded available compensate apparently remedy ordinary situation violated without effective redress trust. 18 need consider whether, actually duties ordinarily trustee, constitute immunity. conclude 19 unambiguously undertaken full responsibilities lands. imposes 2.3 Both sections Act4 scope. that, even during remain occupy homestead personal agriculture grazing. Mattz Arnett, 412 481, 496, 93 2245, 2253, 37 92 (1973); Cong.Rec. 3211 (1882) (Sen. Dawes) (the "the occupant enjoy use"). H.R.Rep.No.2247, 48th 2d (1885); 1630-1631 (1886) (Sens. Plumb Dawes); id., 1632 Maxey); 190-191 (Rep. Skinner). scheme, land. 20 earliest drafts 25-year receive fee simple title, restraint alienation. S. 1773, 46th 3d Sess. (1880); 1455, 47th (1882). On Senator Dawes' motion, amended "in trust" 3212 Dawes explained still transferred years. He promoted amendment feared might attempt tax placing "impossible raise [state] taxation." Id., 3211. next draft introduced reflected amendment, see 48, (1884), as, course, did enacted, 388 (1887). plain, taxation.5 21 1874, determined occupancy, therefore could cut purpose clearing land, primary marketing timber. Cook, Wall. 591, 22 210. 1889, two years Attorney rule applied well unallotted unless explicitly contrary. Op. Atty. Gen. 232. ratified General's authorizing sale dead reservations, forbidding live Feb. 16, 172, 673. Pine River Logging Co. 186 279, 920, 46 1164 (1902). As passed, occasionally passed legislation harvesting specific reservations. See, e. g., 135, 34 91 (1906) (Jicarilla Apache Reservation). 1910, general policy. empowered apply Ch. 431, 7, 36 857, 407. authorized owner "held containing restrictions alienations." 8, 406(a). directed sales "owner" subsequently directing how resources.6 Any source Act.7 judgment reversed, remanded further proceedings consistent opinion. ordered. 26 THE CHIEF JUSTICE took decision case. 27 WHITE, BRENNAN STEVENS join, dissenting. (1976), we " 'can fairly interpreted mandating Federal damage sustained.' 400, 954, quoting Eastport Corp. 178 599, 607, 372 1002, 1009 (1967). today Testan bars breach (Act), seq. Because I believe can compensation, dissent. 29 hardly explicit status They Indian," 348 (emphasis added). here unmistakably assumed obligation beneficiaries. holds, however, "trust" term commonly understood, intention imposing obligations Congress' purposes, said, narrower: while ensuring taxation restraint. 30 do find argument convincing. starting point statutory interpretation, Group Life & Health Ins. Royal Drug Co., 440 205, 210, 1067, 1072, 59 261 (1979); Teamsters Daniel, 439 551, 558, 790, 795, 58 808 "trust." surely sufficient manifestation intent settlor Restatement (Second) Trusts 23, (1959) (hereinafter Restatement); G. Bogert, Law Trustees 45 1965) Bogert); Scott, (3d 1967) Scott). structure necessary elements common-law trust—a States), beneficiary allottees), corpus designated lands). Comment h, p. 10. capacity take property 95; Scott 95 (discussing Act). essential distinguishing feature common law, entailed 31 "fiduciary property, subjecting person equitable deal another person. ." 32 2.5. Hence, words meaning, phrase precisely, 211, 1073, trustee. 33 convince me narrower reading required. backdrop tribes long considered "resembl[e] word guardian." Cherokee Nation Georgia, Pet. 17, (1831); Morton Mancari, 417 535, 541-542, 94 2474, 2478, 41 290 (1974); Mason, 391, 2202, 2207, Squire Capoeman, 351 76 611, 613, 883 (1956); Payne, 264 446, 448 (1924); Kagama, 118 375, 382, 1109, 1113, 228 (1886). When sensible assume depart well-known principles. Rather, noted inMattz (1973), policy "continue lands." (Emphasis added.) acknowledges Ante, 542. imposed very narrow covered mostly expected himself reside allotments. Not until forested those solely nonalienation takes too view subsequent developments clarified fleshed out timberlands cannot, practical matter, managed case, where functions necessarily performed Government, seems most scheme performance functions. Subsequent Congresses implicitly acknowledged existence obligations. 466 (instructing basis); 323-325 (authorizing grant rights-of-way just compensation); 162a trust). promulgated detailed regulations governing exercise powers While say conforms exact statutes regulations, least points inference matter practice accepted timberlands. 35 remaining consented liability Such liability, my view, naturally duties. hornbook accountable 205-212; Bogert 862; 205. Moreover, interfere with, defeat, purposes remitted prospective, relief protection rights. Absent retrospective remedy, there little deter federal officials violating duties, judicial decree future Finally, noteworthy Department agency charged administering considerable deference interpretation Zenith Radio 437 443, 450, 98 2441, 2445, 57 337 (1978); Udall Tallman, 380 792, 801, 616 (1965), disagrees position taken litigation believes permitted. Letter Departmental Krulitz Moorman, Nov. 21, 1978, reprinted App. Brief Respondents 1a-21a. sum, bona fide timberlands, Ct.Cl., F.2d, 1009. "Act Congress," "otherwise Claims," Accordingly, respectfully Current relevant Secretary's (investment tribe allottee); 318a, (roads rights-of-way); 349, (issuance heirs capable managing affairs); 406, 407 (sale timber); 413 (collection expenses incurred behalf Indians); (sustained-yield forests). For waive "hear determine" principles considerations "fair honorable dealings recognized existing equity." 70a. Contrary assertions, comments then-Representative Jackson, sponsor became 1946. Indeed, Representative Jackson stated grievances arise hereafter treated citizens Claims." 5313 (1946). statement comment adopted "it never again pass special acts order permit secure adjudication misappropriations occur future." takings required Fifth Amendment, 1491. 401, (1976); Creek Nation, 295 103, 109-110, 55 681, 683-684, 79 1331 (1935); Jacobs 54 26, 27, 78 142 (1933). originally pertinent part: "[I]n been, be, use, hereby is, authorized, thereof advantageous reservation, thereof, surveyed, resurveyed necessary, severalty thereon. 388. materially altered presently codified "That provisions manner embrace making selection. Where subdivision agree, provisional line run dividing .." 332. similar debated Senate 1881. S.1773, 778-788, 873-882, 904-913, 933-943, 944-1003, 1028-1036, 1060-1070 (1881). Bills essentially identical 1882 1884, acted Representatives. (1882); (1884). 2240-2242, 2277-2280 (1884); 218, 580 (1885). 2240-2242 (1884) Dawes, Coke, Conger); 2278-2279 Miller, Dawes). Skinner, who Representatives defined nature commenting rationale supporting States: present Commissioner who, given questions earnest thought, says annual report, 1885, reiterates last impressed 'that abandon relation corner-stone complete success agriculture. .' ". [W]henever majority male adults desire broken up, quantities, bill, belong soon becomes citizen and, addition thereto, inalienable non-taxable length new become accustomed life, learn rights citizen, prepare cope equal footing white man cheat him newly acquired property. "Giving resides tendency stimulate work improve accumulate 190 Perkins summarized approach stating breaking rapidly possible, organizations severalty, possess individually proceed qualify themselves citizenship." 191. object enable "to support industry toil." n. supra. assertion statutes, render liable Nor address contention involves improperly retained. may, contentions make arguments. assert establishes mismanagement. contend Treaty Olympia, 971 (1859), contracts scope them. E. Adickes Kress 398 144, 147, 90 1598, 1602, (1970).

Category: 7