Document: 446 U.S. 608 100 S.Ct. 1905 64 L.Ed.2d 548 Cecil D. ANDRUS, Secretary of the Interior, et al., Petitioners,v.GLOVER CONSTRUCTION COMPANY. No. 79-48. Argued March 24, 1980. Decided May 27, Syllabus Held : The Buy Indian Act, which permits Interior to purchase "the products industry . in open market," does not authorize Department Interior's Bureau Affairs (BIA) enter into road construction contracts with Indian-owned companies without first advertising for bids pursuant Title III Federal Property and Administrative Services Act 1949 (FPASA). There is no such authority even if Act's language industry" could be construed embrace construction, since, while negotiated procurements "otherwise authorized by law" are one specified exceptions III's broad directive 41 U.S.C. § 252(c) that all procurement covered executive agencies (including BIA) proceed through advertising, exception omitted from list 252(e) requirement permit any contract advertising. From this omission only inference can drawn: Congress meant bar negotiation projects under laws like Act. Pp. 612-619. 591 F.2d 554, affirmed. Andrew J. Levander, Washington, C., pro hac vice, special leave Court, petitioners. Hayes, Muskogee, Okl., respondent. Mr. Justice STEWART delivered opinion Court. 1 35 Stat. 71, as amended, 25 47, directs employ labor "[s]o far may practicable," him market."1 question presented case whether Interior2 may, on legislation, (FPASA), 63 393, §§ 251-260. 2 * In 1976, BIA formally adopted policy "all [BIA] purchases or made entered qualified contractors maximum practicable extent."3 To effectuate objective, announced every situation it would consider dealing non-Indian after had determined there were "no within normal competitive area fill interested filling requirement."4 3 early 1977, invited three submit repair improvement a 5-mile segment Pushmataha County, Okla. road, commonly called Honobia Road, located an subject jurisdiction. respondent, corporation engaged general contractor roadbuilding other forms heavy was afforded opportunity bid.5 On 25, awarded Nations Construction Co., owned controlled exclusively Indians company have bid project. final price amounted approximately $1.2 million.6 4 respondent then filed present suit United States District Court Eastern Oklahoma, naming defendants BIA, contracting officer Road project (petitioners here). alleged petitioners required 3709 Revised Statutes, 5, FPASA advertise publicly further claimed actions denied due process equal protection contravention Fifth Amendment Constitution. As relief, requested set aside enjoin engaging unadvertised purported 5 After completion discovery, granted summary judgment 451 F.Supp. 1102. court concluded procedure followed awarding Co. violated requirements FPASA, particular 253. F.Supp., at 1106. rejected Secretary's contrary administrative inconsistent plain FPASA. Id., 1106-1108. Deciding favor these statutory grounds, found unnecessary reach respondent's alternative arguments 1108. thereupon declared been between null void, permanently enjoined circumventing 253 connection remainder future projects. 1112.7 6 A divided panel Appeals Tenth Circuit affirmed judgment. 554. Relying large part analysis held that, whatever might arguably breadth standing alone, pre-empted respect 557-559. Alternatively, observed "require considerable 'stretch imagination' conclude intended Buy-Indian apply projects." 560. appellate believed, short, preference "products" easily read include performance roadway firm. 562. response petitioners' contention should liberally its remedial purpose, "a primary, significant feature advertisement bidding [FPASA] obtain best lowest benefit American taxpayers 'high cost' categories." Ibid. (emphasis deleted). We certiorari, 444 962, 448, 62 374 decide importance proper exercise responsibilities. II 7 enacted 1910 legislation subjected supplies strictures Statutes.8 Section 3709, existence since 1861,9 provisions but few Government procurements.10 purpose clear. Purchases exempt imposed Statutes.11 8 amended time 1965, none changes affected substance what 1910. true most departments Government, continued operate mandate services let conformity Statutes.12 turn, recodified (41 5) basic remained same.13 unless excepted provided" Act.14 9 law affecting substantially modified. regime detailed contained theretofore applicable General Administration certain procurements,15 extended cover purchasing procedures agencies.16 See 252(a); 40 472(a), 474. For agencies, consequence substitute out those Statutes. 260; S.Rep. 274, 89th Cong., 1st Sess., 1, (1965); H.R.Rep. 1166, 7, (1965), U.S.Code Cong. & Admin.News p. 4217; 111 Cong.Rec. 27198 (1965) (Rep. Brooks). 10 Under must now adhere "[a]ll property shall ." 252(c). directive, statute specifically excepts 15 types procurements, 15th covering situations where law. 252(c)(15) (subsection (c)(15)). 11 clearly "law" contemplation subsection (c)(15). 260 expressly states: "Any provision authorizes agency procure regard [§ 5] section title title." also 274,supra, 5; supra, 8; 4217. noted above, has inception "purchas[e] 12 (c)(15) 260, argue proceeded correctly prior public bids. They assert constructed repaired "product meaning and, accordingly, FPASA's rules operation 13 It fairly debatable, we think, simply matter language, enterprise But isolation repair, argument still because another relating sort issue here. (e)) states "shall roads ., paragraphs (1), (2), (3), (10), (11), (12), (14) (c) section."17 Not Where explicitly enumerates prohibition, additional implied, absence evidence legislative intent. Continental Casualty v. States, 314 527, 533.18 14 attempt avoid obvious import (e), cases involved. reason (e) concerned solely whose "permitted" 252, fit description own force operates independently pertinent statutes differently. (c)(15), confer 474 provides "[t]he conferred [the FPASA] addition paramount SUBJECT TO THE PROVISIONS OF ANY LAW INCONSISTENT HEREWITH supplied.) view 252's survived 1965 amendments "permits" therefore, limited rule (e).19 16 are, nonetheless, urged disregard axiom repeals implication longstanding favored. Universal Interpretive Shuttle Corp. Washington Metropolitan Area Transit Comm'n, 393 186, 193, 89 354, 358, 21 334. maxim said particularly compelling here older "remedial" Indians. Morton Mancari, 417 535, 549-551, 94 2474, 2482-2483, 290. did not, however, "repeal" With class enumerated manner displace Moreover, courts liberty pick choose among congressional enactments, when two capable co-existence, duty courts, absent expressed intention contrary, each effective." 551, S.Ct., 2483. And, although "rule legal ambiguities resolved Indians" given broadest possible scope," "[a] canon license clear expressions intent." DeCoteau County 420 425, 447, 95 1082, 1094, 43 300. 17 reasons stated, affirmed.20 18 so ordered. 47 full: "So employed, market discretion Interior." delegated his responsibilities powers Commissioner BIA. 20 BIAM Bull. (Mar. 3, 1976). CFR 162.5a (1978); 14H-3.215-70 (1977). Bulletin defined "Indian contractor" entity 100% controlled. An "Indian" member tribe person otherwise considered affiliation claimed. admonished events, "fair reasonable." At time, available maintained Previously, competitively five miles Road. parlance, advance "advertising." 253; 1-2.101, 1-2.203-1, 1-2.203-2 (1979). All contacts "negotiated." 252(c), 254; 1-1.301-3 BIA's engineer earlier estimated job cost $963,117.48. request refund amounts paid work already performed before court's entry 1109, 1112. connection, 9.7% completed decision. 1109. June 1910, ch. 431, 23, 36 861, provided: "That hereafter thirty-seven hundred nine Statutes States: Provided, That Interior. Acts parts conflict hereby repealed." origins lay series Appropriations concerning Each annual similar See, e. g., Apr. 30, 1908, 153, 70; Mar. 1907, 2285, 34 1015. 2, 1861, 84, 10, 220. provided part: "All services, Departments except personal sufficient previously proposals respecting same, exigencies do require immediate delivery articles, service. When exigency, articles service procured contract, places usually bought sold, engaged, individuals." structure 23 evidences n.8, supra. So history. House Report explained "[w]ith proviso," "will bring Service, branches service, H.R. Rep. 1135, 61st 2d (1910). 45 6097 (1910) Burke). 1926, split codification purposes. placed 93. proviso goods 47. No contemporaneous suggestion separation affect either original 1940, change occurred. effort eliminate redundant federal 93 repealed 6a(g) place. Oct. 851, 2(g), 4(a), 54 1110, 1111, This rearrangement existing law." 2647, 76th 3d (1940). 2135, Then, 1951, repealed. 31, 654, 1(107), 65 705. Obsolescence seems led demise 6a(g). 1105, 82d 2-3 (1951). By small involved, specific exemption applied, (1946 ed.). 1964, (1964 ed.) "Unless appropriation law, proposals, (1) amount involved exceed $2,500, (2) (3) source supply certify, (4) (A) technical professional nature (B) supervision basis." Since 1926 undergone phraseology. 252(a) 79 1303. "This erection, furnishing building improvement, authorization same heretofore, buildings, roads, sidewalks, sewers, mains, items title, outside continental section." paragraph see n. 20, infra. Nothing history points different direction than statute. cite following passage several Committee Reports accompanied version FPASA: "For clarity [subsection (e)] [41 252] erection items." 670, 81st pt. (1949); 338, 475, (1949). statement, however sheds light disposition instant case. referred governed more procurements. 19 contend govern 252(a)(2). 251 "d[o] [those sections are] inapplicable According petitioners, "other intendment disagree, reading (a)(2) refer that—unlike Act—in express terms entirety. Any broader render superfluous undermine Congress' desire 254 "to III." pp. 4217, 4218. (Emphasis added.) id., 2-3, Admin.News, their rejected, case, remanded consideration 252(c)(10), "for impracticable secure competition." rely defending lawsuit it. Our affirmance preclude seeking relief outstanding injunction ground other. NLRB Sears, Roebuck 421 132, 165, 1504, 1523, 44 29. Fed.Rule Civ.Proc. 60(b).

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