Document: 508 U.S. 679 113 S.Ct. 2309 124 L.Ed.2d 606 SOUTH DAKOTA, Petitioner,v.Gregg BOURLAND, etc., et al. No. 91-2051. Argued March 2, 1993. Decided June 14, Syllabus * In 1868, the Fort Laramie Treaty established Great Sioux Reservation and provided that it be held for "absolute undisturbed use occupation" of Tribes. The Flood Control Act 1944 authorized establishment a comprehensive flood control plan along eastern border Cheyenne River Reservation, which is part what was once mandated all water project lands open general public's recreational enjoyment. Subsequently, in Act, Tribe conveyed interests 104,420 acres former trust to United States Oahe Dam Reservoir Project. also acquired an additional 18,000 reservation land previously owned fee by non-Indians pursuant Act. Among rights reserved or tribal members "right free access [to taken lands] including right hunt fish, subject . regulations governing corresponding other [United States] citizens," § 10. Until 1988, enforced its game fish against violators, while petitioner South Dakota limited enforcement non-Indians. However, when announced would no longer recognize state hunting licenses, State filed this action officials, seeking enjoin from excluding on nontrust within and, alternative, declaration federal takings had reduced Tribe's authority withdrawing reservation. District Court ruled, inter alia, 10 clearly abrogated exclusive possession Congress not expressly delegated fishing jurisdiction over nonmembers lands. It therefore permanently enjoined exerting such authority. Appeals affirmed part, reversed remanded. ruled regulate non-Indian because did reveal Congress' intent divest treaty do so. As lands, court Montana v. States, 450 544, 101 1245, 67 493, Brendale Confederated Tribes Bands Yakima Nation, 492 408, 109 2994, 106 343, controlled, regulatory divested unless one exceptions met. Held: Congress, Acts, under construction Reservoir. Pp. ____. (a) has power abrogate Indians' rights, expressed. original exclude (implicit occupation"), incidental these were eliminated took opened them public. See supra; Indian supra. Section 4 "recreational purposes," includes fishing. declared sum paid Government "shall final complete settlement [of Tribe's] claims, demands." Had intended grant fishing, have done so explicit statutory command, as with And since gave Army Corps Engineers area, irrelevant whether respondents claim only prevent without licenses. cannot distinguished case ground purpose transfers two cases differ, transfer's effect pre-existing congressional purpose, relevant factor. Moreover, certain area does operate implicit rights. Dion, 476 734, 2216, 90 767. (b) alternative arguments—that money appropriated include compensation loss licensing revenue, principles "inherent sovereignty" enable permit fishing—do undercut analysis. 949 F.2d 984 (CA8 1991), THOMAS, J., delivered opinion Court, REHNQUIST, C.J., WHITE, STEVENS, O'CONNOR, SCALIA, KENNEDY, JJ., joined. BLACKMUN, dissenting opinion, SOUTER, Mark Barnett, Pierre, SD, petitioner. Brian S. Koukoutchos, Lexington, MA, respondents. James A. Feldman, Washington, DC, U.S., amicus curiae special leave Court. Justice THOMAS 1 we consider may overlying waters located but operation 2 Treaty, 15 Stat. 635, comprised most now western North Dakota. Article II (except government agents) "ever permitted pass over, settle upon, reside in" Reservation. Id., at 636. Mar. 1889, ch. 405, 25 888, removed substantial amount divided remaining territory into several reservations, north-central 1889 preserved those "not conflict" newly enacted statute. 19, 896. designated benefit Tribe. 984, 987 1991). 3 President allot parcels individual Indians. 8, 890. Some allotted subsequently persons Non-Indians title some unallotted "surplus" General Allotment 1887, 119, 24 388, May 29, 1908, 218, 35 460. allowed surplus sold non-Indians; 1908 Secretary Interior more than 1.6 million States. These enactments vastly members. Today comprise less 50% App. 64. After severe floods devastated lower Missouri basin 1943 1944, passed 665, 58 887. This River, serves directed Chief "construct, maintain, public park facilities reservoir areas," "reservoirs shall generally," "such rules War deem necessary." 4, 889-890. Seven subsequent Acts hydroelectric dams both Lower Brule Dakota, 711 809, 813, n. 1983), cert. denied, 464 1042, 104 707, 79 171 (1984). One largest involved Project, required relinquish roughly 2,000 underlying River.1 agreement "convey tribal, allotted, assigned, inherited interests" needed memorialized Sept. 3, 1954, 68 1191.2 Pursuant Project non-Indians.3 5 Although States,4 respecting 6 "mineral rights" landowners, "subject reasonable regulations, imposed [Army's] Engineers." 1193. 7 "without charge cut remove timber salvage improvements" until dam impounded. 1192. 9 continue residing closure dam's gates. 1192-1193. "graze stock" that: "[The] Tribal Council said have, cost, shoreline aforesaid reservoir, subject, however, citizens States." 1193 (emphasis added).5 Before dispute arose, their respective area. violators; following between regarding 1988 deer season, licenses hunters prosecution court" licensed 58. response, Chairman Director Game, Fish Parks. complaint, sought non-trust 39-40 (Second Amended Complaint). concluded "did disestablish boundary Reservation." 103. Nevertheless, relying 493 (1981), 125. further found "Congress nonmembers" lands.6 149. authority.7 8 343 (1989), controlled. Assuming been noted "Since tribes allotment act, lack requires us conclude possess authority, met." F.2d, 995.8 Eighth Circuit remanded determination could rule tribe's inherent sovereign powers extend activity. We granted certiorari, 506 ----, 51, 121 21 (1992), reverse. see, e.g., Rosebud Kneip, 430 584, 594, 97 1361, 1367, 51 660 (1977), though usually insist express Menominee Indians 391 404, 412-413, 88 1705, 1710-1711, 20 697 (1968); 738, 2219, 767 (1986). County 502 112 683, 693, 116 687 (1992) (" 'statutes are construed liberally favor Indians, ambiguous provisions interpreted benefit' ") (citations omitted). Our reading statutes persuades 11 unqualified identical language parallel Crow embracing "power others" thereby "arguably conferr[ing] upon lands." supra, 558-559, S.Ct., 1255 (construing second 649) (1868)). Thus, possessed greater from, arguably lesser-included, of, later 12 Like case, concerned tribe Under amended, U.S.C. 332 seq., 1920, 224, 41 751, homesteading. lost absolute occupation conveyed, 559, 1255. Similarly, six Tribes, determined least regard "open" portion zone come 423-424, 3004-3005 (opinion J.); id., 444-445, 3015-3016 J.). Because significant portions non-Indians, Justices treaty's "exclusive benefit" provision inapplicable confer conduct there. 422, 3003; 445, 3015. 13 establish conveys ownership loses any abrogation right, context type issue case,9 implies others. taking broadly opening up use, through formerly enjoyed 14 construction, management, 889-890, 16 460d. provides "all projects generally" various purposes, contrary interest, mandates "ready exit areas use." clear affirmatively allows regulation. prohibits "use" "which inconsistent laws protection situated" "contrary interest." Ibid. If leaves doubt retains projects, extinguishes doubt. declares demands" allottees. 1191. reliably indicates understood embody full terms Agreement, enjoy after conveying Government.10 includ[es] fish" added). similarly command. stand contrast expansive originally use," encompass regulate. Montana, 554, 558, 1252, At oral argument, insisted they appropriate Tr. Oral Arg. 27-28, 30-31. ultimately exclude.11 Engineers, Tribe, noted, unimpeded "can serve basis exercise lesser included power" Brendale, 424, 3004. absence applicable allowing assert Act's open-access mandate entry onto lands.12 17 inapposite respect "[t]he [Cheyenne River] unlike destruction self-government, acquire property necessary construct Reservoir." 993. To focus misread Montana. refer discussed legislative debates surrounding policy, well eventual repudiation policy 1934 Reorganization 45 461 seq. 559-560 9, 1255-1256 9. end discussion unequivocally stated "what alienation occasioned tied land." 560, 1256, regardless homesteading transfer control.13 Montana's framework examining "effect alienation" case. 18 here differ conveyances preserve land-use belonging argued reserving treated mineral, grazing, retained evidence "was simple conveyance attendant land," 993, accordingly disagree. 19 decision (1986), supports conclusion. considered who takes eagle violates Eagle Protection Act.14 demanded "clear actually conflict hand other, chose resolve abrogating treaty." 740, 2220. contains exemption "for religious purposes tribes" narrow compatible goal preservation. 668a. "difficult explain except reflection understanding statute otherwise bans eagles Indians." 2221. Likewise, indications When reserves members, very presence suggests like large. III Respondents amici raise arguments, none undercuts our argue, example, $10,644,014 revenue. sum, payment for, grazing revenues wildlife, wild fruit, natural resources, losses itemized House Report Brief (citing H.R.Rep. 2484, 83d Cong., 2d Sess. (1954)), 36. hold divested, contend, imply breached duty compensate resources. itself, itemize covered rather plainly states funds constitute "final arising out Given text will simply history revenue activities. retain punish violate law, membership, internal relations, Wheeler, 435 313, 326, 98 1079, 1087, 55 303 (1978), "exercise beyond protect self-government relations dependent status tribes, survive delegation," 564, 1258. Having find treaties allow sovereignty.15 22 question remains, invoke potential sources "the proposition activities tribe." 565, First, license enter "consensual relationships" contracts, leases, commercial dealings. Second, "tribe civil threatens direct political integrity, economic security, health welfare 566, made extensive findings neither applies either 142-149. although instructed undertake new analysis remand acres, Court's previous whole. Bourland, 995. resolved remand. 23 Finally, contend primary Engineers. 36 CFR 327.1(a) (1992). promulgate Federal regulations" concerning Nations." 327.1(f). permits "[h]unting, trapping where prohibited Engineer." 327.8. regulation "[a]ll Federal, local apply waters, regulated officials." 327.26. argue primacy interests." 33 original) (footnote Insisting "tribal" law subset "local" 33, 39. rely Corps' proceedings below. asserted argument 327.8 State, see 50, even mention brief. record fact believed matter law.16 288, 284. undeveloped. circumstances, decline defer Government's litigating position. IV "[T]reaty must read light 561, 1256. (including fish) exert control. 636, deprived Accordingly, judgment reversed, consistent opinion. 26 ordered. 27 whom joins, dissenting. 28 Reservation.1 take destroying limiting wished build dam. uses put land, my view, decides it. 29 majority's focuses ante, ____, barely nod acknowledging might aspect sovereignty, Yet fundamental principle " 'inherent sovereignty never extinguished.' 322, 1086, (1978) omitted), quoting F. Cohen, Handbook Law 122 (1942). recognized extends 'over territory.' 323, 1086 added), Mazurie, 419 557, 95 710, 717, 42 706 (1975). Inherent "exists sufferance defeasance. But acts, existing powers. still aspects withdrawn statute, implication result status." (emphases divestiture "where overriding National Government, seek engage foreign alienate consent, prosecute courts accord protections Bill Rights." Washington Colville 447 134, 153-154, 100 2069, 2081, 65 (1980).2 30 confirmed sweeping providing "set apart [Sioux]." majority acknowledges conferred 'upon lands.' Ante, 1255, (1981). "treaties should Indians," Oneida 470 226, 247, 105 1258, 84 169 (1985), proceed assumption Treaty. 31 question, then, area—a flowing treaty. lightly impute Congress. There 2220, (1986); withdrawal "necessary"); Colville, 2081-2082 (same). 32 majority, points scrap possibility deprive land. Instead, finds failed explicitly reserve Despite citation (1968), adopts precisely sort reasoning-by-implication reject. supposes abrogated. reasoning fails counts. 'must construed, according technical meaning words learned lawyers, sense naturally Indians.' Commercial Passenger Fishing Vessel Assn., 443 658, 676, 99 3055, 3069, 61 823 (1979), Jones Meehan, 175 1, 11, 5, 44 L.Ed. 49 (1899). I implausible thought every subsumed Treaty's defeated moment myopic ignores merely Even treaty-based continued. 34 reliance misplaced. cases, aimed elimination reservations assimilation peoples. concluded: "It defies common suppose intend purchasing become avowed ultimate government." 423, 3004, (1989) WHITE). alienated irrelevant, statement 'what land.' added Court). statement, responded sale repudiated 1934." Read context, relies way rejects specifies relevant—i.e., time alienated. acknowledges, purposes." perfectly continued say if lacks exclude, sanction fines penalties regulations. Apparently believes given 13. inconsistency. decided own instead [hunting, trapping] waters." (1992); 50. envisions system concurrent offers explanation why suddenly becomes untenable tribe. extent proves unworkable, themselves provide prevail, 327 "lands Nations" regulations." 37 search turns 'shall demands' Pub.L. 776, II, makes address or, specifically, X silence again "Congress' intention plain," benefit.' Yakima, Blackfeet 471 759, 766, 2399, 2403, 85 753 (1985). failure means survives reverse.3 38 small consolation remedy situation authorizing regret, necessary. dissent. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Lumber Co., 200 321, 337, 282, 287, 50 499. Departments negotiate contracts Standing Rock 1120, 64 1093 (1950). received total exchange therein permits, costs negotiating agreement, "complete rehabilitation" resident restoration life. §§ 13, 1191-1194. reflect how certiorari assumes fee, referred "transfer Appeals, "neither non-Indian-owned nor 990 nature analysis, assume owns fee. became effective confirmation acceptance writing "three-quarters adult Dakota." Of eligible vote, 75.35% approved Act; voted, 92% voted approval. 266. Sioux, vacated "issue nonmember pled tried; complaint non-Indians." 990. petition hence before ever criminal sanctions violated ordinances. 87. Throughout litigation, disavowed nonmembers, asserting impose unlicensed fishermen purely nature. 85. contended sanctions. dismissed State's request "no jurisdiction" arrest try reservation, "purported controversy sufficient immediacy reality." (internal quotation marks event, commit crimes reservation." Duro Reina, 495 684, 110 2053, 2059, 693 (1990). Oliphant Suquamish 191, 210, 1011, 1021, 209 (1978). cross-petition review Appeals' decision, argues approach distinguishing rulings," thus "wrong unworkable." Petitioner 48. presented fairly encompassing "closed" pristine disturb finding. agree need reach contexts. dissent apparently ambiguity provision, "does take." Post, self-evident answer used term 1191, meant demands. Certainly, diminished practical exclude: goes exclude. 3004-3005, declaratory action, judicial jurisdiction. (1981) misplaced insists reject relevance Congressional "specifie[d] alienated." unable wring alienation." engages inquiry eschews, errs stating "simply dam." fact, post, "boating, swimming, bathing, [and] fishing," "rules Contrary dissent's reasoning, vested broad management "considered crime "take, possess, sell, purchase, [or] barter bald golden eagle." 668(a). give "barely nod" another manifestation disagreement tribe," While refers "myopic focus," prior shuts eyes reality "cannot inherent. phrase "local laws" laws. outlining procedures evaluating Department applications Corps, distinguishes "local." 320.4(j)(2) ("[t]he responsibility determining zoning matters rests state, governments") Furthermore, bewildered cites 327.1(f) prevail." "to [they] purport rights—not startling proposition. says nothing about already terminated diminish 96-104, appeal determination. 1991) ("[I]t seems boundaries Reservation"). Neither able identify interest justify th e rejecting suggestion 'exercise delegation.' occasion passage 150 years Indian-law jurisprudence supported relied. 450-456, 3018-3022, concurring dissenting). repeat here. assertion conclusion here, difficult fathom. permitting correctly notes follow, access. certainly follow "[w]hen large." ---- - ----. Indeed, Dion stands directly opposite presumption disfavored evidence" "that

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