Document: 473 U.S. 753 105 S.Ct. 3420 87 L.Ed.2d 542 OREGON DEPARTMENT OF FISH AND WILDLIFE, et al., Petitioners,v.KLAMATH INDIAN TRIBE. No. 83-2148. Argued Feb. 27, 1985. Decided July 2, Syllabus By an 1864 Treaty, certain Indian Tribes (now collectively known as respondent Klamath Tribe) ceded their aboriginal title to lands in Oregon the United States, and a reservation was created securing Tribe "the exclusive right of taking fish streams lakes, included said reservation." The Treaty language has been construed earlier litigation also reserve hunt trap game within reservation. No or outside expressly preserved. Subsequently dispute arose reservation's boundaries, after lengthy negotiations concerning value land that had erroneously excluded from reservation, Government executed 1901 Cession Agreement (ratified by Congress) under which Tribe, upon receiving payment Government, some Government. provided conveyed "all claim, right, interest to" land, "nothing this agreement shall be deprive [the Tribe] any benefits they are entitled existing treaties not inconsistent with provisions agreement." members continued on lands, apparently without assertion regulatory jurisdiction State Oregon. In 1982 instituted action Federal District Court against petitioners Department Fish Wildlife various state officials, seeking injunction interference tribal members' hunting fishing activities such (other than now privately owned). entered summary judgment for declaring did abrogate Tribe's free regulation. Appeals affirmed. Held: light terms other events history, reserved survive special regulation were Agreement. Pp. 766-774. (a) Treaty's indicates restricted Agreement's broad accomplished diminution boundaries. evidenced intent preserve off-reservation rights and, diminution, silent preservation would have cession well remain "unless temporary leave absence granted." 766-770. (b) Silence regard does demonstrate land. historical record between provides no reason reject presumption fairly describes entire understanding parties. Nor compensation parties intend extinguish 1901. contention contrary rests its incorrect assumption separate appurtenant 770-774. 729 F.2d 609 (9 Cir.1984), reversed. David Frohnmayer, Salem, Or., petitioners. Don Brantley Miller, Boulder, Colo., respondents. Justice STEVENS delivered opinion Court. 1 621,824 acres States. question presented case is whether thereafter retained answering we consider only but predecessor established original history Tribe. 2 * early 19th century, Modoc Yahooskin Band Snake Indians claimed approximately 22 million extending east Cascade Mountains southern these into ceding claim all country them" providing described tract 1.9 "within ceded" set apart them, "held regarded 16 Stat. 707, 708.1 "secured" them gathering edible roots, seeds, berries limits." Ibid.2 3 boundaries first surveyed States 1871. Members immediately complained surveyor large areas Treaty. These complaints resurveyed slightly enlarged 1888. response complaints, 1896 Congress authorized Boundary Commission determine amount incorrectly reservation.3 4 October 1896, three-member visited traveled disputed guide, interviewed number who participated negotiation See Report (Dec. 18, 1896), reprinted S.Doc. 93, 54th Cong., 2d Sess., 5-19 (1897). specifically recalled intended include Sycan Sprague River Valleys eastern portion because those valleys important source Tribe.4 Based review geographical description itself, concluded over 617,000 previous surveys. Id., at 11. 5 determined average 83.36 cents per acre. This figure took account good timber meadows valleys" "rocky sterile mountain ranges, producing very ordinary little grass."5 Commission's valuation based use stock grazing timber. Its report discuss nor it advert conduct land.6 6 Upon report, appropriated funds 1898 precise "resurvey exterior Reservation," Secretary Interior "to negotiate through inspector relinquishment lands. Act 1, 1898, ch. 545, 30 571, 592. 7 course extended next two years. assisted counsel actively asserted interests when diverged proposals States.7 Yet congressional documents contains reference continuation objection resolving problem selling appears anywhere record.8 Although one felt price recommended too high, see n. 7, supra, recommendation ultimately accepted.9 final signed 191 adult male June 17, 1901.10 8 Agreement, agreed pay $537,007.20 return, Article I "cede, surrender, grant, convey thereby diminished two-thirds size Treaty.11 IV 9 ratified 1906. 21, 1906, 3504, 34 325, 367. Between virtually closed settlement entry placed national forests parks, App. 14, status much retains day. stipulated time commencement 1982. Ibid. During period, there Oregon, denial 15. It hunting, fishing, trapping, "crucial survival" 1864, 1901, continue "play highly significant role" lives Indians. 19. II 10 1954, terminated federal supervision property, including Reservation. Pub.L. 587, 68 718-723, amended, 25 U.S.C. §§ 564-564x. Termination required elect either withdraw receive monetary participate non-governmental management plan. § 564d(a)(2). sale necessary provide withdrawing members, transfer unsold private trustee. 564e(a).12 further specified "abrogate privileges tribe thereof enjoyed treaty." 564m(b). 11 1969, Claims awarded $4,162,992.80 additional v. 20 Ind.Cl.Comm'n 522. As award estimated harvesting, constituted "highest best uses" 525. specify for, mention, rights. III 12 filed conceded authority interfere sold transferred pursuant 1954 Act, enforce regulations 13 essential facts stipulated. favor "did abrogate" "treaty . hunt, fish, gather, Oregon" lands.13 relied preserving "entitled agreement," Government's failure compensate loss 1969. 14 Cir.1984). held itself. Accordingly, necessarily Construing Indians' favor, consistent conveyed. court then ruled omission rights, supported conclusion otherwise sustained burden demonstrating clear treaty 612-613. 15 Because Appeals' decision appeared conflict principle Eighth Circuit Red Lake Chippewa Minnesota, 614 1161 (per curiam), cert. denied, 449 905, 101 279, 66 136 (1980),14 granted certiorari, 469 879, 242, 83 180 (1984). We reverse. At issue argues even though exclusivity expired agrees owned may validly regulate activity parks forests. F.2d, 611; Brief Respondent, 12, 17. non-Indians least same residents Oregon.15 Our inquiry, therefore, nonexclusive regulation, face lands.16 17 holding predicated 612. agree enjoy independent ownership land,17 that, demonstrated 564m(b), termination reservation.18 Moreover, entirely correct view doubts meaning should resolved tribe. Washington Commercial Passenger Fishing Vessel Assn., 443 658, 675-676, 99 3055, 3069, 61 823 (1979); Carpenter Shaw, 280 363, 367, 50 121, 122, 74 L.Ed. 478 (1930). Nevertheless, cannot court's interpretation reading V 18 Before executed, about tract—except Reservation—stated title, claim" area. general conveyance unquestionably carried whatever previously possessed Presumptively, similar used effect. 19 More importantly, plainly exercised limits point can understood consideration described. relevant found I: "That following tract, treaty, shall, until directed President residence Indians, [and] And tribes aforesaid bind themselves ratification will remove thereon, unless superintendent agent having charge tribes. "It white person permitted locate except agent, employes department, officers army persons expelled therefrom; limits, hereby secured aforesaid. ." 708. 21 thus take lakes "included reservation," limiting surely pertained area excluded. mentioned confined fact characterized "exclusive" forecloses possibility existence reservation; possible open non-Indians. "remain granted," manifest exist independently must read mind. Reservation, enacted express provision continuing former 564m(b); Kimball Callahan, 590 768 (CA9), 444 826, 100 49, 62 33 (1979). contained Instead, unequivocal surrender " 367 (emphasis added).19 both divestiture sovereignty. reserving specific normal construction words encompass fishing. 23 unequivocally confirmed "exclusive." Since concededly ceded, longer Indeed, if "privilege hunting" our precedents suffice defeat State's power reasonably evenhandedly activity. 16, supra. precedents, 19th-century agreements, serves strengthen comprehended Agreement.20 24 noted, preserved "benefits treaties, made none lost. But could consistently off I. glaring inconsistency overall structure present simultaneously while remaining bound honor commitment stay absent permission. implicit linked boundaries.21 sum, identical evidences VI 26 acknowledges silence viewed context, demonstrates asserts Congress' "singular" purpose negotiating ratifying benefit honoring States' obligations," purpose. Respondent 28-30, 13. disagree reasons. 27 First, end assent return compensation, Having acknowledged remedy breach might opted restore occasioned erroneous surveys, or, instead, acquire represent fair compensation. Both options obligations. Choice purchase option intent, sides, attaching since boundary restoration rejection 28 Second, motivated goals. non-Indian settlers moved onto completed military road across conflicts perceived interlopers sufficient require attention. 129, 53d Sess. (1894); 8, Negotiations order settle goals again suggest equally options: exclusion required, excluded, entered-upon Rather Tribe—an left intact chose leaving use,22 taking. 29 represented counsel, committee spoke English, alterations proposals. H.R.Doc. 156, 56th 29-30 (1900). stressed importance establish "in it. mention language, appear render exercise strongly supports existed contemporary intention specially rights.23 finally contends explained above, incorrect. understand exist, game, vegetation subsumed general. actually presumably computed explicitly subtracted paid so encumbered. 31 afforded opportunity recover "unconscionable" Ind. Cl.Comm'n, 530. proceeding, resulted $4 million, id., 543, commercial lumbering livestock grazing, rights.24 VII 32 Thus, "legal ambiguities Indians," DeCoteau County Court, 420 425, 447, 95 1082, 1094, 43 300 (1975), courts ignore plain context given "fair appraisal," U.S., 675, S.Ct., clearly runs counter tribe's later claims. Careful examination leaves us firm conviction gather berries, seeds therefore ordered. POWELL part case. 35 MARSHALL, whom BRENNAN joins, dissenting. 36 today holds although done undisturbed immemorial. subject extent past recognized rights—even nonexclusive, valuable property fully deemed abrogated explicit indication.1 historically vital prosperity Klamath, assumes silently gave up approved injustice. reaches evidence party envisioned effect altering practices, practices change result boilerplate does, believe necessary, ignores faithful well-established principles interpreted likely tribe.2 dissent. 37 briefly summarize explains, whereby south central Oct. 707. small title. points out: "The [Klamath 'the limits.' Ante, 755. borders soon became dispute, purposes always clear. purposes, accomplishment, stated appointed study dispute: 38 evidently principal object draw territory roaming, constant collisions steadily encroaching whites, concentrate more limited, still ample means subsistence. 39 "To attain this, marked tendency emphatic testimony seek make ridges, nature renders easy accomplishment sides north. 40 "There however, support high altitude severity climate unfavorable cultivation cereals, subsistence depended natural products, consisting principally wild seeds. barriers, frequented stocked ground roots formed Indians." 6-7 (1897) (Klamath Report). 41 eventually promised among grounds substantial importance. definition planned insistence; but, 1871 survey, newly survey violation began enter lesser extent, settlement. See, e.g., S.Exec.Doc. 4-6, 8-9, 11, (1894) (various noting uses relatively settlement); 5, infra. vehemently repeatedly protested entrances, nevertheless 15-16, 18. protests decades, led establishment proper 10, 398, 321, 342. 42 went numbers Klamath. Tribal elders insisted sure supposed They demanded land's inclusion explained, traditional activities. Commissioners inspected site stone dam constructed maintained aid fish. Klamath's largely justified deserving redress.3 determined, desires, redress form officially back border where set. notes, gathering—basing grazing. knew basis finding Similarly, during years toward agreement, cessation question, nor, true, simply never mentioned, certainly anyone, official, compel way alter engaged initial forced accept others entering using done. 44 seemed satisfied raised 759. conclude extinguishing 770. Given first, compensated position less promised, second, survey. actual ability possession Treaty; goal terminate A. 45 focuses contrast, broadly declared [the] Respondents below argued parts hands.4 46 rejects unexplained insistence emphasizes, obligated terms. Court's view, existed. To allow would, create "glaring inconsistency" now-diminished obligation B 47 overly formal approach fundamental presumptions Choctaw Nation Oklahoma, 397 620, 631, 90 1328, 1334, 615 (1970), thought inquiry focus, primarily Treaty—leaving abstracted contexts—but instead problems rise need Certainly, latter better suited determining parties, especially, understandings 48 When looking own setting, conclusions expectation losing pursuing immemorial particular terminating 49 (1) perspective difficult divine. 1906 "[h]unting, trapping [were] crucial survival (stipulated facts). received, received 51 possess particularly prohibited able exclude others. opened others; thus, become disappeared. what lost, accordingly, focused presence suffered. nothing indicate working makes lose 52 (2) 53 similarly clear, demands unfortunate mistake. ill-suited agriculture settlement, reflects collateral Congress. pressures urging issue.5 There States—acting trustee unjust accidental diminishment effectuate lightly assume Congress, acting interests, wished access food supplies utilized. 54 do assumes. alternative stay, poor contain quantities self-sufficient wander. ever wander once title—the accepted smaller retaining self-sufficiency concern. 55 hostile infra, surrounding minimally settled best. For prohibit served publicly declared, compromised self-sufficient. unreasonable purporting act priority assuring strictly mean food. initially easily seen effort travel, full long possessory So resolution serve containing compromise shared self-sufficiency. 56 (3) 57 parties' perspectives conforms know subsequent behavior.6 fact, "[v]irtually parks." 13-14 argument incompatible uses. behavior current "continued present," patterns cession. 58 (4) 59 Last, treatment envision denied grounds. considered calculated 12. Yet, aware reviewed supplemented Klamath—more six decades Agreement—it assigned 14; 522 (1969). bodies surprising, accepts cease. normally valued Menominee 391 404, 413, 88 1705, 1711, 697 (1968) (will meant compensation); cf. Sioux 448 371, 422-424, 2716, 2744-2745, 65 844 (1980) designed ensure cover land). lack merely incidental ownership.7 C 60 analysis offered here prior cases regarding often many corresponding nn. 4, terminated. 564m(b) (fishing Reservation 1954); 768, 772 (CA 9), most implication enactment written rights' survival. case, de facto separation could, essence, [cession]," repeated statements abrogation inferred, find disturbing. follow sort canons call analyzes involving language. turns "plain meaning" impossible one. Ultimately, produces insensitive conclusory how almost 63 represents another deprivation accomplish anything wrong already 64 respectfully Senate 1866, proclaimed Grant February 1870). Relying (1968), Ninth gather. 493 564, 566, 419 1019, 491, 292 (1974). California & Land Co. Worden, 85 Fed. 94, 97 (CC Ore.1898) (Klamath's "operates into"). provided: appoint commission whose duty visit thoroughly investigate location lines [S]aid ascertain determine, nearly practicable, acres, any, character thereof, nature, Henry Blow, chief testified follows: "Q. Was Mr. Huntington negotiator] Valley? "A. Yes; wanted keep camas pastures, etc., mountains." Mo Ghen Kas Kit, signatory, testified: "At Council Grove we, told Huntington, before describing points, Valley down Ish tish e wax [place fish], Valley, needed it, especially valley great purpose, dependent living. All headmen leaders saying this—and 'I will,'—you 15-16. reported: varies greatly. limited tracts meadow major inferior quality. With exception sections, bone contention, greater consists rocky grass. vicinage Mounts Scott Cowhorn northwest north value. "Being volcanic formation, substrata basalt pumice covered ashes decomposed pumice, offering scanty sustenance vegetation. extensive embraced slopes spurs Yamsay western Winter Ridge likewise worth owing rugged formation. "Giving tracts, proportionate valuation, $533,270, 617,490 86.36 acre." Citing stipulated: arriving land." Negotiation efforts different negotiators Inspector William J. McConnell James McLaughlin. Throughout negotiations, concerns immediate cash price, remainder available discretion degree, expenditures irrigation charged directly irrigation. 10-12 (1900) (letter Wm. (Jan. 1899)); 28-30 McLaughlin (Oct. 29, 1900)); 79, 57th 1st (1901) (June 19, 1901)). lacked rejected McConnell's proposals, proposed depositing sum Treasury name. 11-12 "As ultimatum," reported, "I Despite his reported opinion, "practically worthless," he believed unentered acreage rather 10. If acreage, recommended, [to exceed $250,000," opposed $533,270 suggested. Shortly submitted attorneys wrote Commissioner Affairs criticizing views gratuitous "individual opinion." requested "further investigation" made, "so complete information Congress." 18-19 McCammon R. Belt Hon. W. Jones (Apr. 1899)). objections, negative Tonner (May 15, 1899)), second inspector, McLaughlin, dispatched evaluate new agreement. 22. posed (extract annual Agent Joseph Emery 1887) (noting competing claims "white cattlemen vicinity"); Attachment 129 (map indicating "townships" "approximate Indians"). T. Stern, (1965). 1899, 62,361 "entered" non-Indians, 7,080 allotted "proposed settlers," "leaving balance 555,129 yet unoccupied." assumed negotiator, McConnell, suggested restored being upon. objected report. suggestions, decided recommend purchased. "whilst true valueless arable considerable value, immense pine near future; twenty-nine deprived together valleys, meadows, heavily timbered portions, heartily indorse price. 28. substantive negotiated 3-day period 1900. 29. That mistakenly referred 1888 error, returned obtain 1900 substitution phrase "approved by" "made of" recommending approval "diminished reservation" S.Rep. 198, 59th (1906). Of 2,133 listed roll 1,660 elected participatory 567. 1979, maintain constitution, government, Game Commission. 776, 23. complaint alleged "ceded lands" 87,000 granted, "without knowledge consent plaintiff compensation," Company exchange 5-6. controversy exchanged come occasion. Moadoc Tribes, 304 119, 799, 82 1219 (1938); 296 244, 212, 80 202 (1935); Co., 192 355, 266, 476 (1904); 148 31, 458, 354 (1893); Delles Military Road 140 599, 988, 560 (1891). generally O'Callaghan, Wagon Grant, 1864-1938, Historical Quarterly (1952). encompassed 23, address merits allegations relating here. questions related Band, band parcels agreements 1889 1904. 1162. "rights rice state's activities," despite Band's 1904 Acts reference. sense, somewhat comparable "of usual accustomed places, common citizens Territory" Puyallup Washington, 392, 1725, 689 Winans, 198 662, 1089 (1905). absolute freedom nonreservation 1728 (State "manner" "at places" places reservation); Kennedy Becker, 241 556, 563-564, 705, 707-708, 1166 (1916) (Indian "appropriate regulation" privilege agreement); 384, 665 (although implies easement "restrain unreasonably right"); 682-684, 3072-73, (1979) (reserved "take fish" "untrammeled right" "nondiscriminatory" conservation State); Hobbs, Hunting Rights, Geo.Wash.L.Rev. 504, 525, 532 (1964). unanimously noted: "Our sovereignty 'a component.' Thus prescriptions 'nondiscriminatory law' 'express law contrary.' New Mexico Mescalero Apache 462 324, 335, 103 2378, 2387, 76 611 (1983) (citations omitted). Kake Village Egan, 369 60, 75, 562, 570, 573 (1962) ("State reservation"). E.g., Antoine 194, 944, cited (1968); retain [1954 Termination] Act's enactment"). "express cession." Solem Bartlett, 465 463, 469, 104 1161, 1165, 79 (1905), Yakima sought places," ceded. Private owners fronting subsequently bar property. cross reach stated: "New conditions came existence, fishing] accommodated. Only limitation intended, away." 381, 664. relies Winans proposition necessity extinguished. noted Yakima's 665; frustrated transfers found, matter 1859 interpreted. involves precedent all. sheds resolved. After proclaimed, pass system implemented comply "temporary absence" 91, 125-126 establishes indication concern legal litigation. suggests distinguished "reveal Congressional intent" 33, 15; 471, 1166. course, like Solem, occurred—limitation presumed. 467, 1164; Rosebud Kneip, 430 584, 630-632, 1361, 1385-1386, 660 (1977) (MARSHALL, J., dissenting); Mattz Arnett, 412 481, 483, 93 2245, 2247, 92 (1973). acknowledged, poses survived. withdrawal involved occurred signed. 13-14. say word ceding" specifically, presume continuation." 37. belief, existed, correct, course; indeed Additionally, really "silent" rights—it Viewed entirety Cf. Ward Race Horse, 163 1076, 244 (1896). findings "subsistence" nonlumbering nongrazing term. Ind.Cl.Comm'n, 536. undercuts reliance 422-423, 2744, (1980); Tulee 315 681, 862, 86 1115 (1942). (1970); 1711 (the imputed Congress). "In conclusion, submit thirty-two exhibited patient unwavering confidence justice demanding highest commendation. "Believing grievously wronged settlements solemn pledge drawn, endured aggravating years, resisting allurements adjacent kindred [recent war] remained loyal true." ante, 764-765, quite Pacific Northwest agreements. "absolute regulation." 765, 16. emphasized, nonetheless one, placing permissible 207, 952, (1975) reasonable measure application conservation); 414 44, 94 330, 254 (1973); 684, 864. out, 759-760, negotiator worthless" resisted recommendation, preferring give "additional clue[s] expected happen [with respect to] 472, 1167, speculates though, periods, decline consciously violating law.

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