Document: 415 U.S. 199 94 S.Ct. 1055 39 L.Ed.2d 270 Rogers C. B. MORTON, Secretary of the Interior, Petitioner,v.Ramon RUIZ et ux. No. 72—1052. Argued Nov. 5—6, 1973. Decided Feb. 20, 1974. Syllabus Respondent Ruiz and his wife, Papago Indians, left their reservation in Arizona 1940 to live an Indian community a few miles away found employment at nearby mine. During prolonged strike, applied for but was denied general assistance benefits under Snyder Act by Bureau Affairs (BIA) because provision BIA Manual limiting eligibility Indians living 'on reservations' (and jurisdictions Alaska Oklahoma). After unsuccessful administrative appeals, respondents instituted this purported class action, claiming, inter alia, entitlement such as matter statutory interpretation. The District Court's summary judgment petitioner reversed Court Appeals on ground that Manual's residency limitation inconsistent with broad language Act, Congress intended be available all including those respondents' position, Congress' subsequent actions appropriating funds program did not serve ratify imposed limitation. Held: 1. intend exclude from these class, who are full-blooded, unassimilated near native reservation, maintain close economic social ties reservation. Pp. 212—230. (a) legislative history subcommittee hearings regarding appropriations showing BIA's usual practice has been represent or near' reservations is equivalent 'on' purposes welfare service eligibility, successive budget requests were just directly 'on,' clearly shows led believe programs being made nonassimilated well living, fair reading can lead only conclusion situated respondents, covered authorization. 213—229. (b) fact during time appeared does mean implicitly ratified policy, where had published Federal Register Code Regulations, there nothing show brought appropriation subcommittees' attention, let alone entire Congress. But, even assuming knew when making appropriations, no reason assume it equate category continuously described area. P. 230. 2. Assuming, arguendo, rationally could limit include lived (plus Oklahoma), validly accomplished. 230—238. By publishing its requirement failed comply requirements Administrative Procedure (APA) publication substantive policies. Secretary's conscious choice treat extremely significant legislative-type rule, renders ineffective so far extinguishing rights otherwise within beneficiaries contemplated 232—236. Moreover, own internal procedures, since important policy directives—those 'inform public privileges available' 'eligibility requirements'—that declares among published. 235. (c) Even lack binding effect too late argue words something different therefore entitled deference interpretation when, fact, two have equated 236—237. 9 Cir., 462 F.2d 818, affirmed remanded. Harry R. Sachse, New Orleans, La., petitioner. Winton D. Woods, Jr., Tucson, Ariz., respondents. Mr. Justice BLACKMUN delivered opinion Court. 1 This case presents narrow issue administration federal needy Indians: 2 Are United States (or areas regulated they thus unavailable (outside Oklahoma) off, although near, reservation? 3 answered question favorably petitioner, without cross-motions judgment, dismissed complaint. Appeals, one judge dissenting, reversed. 818 (CA9 1972). We granted certiorari significance vigorous assertion long-established Bureau. 411 947, 93 1923, 36 408 (1973). 4 * pertinent facts agreed upon, although, some, denies knowledge dispute them. App. 45—48. Ramon Anita, citizens. In Reservation Arizona1 seek 15 Phelps-Dodge copper mines Ajo. work there, settled Ajo called 'Indian Village' populated almost entirely Papagos.2 Practically land most homes Village owned rented Phelps-Dodge. Ruizes present residence 1947. A minor daughter lives They speak understand limited English. Apart Ruiz' Phelps-Dodge, assimilated into dominant culture, appear maintained tie reservation.3 5 July 1967, 27 years after moved Ajo, mine he worked shut down strike. It remained closed until following March. While strike progress, sole income $15 per week striker's benefit paid union.4 He sought State State's apparent striking workers eligible emergency relief.5 6 On December 11, (BIA). immediately notified letter ineligible provisions (in 1952) 66 3.1.4 (1965) Oklahoma.6 An appeal Superintendent Agency unsuccessful. further Phoenix Area Director hearing, this, too, proved denial resided outside boundaries Reservation. 7 then action against Secretary, interpretation, which applied, also challenging violation Fifth Amendment due process Privileges Immunities Clause Art. IV, § 2, Constitution. 8 Appeals' reversal 25 U.S.C. 13, 'that position' Ruizes, F.2d, 821, dissent took position discretionary authority delegated respect allocation funds. II Act,7 42 Stat. 208, approved November 1921, provides underlying congressional activities including, particular importantly, program. Prior As result, House Committee frequently stricken floor point-of-order objections. See H.R.Rep.No. 275, 67th Cong., 1st Seee. (1921); S.Rep.No.294, Sess. 61 Cong.Rec. 4659—4672 (1921). designed remedy situation. comprehensively worded purpose avoiding motions Since passage presented interruption kind enacted bills annually response requests. 10 legislation here, Department Interior Related Agencies Appropriation 1968, Pub.L. 90—28, 81 59, 60 (1967), recited: 11 'Bureau 12 'Education Welfare Services 13 'For expenses necessary provide education services either cooperation other organizations, payment advance date admission), care, tuition, assistance, boarding homes, institutions, schools; grants Indians; maintenance law order, rewards information evidence concerning violations lands; operation arts crafts shops; $126,478,000.' 14 wording, except amount, identical employed similar prior fiscal years8 and, indeed, ones.9 neither nor Appropriations imposes any geographical availability prescribe details Instead, states (under supervision Secretary) 'shall direct, supervise, expend . benefit, throughout States' stated first described, '(g)eneral support' 'relief distress.' broadly phrased material obviously activities.10 direct financial aid channels relief, federal, state, tribal, available. Benefits generally scale payments. Any Indian, whether elsewhere, may various security participates placed claimant's reservation.11 16 formal request submitted follows: 17 'General will provided Social Security whom established agencies through tribal resources.' Hearings 1968 before Subcommittee Appropriations, 90th Sess., 777—778 (1967),12 Senate Hearings, Fiscal Year 695 (1967).12a III 18 confronted, therefore, issues consistent intent meaning applicable statutes, or, phrase somewhat differently, properly restrictions, if so, withstands constitutional analysis. 19 initial question, argues, first, merely enabling act definition scope program, off- (other than Oklahoma Alaska), expand beyond request. Secondly, points suggests acquainted limitation,13 that, legislating light provision, amounted ratification definitive practice. notes recent years, twice rejected proposals would off-reservation Indians.14 Thus, said, appropriated practical matter, unable 20 primary reliance Act's 'the throughout' States. concluded envisioned limitations absent clear powerless shrink coverage some lesser group beneficiaries. 21 Although we affirm Court, reach result narrower ground. need approach terms regardless degree assimilation, ascertain claimants us. limited, Except physical Reservation, conceded, meet IV 22 There is, course, force argument consistently contained testimony subcommittees customarily restricted. Nonetheless, our examination leads us contrary urged Secretary. 23 A. actual Indians. Indeed, see n. 6, supra, heavily relied upon itself nonreservation Oklahoma. rationale proffered is: 24 'The situation historically unique. Much once set aside Territory, though abolished, remains large area concentrated population organization, held trust .. concentrations Americans, substantial separate prevails responsibilities substantially Bureau's reservations.' Brief Petitioner 21. exception necessarily irrational, definitely demonstrates rigidly followed BIA, inasmuch named regarded If, urges, aware notice possess literal context. Surely, reasons Alaska-Oklahoma equally class. 26 several more occasion, exceptions deemed appropriate. Notwithstanding Manual, least three categories treated assistance. relocates city relocation period required him, state law, establish new location.15 second evidently Turtle Mountain North Dakota apart reservation.16 third appears residing Rapid City, South Dakota.17 addition, controlling, irrelevant never final bills. 28 many year issue, continual representations nonurban 'near' services. Although, sure, passages defined reservations,' infrequently, indicated equates it. 29 early example 1948 Hearing. colloquy between Senator McCarran Assistant Commissioner Zimmerman stronger statements yet, very dialogue, explicitly indication given rigid interpretation: 30 'Senator McCarran. I right there. 31 'Do items address themselves both? 32 'Take, instance, fund, $87,786. Is alike? 33 'Mr. Zimmerman. No, sir; not. 34 To given? 35 money goes Entirely? Yes. 37 Now, my State, you outskirts Reno again Battle small villages. Do get anything way relief? 38 Those town colonies reservations. You regard them reservations? 40 Yes; are. 41 colony For certain courts 43 land? 44 Government owns land. 45 46 Yes, sir. 47 build houses Government? 48 houses. 49 But do receive benefits? 50 eligible; yes, sir.' 1948, 80th 598—599 (1947). 51 interchangeability later years. section justification 1959 stated: 52 'It estimated continental approximately 400,000 members tribes bands. Of number, 30,000 adjacent assumes responsibility. surplus proportion resources. Opportunities self-support wholly inadequate increasing faced alternative moving remaining privation dependent, partially wholly, form assistance.' 1959, 85th 2d 288 (1958) (emphasis supplied).18 53 appropriation. short-term leaves thereby disqualifies himself describing 'live depart, telling 'moving reservation' possibility 'adjacent to' seem follow 54 At 1962 Congressman Fenton inquired Gifford She replied: 55 'We absolute figure. Our best estimate now about 375,000, think. That figure using. off reservations, count clearly. However, consider responsibility reservations— 56 Fenton. contribute? 57 'Miss Gifford. Yes 375,000.' 1962, 87th 205—206 (1961). 58 foregoing statement Commissioner, particularly revealing confronts seen hearings, however, includes restricted 'on.' Also, group, contrast 'off' assumed 'direct responsibility.' Obviously, expanded desire, seeking jurisdiction function actually was, reflects policy. 59 continued 1963 Congressmen questioned Nash, Associate Officer, served BIA: Denton. How time? total population? 62 63 380,000. 64 expect tell how 65 Nash. Well, take census subtract listed gives 172,000 reservations; 380,000 Alaska. Kirwan. What say 67 68 Officer. citing vicinity services, natives. natives 43,000. When 380,000, 337,000 Now going concerned 285,000, press release. 69 want up. release emphasizes 285,000 point clear. 70 plus 71 Eskimos? 72 73 places like Oklahoma, 'chcekerboard'? 74 cite figures number situations don't well-defined boundary.' 1963, 352—354 (1962) supplied).19 75 interesting note advised subsumed rather pure admittedly, indicate quoted preceding Miss referred near.' 76 nearly dialogue occurred 1964 Subcommittee: 77 Bible. your jurisdiction? 78 79 have? Indians? 80 These near. include, example, Los Angeles, San Francisco, Chicago, Denver, Minneapolis, unless part vocational training programs. States? 82 1960 counted 552,000 Eskimos, Aleuts. 83 'Chairman Hayden. full-bloods halfs? 84 make inquiry full half. say, 'Are Indian?' known Eskimo?' 85 Following Chairman's rest regard? measuring stick? 86 basis providing primarily real estate. individuals reside land, affected performed person.' 1965, 88th 227—228 (1964) supplied).20 87 now-familiar hearing 1967: 88 supervision? 89 recognize what call Service 90 91 smaller, lands, titles alienated, aliens, village communities Alaska, dependent facilities major 92 552,000. up, good people who— And 170,000 Government's care. 95 correct.' 96 89th 370 371 (1966) supplied). 97 Bennett Subcommittee. relevant classes non-land-related concerned, near': 98 am sorry earlier questioning, 99 Bennett. comprise based census. 100 responsibility? Based 170,000. residential become communities.' 819 (1967) supplied).21 101 Another recurring representation annual whenever asked agency's area, answer refer urban attempted population. Certainly, none references appropriately 102 1950 arose status 103 'Frankly, considered obligation past police Flagstaff Grand Forks, wherever be.' 1950, 81st 483 (1949). 104 1952 exchange Young Commission Myer mind 'leaving reservation': 105 Young. true go out Washington work, runs relief back 106 Myer. If residence, anyone. know Washington, require 2-year residence; 107 Why 108 problem basic extend around leave type reservation.' 1952, 82d 372 (1951). 109 Acting Crow 1961 seems tied assimilated: 110 assists furnishing States, fields human natural things education, welfare, protection, development, management property. are, general, arising relationship property Funds included estimates society.' 111 Nash indicating meant while still maintaining reservation: 112 showed Eskimos others, 'Indians' gone simply taker, 'Yes, Indian,' asked. pretend go. 113 '. people. close, affects programs.' 1964, 889 (1963) 114 295—300 (1966). 115 apparently 1971, four anyone seriously precise 'off-on' dichotomy. Bible, long member Subcommittee, Bruce instructive: 116 rule use determine Who Affairs? 117 Bruce. American one-fourth blood 118 One-fourth qualifications. must 119 120 word mean? 121 difficult define. Near community. 122 half mile, miles, yards? trying find is. responsibilities. responsible for? 123 vary why specifically. 124 give me variables then. From yards up miles? 125 'Is statute anywhere? Affairs, God forbid, over? determination. 126 127 lawyers you? Can heart Manhattan blood? over him Manhattan? Manhattan. 128 Manhattan, York State? Troy Syracuse Rochester? 129 record straight think 130 recess taken instructed breakdown. continued: 131 breakdown that? 132 133 All right. they? 134 477,000 135 136 'Now Beyond 137 138 139 responsibility.22 140 budget, $408 million, much expended 141 spent 142 tripping business. wish define that.' 143 (At Chicago areas.) 144 145 talking 250,000. 146 250,000? 147 148 above 477,458? 149 150 difficulties encountered lengthy resume perform 151 'Where 250,000 152 Living cities—Los St. Louis, Cleveland, Minneapolis.' 1972, 92d 751—756 (1971).23 153 overall Unlike enforcement projects, inherently logically programs, relocation, So precisely relevance relate Nowhere ever non-land-oriented opposed near,' drawn fit boundaries. 154 universe continually persons history, understandable argues accept argument, indicates contrary, proceedings authorization.24 155 Wholly Congress, each accord Manual. 'in (this) provision,' also, convincing. internally circulated document, strained. fully cognizant 1958 made, geographic restriction conjunction made. inclusion logical it, accept. V 156 Having cover power create reasonable classifications order allocate purpose. Dandridge v. Williams, 397 471, 1153, 491 (1970); Jefferson Hackney, 406 535, 1724, 285 (1972). enough meaningfully 10,000 numbered 20,000, incumbent develop standard deal problem, standard, rational proper, might encompassed benefits. agency must, minimum, assure avoid both reality appearance arbitrary potential 157 smaller administer congressionally created funded requires formulation rules fill gap left, explicitly, affairs, Executive empowered promulgate policies,25 delegates BIA.26 affect individual obligations carries remain governing legislation, Maritime Comm'n Seatrain Lines, Inc., 726, 1773, 620 (1973); Dixon 381 68, 74, 1301, 1305, 223 (1965); Brannan Stark, 342 451, 433, L.Ed. 497 (1952), employ procedures conform law. NLRB Wyman-Gordon Co., 394 759, 764, 1426, 1428, 709 (1969) (plurality opinion). No decision be, determination cannot ad hoc dispenser 158 adopted provide, policies affecting promulgated pursuant nature unpublished determinations. S.Rep.No.752, 79th 12—13 (1945); H.R.Rep.No.1980, 21—23 (1946). part: 159 'Each shall separately currently publish guidance public— 160 (D) applicability authorized interpretations formulated agency.' 552(a)(1). 161 sanction added 1967 90—23, 54, provides: 162 'Except extent person timely thereof, manner resort to, adversely by, published.' Ibid.27 163 instant recognized necessity formally structure APA procedures. introduction reads: 164 'Code Regulations: Directives public, codified Regulations (25 CFR). directives inform available; qualifications, procedures; accordance regulations issued amended. 165 Manual: Policies, instructions govern operations Manual.' 0 BIAM 1.2. 166 numerous chosen CFR. continues time.28 official manifestation alleged restricting admission, solely internal-operations brochure 'do public.' oral conceded 'real rule,' endowed should Register. Tr. Oral Arg. 20. 167 Where affected, possibly rigorous required. Dulles, 354 363, 388, 1152, 1165, 1403 (1957); Vitarelli Seaton, 359 539—540, 968, 972—973, 1012 (1959). declared requirements' fits directives. Before extinguish beneficiaries, comply, 168 met. Cf. SEC Chenery Corp., 332 194, 202, 1575, 1580, 1995 defend valid exercise 'legislative power,' depends requirement, concerned. 169 overriding duty fairly located occasions. See, e.g., Seminole Nation 316 286, 296, 1049, 1054, 1480 (1942); Board County Comm'rs Seber, 318 705, 920, 1094 (1943). Particularly represented funds, essential legitimate expectation extinguished amounts Act. circumstances distinctive dealings sometimes exploited people.' U.S., S.Ct., Squire Capoeman, 351 1, 611, 883 (1956). according 170 longstanding suited Griggs Duke Power 401 424, 433 434, 849, 854—855, (1971). thrust regulation distinction, intent. already noted, practices representations, 171 previously weight depend, things, 'its consistency pronouncements' agency. Skidmore Swift & 323 134, 140, 161, 164, (1944). K. Davis, Law Treatise §§ 5.03—5.06 (1958 ed. Supp. 1970). instance posture belies assertion. deference, Espinoza Farah Mfg. 414 86, 334, 287 Red Lion Broadcasting Co. FCC, 395 367, 381, 1794, 1801, (1969). evident authorization on, 'near,' fail. 172 emphasize holding not, suggested 3, 5, 'throughout country.' claim much. Respondents 23; Arg.28. appropriation, enough, hold, unassimilated. parameter determined, necessary, remand case. Whether qualify cases arise future. 173 view disposition arguments. intimate views 174 remanded opinion. 175 ordered. 176 Affirmed Orders Nos. 2300 2524, S.Doc.No.53, 70th 1008 1005, January 14, 1916, February 1917, respectively. Later adjustments therein effected June 28, 1926, 775; 21, 1931, 1202; 1937, 536, 463a—463c; 1939, 819. 18, 1934, 984; May 27, 1955, 67; 463. Tribe Ind.Cl.Comm'n 394, 434 (1968). borders aboriginal Claims Papagos Id., 422—423, 426. retained Reservation: '(M)any Ajo) visit Many cattle farm summer wives children spend periods miners attend dances ceremonies, driving ends afternoon returning next morning Some vote district elections medical care Through fired laid returned Thus 'acculturated' 'During strengthened extended. crisis, Community often used place refuge occasionally source food, money, care.' Affidavit Larry Stucki, support motion judgment. 84, 86—87. particular, said: '(T)he whole family Komelik (on reservation) month August, remainder staying child, Mary Ann, attending school 'Ramon home planned return retires. thought home. His poor command English language, spite having tended confirm this. son interpreted father (W)hen Ruiz(es') killed military Viet Nam, funeral church Sells reservation). siren song cases, prevents complete severance umbilical cord homeland 87. infra, Director. 16. Mrs. same she eight hours $1 hour. 19. Ariz.Rev.Stat.Ann. 46—233.A.4 (Supp. 1971—1972) reflecting amendment Laws c. 117, 23. Graham Richardson, 403 365, 1848, 534 Striking workers, Surplus Commodities Distribution Program. certified 90-day periods. 49—50. '3.1 General Assistance. '.1 Purpose. families '.4 Eligibility Conditions. 'A. Residence. Oklahoma.' reads moneys appropriate, purposes: civilization, education. distress conservation health. industrial advancement extension, improvement, operation, existing irrigation systems development water supplies. enlargement, improvement repair buildings grounds plants projects. inspectors, supervisors, superintendents, clerks, field matrons, farmers, physicians, police, judges, employees. suppression traffic intoxicating liquor deleterious drugs. purchase horse-drawn motor-propelled passenger-carrying vehicles use. 'And incidental connection affairs.' Pul.L. 89—435, 170, (1966); 1966, 89—52, 174, 88—356, 273, 274 (1964). 1969, 90—425, 425, 427 (1968); 1970, 91—98, 147, (1969); 91—361, 669, 670 92—76, 229, 230 (1971); 1973, 92—369, 508, 509 (1972); 1974, 120, 429, 430—431 critic (who proceedings) describes familiar distressing occurrence affairs. instances, measure BIA. system creation. regulatory scheme departmental manual inaccessible persistent attorneys.' Wolf, Needed: System Income Maintenance Ariz.L.Rev. 597, 607—608 (1968) (footnote omitted). 1352(b)(2). citizens State. ex rel. Williams Kamp, Mont. 444, 449, P.2d 585, 587 (1938); Dept. 287, 516 (1958); 10, 599. and/or related hereinafter identified branch year, session 12a disclose identically 255 (1966), 267 747—748 (1965), 653 775 (1964); 844 (1963), (1963). 255, S. (fiscal 1967); H. 747—748, 1966); 775, 1965); 844, 1964). surfaced hearings. 1959: 'I comes types counties ought Affairs; sufficient needs 1960, 86th 801 (1959) 291 (1951); 592 (1949); (1947); 1942, 77th 160—162, 465—466 (1941). H.R.9621, (1962), H.R.6279, Each reimburse percentage latter's contribution categorical failure ascribed easily, selection specific designated, reluctance (rural urban, nonassimilated), increase serviced. Wise, 405, 411, 1354, 1358, 500 (1962); Order Railway Conductors Swan, 329 520, 529, 409, 471 302 (statement Nash); 293 Duputy Greenwood). 1961, 508—510 (1960) Emmons); 15. 298—301 Identical figures, area: move forth, cetera. 'Federal population' larger last.' 1966 introduced representation: modern bureau, serving basically types.' 637 consisted statement: Bureau, Alaskan isolated mainstream life—existing poverty. keeping governmental attacking causes poverty salable skills, objective coordinate Programs local improve educational, economic, political opportunities Indians.' 575 368 additional supplied: 'Population data statistical groups. March 1970; '(a) 306,900 resident boundaries, excluding discussed below. '(b) 32,600 nearby, proximity mobility. working towns contact affairs; temporarily permanently. Other domain allotments distance spelled out, contact. Distant tribe counted, carried roll comments below Navajo '(c) 81,200 former (This Osage, attributes reservation.) '(d) 56,800 Aleuts 752—753 'See supra. Beginning 1973 wide outpouring Report appears, Senate's understanding reservations: directs prepare plan States—rather reservations." S.Rep.No. 92—921, p. conception Curiously application, filed extension file petition case, Solicitor litigation: court appeals administered anywhere country' President carrying relating settlement accounts 9. relates 30, 1834, 17, 738. shall, direction agreeably prescribe, affairs matters relations.' 9, 1832, 564. appropriate ..' 13. report accompanying 'An incentive 'adversely affected' published—or incorporated reference—in H.R.Rep.No.1497, U.S.Code Cong. Admin.News 2424. S.Rep.No.813, S.Rep.No.1219, Title CFR (1973), subject 'Indians,' contains sets forth law-and-order (pt. 11); contract schools 22); 31); educational loans, higher 32); enrollment 33); adult 34); credit 91). reference Subchapter D, 'Social Welfare' comprising pts. 22. Part 'may negotiate territory, county contemplated' 452. applies 'Indians exterior lands Affairs.' 21.1 309 34.3, 'to discretion boundaries' 31.1. 'within Affairs,' read event, cited exists, absence criteria.

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