Document: 481 U.S. 704 107 S.Ct. 2076 95 L.Ed.2d 668 Donald P. HODEL, Secretary of the Interior, Appellant,v.Mary IRVING et al. No. 85-637. Argued Oct. 6, 1986. Decided May 18, 1987. Syllabus As a means ameliorating problem extreme fractionation Indian lands that, pursuant to federal statutes dating back end 19th century, were allotted individual Indians and held in trust by United States, through successive generations, had been splintered into multiple undivided interests descent or devise, Congress enacted § 207 (later amended) Land Consolidation Act 1983. originally enacted, provided that no fractional interest such shall descend intestacy but, instead, escheat tribe "if represents 2 per centum less total acreage tract has earned its owner than $100 preceding year before it is due escheat." No provision for payment compensation owners covered was made. Appellees are members Oglala Sioux Tribe either are, represent, heirs devisees who died while original terms effect owned subject 207. filed suit Federal District Court, claiming resulted taking property without just violation Fifth Amendment. The Court statute constitutional, but Appeals reversed, concluding appellees' decedents right, derived from allotment statute, control disposition their at death, appellees standing invoke right decedents' estates violated Held: 1. have challenge 207, which deprived them they otherwise would inherited. This sufficient injury-in-fact satisfy case-or-controversy requirement Article III Constitution. Moreover, concerns prudential doctrine also satisfied, even though do not assert own rights taken unconstitutionally, rather pass death taken. For decedent with property, require Interior assume general role executor administrator estate asserting decedent's surviving claims. Here, however, Secretary's responsibilities capacity include administration claim unconstitutional, so he cannot be expected extent turn on statute's constitutionality. Under these circumstances, can appropriately serve as representatives purposes latters' Amendment rights. Pp. 711-712. 2. version effected "taking" compensation. Determination question whether governmental regulation amounts requires ad hoc factual inquiries factors impact regulation, interference reasonable investment-backed expectations, character action. relative upon substantial. Even assuming, arguendo, income generated parcels may properly thought de minimis, value be. Although retain full beneficial use during lifetimes well convey inter vivos, valuable one's itself right. However, any expectations passing dubious. Also weighing weakly favor fact there something an "average reciprocity advantage," Pennsylvania Coal Co. v. Mahon, 260 393, 415, 43 158, 160, 67 L.Ed. 322, escheatable maintain nexus Tribe, consolidation benefits since consolidated more productive fractionated lands. But Government here extraordinary virtually abrogation heirs, part Anglo-American legal system feudal times. effectively abolishes both devise when heir might result property—as, instance, already owns another property—which purpose sought advanced. 712-718. 758 F.2d 1260 (CA 8 1985), affirmed. O'CONNOR, J., delivered opinion REHNQUIST, C.J., BRENNAN, MARSHALL, BLACKMUN, POWELL, SCALIA, JJ., joined. concurring opinion, MARSHALL joined, post, p. ----. STEVENS, judgment, WHITE, Edwin S. Kneedler, Washington, D.C., appellant. Yvette Hall War Bonnett, Mission, S.D., appellees. Justice O'CONNOR Court. 1 presented "escheat" 1983, Pub.L. 97-459, Tit. II, 96 Stat. 2519, * Towards series land Acts divided communal reservations tribes allotments unallotted non-Indian settlement. legislation seems animated desire force abandon nomadic ways order "speed Indians' assimilation American society," Solem Bartlett, 465 463, 466, 104 1161, 1164, 79 443 (1984), pressure free new further white Ibid. Two years after enactment General Allotment 1887, ch. 119, 24 388, adopted specific authorizing division Great Reservation Nation separate tracts reservation Indians, conditioned consent three-fourths adult male Sioux. Mar. 2, 1889, 405, 25 888. Act, each head household took 320 acres most other individuals 160 acres. 890. In protect allottees improvident settlers, States. Id., 891. Until 1910, deceased passed "according laws State Territory" where located, ibid., permitted dispose will accordance regulations promulgated Interior. 36 856, U.S.C. 373. Those generally served ownership 3 policy quickly proved disastrous Indians. Cash sales whites dissipated, farming themselves, evolved petty landlords, leasing ranchers farmers living off meager rentals. Lawson, Heirship: Amoeba, reprinted Hearing 2480 2663 Senate Select Committee Affairs, 98th Cong., 2d Sess., 82-83 (1984). failure program became clearer generations came hold Thus 40-, 80-, 160-acre land, some having hundreds, many dozens, owners. Because often could alienated partitioned, grew over time. 4 A 1928 report commissioned found situation administratively unworkable economically wasteful. L. Meriam, Institute Research, Problem Administration 40-41. Good, potentially productive, allowed lie fallow, amidst great poverty, because difficulties managing this manner. Hearings H.R. 11113 Subcommittee Affairs House Insular 89th 10 (1966) (remarks Rep. Aspinall). discussing Reorganization 1934, Representative Howard said: 5 "It case inherited allotments, administrative costs become incredible. . On reservations, numerous cases exist shares lease money cent month. Or one minute 30 40 different allotments. cost leasing, bookkeeping, distributing proceeds far exceeds income. Service personnel thus trapped meaningless partition all possible human needs lost mathematical haze bookkeeping." 78 Cong.Rec. 11728 (1934). 6 response arguments these, acknowledged ended 576, 48 984, 461 seq. 7 future prevent compounding existing caused passage Ownership continued fragment succeeding since, things, apt heir. 1960, undertook comprehensive studies problem. See Heirship Study, 86th Sess. (Comm.Print 1961); Survey, 1960-1961). These indicated one-half approximately 12 million ownership, six parcel. pt. X. Further hearings 1966, 11113, supra, until 1983 did take action ameliorate Section Act—the issue case—provided: 9 "No restricted within tribe's subjected jurisdiction descedent [sic] if 2519. made signed law January 12, effective immediately. 11 three appellees—Mary Irving, Patrick Pumpkin Seed, Eileen Bissonette—are enrolled Tribe. They March, April, June Bissonette's decedent, Mary Poor Bear-Little Hoop Cross, purported her including five minor children whose name Bissonette claims property. Chester Charles Leroy Edgar Seed intestate. At time deaths, four 41 provisions App. 20, 22-28, 32-33, 37-39. Irving two together $100; Bureau placed values $2,700 26 Cross $1,816 13 estates. passed, ordinary course, those represent. States South Dakota, concluded constitutional. It vested prior deaths plenary authority abolish power testamentary alter rules intestate succession. Juris.Statement 21a-26a. Eighth Circuit reversed. Clark, (1985). agreed death. Amendment.1 II 14 F.2d, 1267-1268. does contest ruling. recognized, existence controversy jurisdictional prerequisite court's deliberations. 1267, n. 12. We satisfied necessary exists case. Singleton Wulff, 428 106, 112, 2868, 2873, 49 826 (1976). 15 addition constitutional requirements, we recognized limitations. court below principles plaintiff must his interests. That principle, exceptions. Nevertheless, difficulty finding met here. 16 obvious reasons, long pursued third party. common law, prosecuted estate. role. §§ 371-380. capacity, see 2202, 2209, hardly point. situated pursue vigorously, receiving indissolubly linked intestacy. vindication ensure appellees; pressing unsuccessfully equally guarantee nothing. short, permitting raise merely extension law's appointment representative. therefore "settled practice courts" open objection ground permits litigant parties' Tyler Judges Registration, 179 406, 21 206, 45 252 (1900). 17 Congress, acting broad regulate lands, Jefferson Fink, 247 288, 294, 38 516, 518, 62 1117 (1918), ameliorating, time, certain By forbidding small, hoped able make ancestral agree encouraging public high order. call dramatic encourage consolidation. Sisseton-Wahpeton appearing amicus curiae support quintessential victim fractionation. Forty-acre Lake Traverse Reservation, about $1,000 annually, commonly subdivided hundreds interests, generate only pennies rent. average 196 tracts. headache fathomed examining Tract 1305, dubbed "one world." 85 1305 produces $1,080 annually. valued $8,000. 439 owners, one-third whom receive $.05 annual rent two-thirds $1. largest holder receives $82.85 denominator used compute 3,394,923,840,000. smallest $.01 every 177 years. If sold (assuming agree) estimated $8,000 value, entitled $.000418. handling $17,560 86, 87. Comment, Too Little Land, Many Heirs—The Problem, 46 Wash.L.Rev. 709, 711-713 (1971). 18 considerable latitude regulating adversely affect Keystone Bituminous Assn. DeBenedictis, 480 470, 491-492, 1232, ---- - ----, 94 472 (1987); Penn Central Transportation New York City, 438 104, 125-127, 98 2646, 2659-2661, 57 631 (1978); Goldblatt Hempstead, 369 590, 592-593, 82 987, 988-989, 130 (1962). framework requiring firmly established regularly recently reaffirmed. See, e.g., U.S., 485, S.Ct., ----; Ruckelshaus Monsanto Co., 467 986, 1004-1005, 2862, 2873-2874, 81 815 (1984); Hodel Virginia Surface Mining Reclamation Assn., Inc., 452 264, 295, 101 2352, 2370, 69 (1981); Agins Tiburon, 447 255, 260-261, 100 2138, 2141, 65 106 (1980); Kaiser Aetna 444 164, 174-175, 383, 389-390, 332 (1979); 124, 2659. THE CHIEF JUSTICE written: 19 "[T]his 'been unable develop "set formula" determining "justice fairness" economic injuries compensated government, remain disproportionately concentrated few persons.' [Penn U.S.], 124 [98 2659]. Rather, examined 'taking' engaging essentially hoc, identified several factors—such investment backed action—that particular significance. Ibid." 175, 390. 20 There provides small unproductive owner's accept Government's assertion While $100, 21-28, 29-39. trivial sums. suggestions legislative history regarding 1984 amendments "look back" timber mineral S.Rep. 98-632, H.J. Res. 158 26, 32, 75 Amendments Act: H.J.Res. 1st 8, 29 (1983). Of whole Appellees' retained vivos. question, Depending age owner, much parcel inhere "remainder" interest. CFR 20.2031-7(f) (Table A) (1986) (value remainder life tenant 32% whole). "investment-backed expectations" Though conceivable purchased expectation overwhelmingly acquired gift, descent, devise. highly improved None point beyond ancestors ceding large parts Reservation. 22 322 (1922), All nor belong substantial overlap between groups. benefit others' gained greater sum burdens imposed 23 stop our analysis point, find extraordinary. 176, 391, emphasized destroyed essential sticks bundle characterized property—the exclude others." Similarly, type interest—to heirs. form another, property—to family particular—has Perkins, 163 625, 627-628, 1073, 1074, 287 (1896). complex vivos transactions revocable trusts simply adequate substitute taken, given nature concedes unprecedented likely unconstitutional. Tr. Oral Arg. 12-14. property—as instance property.2 Cf. 2206(b) (1982 ed., Supp. III). Since not, argues, necessarily nor, availability transfer obviate need upheld. cf. Andrus Allard, 51, 318, 210 (1979) (upholding sell endangered eagles' environmental protection regulatory scheme). holding complete abolition class taking, reaffirm continuing vitality line recognizing States', appropriate, adjust governing implicating guarantees Just Compensation Clause. Trust Day, 314 556, 562, 398, 401, 86 (1942); 518. difference completely abolished; indeed abolished circumstances advanced, conflict little doubt serious appropriate Surely permissible subdividing among pain escheat. Texaco, Inc. Short, 454 542, 102 781, 799, 70 738 (1982) (BRENNAN, dissenting). minimize abolishing intestacy, thereby forcing formally designate What certainly step Accordingly, words Holmes, "goes too far." 160. judgment Affirmed. 27 BLACKMUN join, concurring. 28 I nothing today's limit (1979), facts. Indeed, largely reasons discussed Appeals, am view unique negotiations giving rise unusual one. 1260, 1266-1269, (CA8 1985). join POWELL write separately note my present insofar balance left untouched, indistinguishable (1979). comparison determinative 136, 2665, 413, 159, today decision limits Allard 31 WHITE joins, judgment. 32 legitimate eliminating holdings real Legislating pursuit interest, constitutionally affected 2206 III), ways: them; condemned paid owners; untouched conditioning voluntary conveyances period 33 plainly authorize purchase condemnation compensation, valid authorized alternative. therefore, principal lawful exercise sovereign's prerogative condition retention fee simple performance modest statutory duty 34 Court's persuasively demonstrates strong solving indicates congressional efforts address examination history, incomplete. An surrounding Congress' discloses abruptness lack explanation added section ante, 708—709. 35 1982, special bill Devils North Dakota adopt approval Interior.1 compensate acquired; contain escheat.2 When considered expanded coverage Secretary, 207—the case—to bill. H.R.Rep. 97-908, pp. 5, (1982).3 Report specifically discuss how out resulting authorization enact erosion unqualifiedly stated allottee dies intestate, inherit non-Indian." 11. 37 returned amended Senate, accepted floor discussion 128 Cong.Rec.S. 15568-S. 15570 (Dec. 19, 1982). provided: [descend4] 39 text pains specify approved plan fair price. 204, 205, 206. comparable explain why omitted grace section. March Department issued memorandum area directors advise provide interim instructions pending promulgation formal regulations. explained: "Section effects major change testate heirship succession land. section, explained below, longer capable descending being devised will. Such will, current tribe. 42 "Because P.L. 97-459 constitutes succession, Area Offices Agencies urged landowners under notice effects."5 44 then wanted devisees, tribe, acquire avoid outlined percent enlarge percent.6 represent 1983.7 size varied widely—the 1/3645 320-acre tract, $12.30, whereas equivalent 31/2 $284.44. 23. valid, escheated Tribe; invalid—the "can rights." Ante, 711—712. reason asserts press, behalf decedents. gap separates allows advance rationale ultimately finds persuasive. 47 grant relief based hypothetical rests implicit adoption overbreadth heretofore First area. uses language takings jurisprudence express conclusion violates Amendment, far," 718, interfere dispositions, inheritances, increased fractionation.8 reasoning apply decedents, litigants' case, children. cases, next generation.9 settled precedents application heard attack impliedly applying persons situations unconstitutional." Raines, 362 17, 21, 80 519, 522, 524 (1960) (citing cases). rule wisdom "delicate pronouncing unconstitutional exercised reference imagined." 22, 523.10 review granting litigants, novel approach required. argues features suggest modify individual's presently him opportunity dispositions consequences newly disposition. contend unlimited applied contends falls boundaries operate extinguish places emphasis minimal legitimacy consolidating beneficiary so-called "escheat." points, whole, absolutely basis reversing Appeals. yardstick measuring "the scope dual deprivation process law." 540-541, 798, sovereign license private paying providing mitigate relatively inexpensive. Loretto Teleprompter Manhattan CATV Corp., 458 419, 436437, 438, 16, 3164, 3176-3177, 73 868 (1982). draws distinction grand larceny larceny. 50 arbitrary, Delaware Tribal Business Weeks, 430 73, 97 911, 51 173 (1977), alleged "public use" meaning facts, excuse whatever obligation pay arises Nor lessen importance unwarned wants leave takes succession; retains landowner's loss same. designation feature, respects. beneficiary, bring workings attention owner. addition, highlights inappropriateness majority's analysis. term differs way familiar term. person sovereign; mechanism what remained abandoned contrast, supersedes claimants property; allocates contending parties. 52 conventional escheats important way. contains assuring suitable arrangements operation statute. Legislation unclaimed estate, bank accounts, earmarked funds, typically precedent lapse sure fairly treated abandoned.11 interpleader proceedings procedural safeguards, appear, 1335; Fed.Rule Civ.Proc. 22. us, contained mechanism, apparently relying possibility learn another. 53 qualify kind regarded imposing consolidate similar method enforcing treat nonperformance lifetime abandonment release dominion justify sovereign. 54 Long ago clear fails affirmative steps relied upholding Indiana's Mineral Lapse extinguished coal, oil, minerals years: 55 "These decisions clearly establish Indiana issue. upheld act limited perform condition, deemed matter lapse." 529, 792. 56 clear, lapse, escheat, impose conditions unreasonable, allow Texaco satisfied: Legislature easily met,12 2-year included foreclosed argument familiarize themselves comply extinguished. Locke, 471 84, 15, 105 1785, 1799, 64 (1985), "[l]egislatures substantive forfeited consider indicate ." rules, afford comply. Due Process Clause applies 207's determination acts omissions validly constitute abandonment, Takings accompanied compensation.13 follows, believe, failing "grace period" arrange abandonment. presumption invalid precise facts reach Appeals—that compensation.14 58 Critical readily risk variety ways,15 afforded provisions. 59 "The first raised legislature go advising citizens actions abandoned. answer posed affecting Generally, publish citizenry forecloses terms. owning charged knowledge relevant property." 531-532, 793.16 60 Assuredly ample face occur unless consequence. palpably denied opportunity. 61 day law. almost months distribute decedents—who 23, April 1983—had anything approaching respective owners.17 With respect manifestly insufficient becomes denial justice." Wilson Iseminger, 185 55, 63, 573, 575, 804 (1902).18 "are presumptively law," Atkins Parker, 115, 130, 2520, 2530, 'grace period' obligations it." 532, 793). Unlike foodstamp recipients received 90 days substance 130-131, period. Nothing record suggests put affairs order.19 63 failed compliance implies rejection Constitution vests "to deal problems Indians." Morton Mancari, 417 535, 551, 2474, 2483, 290 (1974). acknowledges, "is limitations." Brief Appellant 24-25. required succession.20 omitting light concur explanation, went "declare" it, unconstitutionally none "declaration" is, best, dicta. constitutionality amended. STEVENS results importation jurisprudence. Post, 724—726. actually attempted remains abrogated 207; stick bundles entirely proper assessing passes muster balancing test. neither novel. 493-502, (1987) (discussing, terms, coal extraction Subsidence Act); 136-137, (1978) (discussing air Grand Station landmark, noting construction prohibited, transferable development rights). STEVENS' objections perhaps better directed third-party Amendment's shown, bar claims, himself considerations consideration claim. 724. 503, 97th described follows: 503 purchase, sale, exchange Dakota. designed maximize utilization base. restrict inheritance market estate." 97-507, additions 5856, Act. published. Legislative Calendar, 72 summarized (1) mechanisms tribal landholdings; (2) buy obtain (3) keep allowing 9-11. word "descedent"—an error—appears text. 30, 1984, 3171—which case—corrected error substituting "descend" "descedent" accompanying statute: "[T]he voted garbled printing. Title President." Juris. Statement 38a-39a. stated: "To assure effectiveness state above category (if she concerned interests) additional coowners 151.7 increase his/her percent. Another alternative relatives 152.25 reserve retaining individual, tribal, ownership. alternative, feasible, portion said tract. "Indians falling occupying, using, should especially advised aforementioned alternatives." 39a-40a. daughter 18; guardian Geraldine id., 21; son 34, nephew crux "What 'goes far.' " 718. potential pieces father uncle net distribution uncle's father's fractionalization Furthermore, Bissonette. exception "statute's very cause others refrain protected speech expression." Broadrick Oklahoma, 413 601, 612, 93 2908, 2916, 830 (1973). outside area, departs precedent. showing applications entire coverage. "[W]e believe real, well, judged relation sweep." 615, 2918. City Council Los Angeles Taxpayers Vincent, 466 789, 2118, 2125, 772 (1984) (requirement substantiality prevents requirements); Ferber, 747, 767-771, 3348, 3359-3362, 1113 (a invalidated overbroad substantially so). wrote Ferber: "My avoiding qualitative quantitative. follow traditional adjudicating difficult questions concrete situations, adjudications tend crafted wisdom. Hypothetical rulings inherently treacherous prone lead us unforeseen errors; qualitatively reliable products case-by-case adjudication." 780-781, 3367 (opinion judgment). obviously "substantially overbroad." notion unrelated freedom expression prompting startling cites authority. example, bears responsibility funds Peoria statutorily 84 688, 1222. 1226 ("Any capita share, payable enrollee legatees enrollee, deliver date check revert Tribe"). notice. N.Y.Aband.Prop.Law 300-302 (McKinney 1944 Supp.1987) (property banking organizations); Ill.Rev.Stat., 141, ¶ 102, 112 (1985) financial organizations). Statutes interested parties Cal.Civ.Proc.Code Ann. 1420, 1423 (West 1982); Tex.Prop.Code 71.101-71.106 (1984 Supp.1987). arbitrary severed terminate engages actual production, collects rents royalties proposes so, protected. pays taxes, secure. files written statement county recorder's office, viable. Only surface owner." appear easier meet Paying taxes filing unilateral acts, collect annum willing participation "be life, liberty, law; use, compensation." inapposite demonstrated, analogous rooted oversee supervise Instead analyzing limiting authority, ignores implicitly validity, appears invite widespread challenges Short. supra. Earlier noted (1902), extinguishment realty "since 527, 791, 21. quoted following case: conceded limitation proceed idea party try courts. affording opportunity; attempt limitations, unlawful arbitrarily, purport commencement suits causes action; legislature, courts inquire establishing bar, 62-63, 575. mute 4, silence illuminating; reasonably arranged accordingly. concerning scant whether, longstanding fiduciary postenactment compliance. denies noncompliance work injustice retroactive legislation. instances, "could anticipated liability attaching chosen course conduct avoided altering conduct." Usery Turner Elkhorn 1, 2882, 2893, 752 (1976) Welch Henry, 305 134, 147, 121, 125, 83 87 (1938)). Hemme, 476 558, 568-569, 2071, 2077-2078, 538 (following supra ). contradicts aware notices scheduled week October 24, determine 1262 3171. governed effect.

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