Document: 369 U.S. 60 82 S.Ct. 680 7 L.Ed.2d 636 ORGANIZED VILLAGE OF KAKE, and Angoon Community Association, Appellants,v.William A. EGAN, Governor of Alaska. No. 3. March 19, 1962. On Appeal from the Supreme Court State Mr. Justice FRANKFURTER delivered opinion Court. 1 This is a companion case to 2, Metlakatla Indian v. Egan, 45, 552, 562, but calls for separate treatment. Appellants seek reversal decision Alaska, 362 P.2d 901, affirming dismissal their petitions injunctions against interference with operation fish traps in southeastern 2 The Organized Village Kake Association are corporations chartered under Wheeler-Howard Act 1934, 48 Stat. 984, 988, as amended, 49 1250 (1936), 25 U.S.C. §§ 473a, 476, 477, U.S.C.A. 477. located on Kupreanof Island, 100 miles south Juneau. Admiralty They occupied by Thlinget or Tlinget Indians, native 3 Both communities entirely dependent upon salmon fishing. In pursuance policy create sound fishing economy two groups, United States purchased canneries related properties 1948 1950. Since these dates appellants have operated at specified locations nearby waters, permits granted Army Engineers erect navigable waters Forest Service anchor them Tongass National Forest. 1959 Secretary Interior, regulations issued authority White Act, 43 464, 221—228, Alaska Statehood 72 339, preceding section 21, permitted operate three during season four. 24 Fed.Reg. 2053, 2069. following year authorized permanent trapsites one additional site five more possible future authorization. CFR (1961 Supp.) pt. 88. 4 history this litigation recited supra. It sufficient note here that threatened enforce her anti-fish-trap conservation law, Laws 1959, c. 17, amended id., 95; seized trap Kake, arrested President Council foreman crew attempting moor trap, filed informations them; suit was both interim District enjoin claimed rights; complaints affirmed 5 situation differs Metlakatlans neither nor has been provided reservation there no statutory which Interior might permit either contrary state law. do not rely heavily Secretary's regulations. Neither cited Secretary, supports grant immunity anti-monopoly measure. limit times, places, equipment order conserve forbade him so doing exclusive rights, even Indians. Hynes Grimes Packing Co., 337 86, 122—123, 69 968, 988—989, 93 L.Ed. 1231. Because rights Kakes Angoons, they cannot created pursuant though statute now applies, if all, only Moreover, gives power fishing, rights. retained 'absolute jurisdiction control' 'property (including rights)' States, it did give powers nature Interior. No other source appears available. provisions found 9, referring President's prescribe effectuating statutes 'relating affairs,' settle accounts 'Indian concerning 'the management all affairs matters arising out relations,' derive 1832 1834, 564 735, 738. keeping almost total tribal self-government prevailing when were passed, see U.S., pp. 71—72, S.Ct., p. 569, infra, Department itself sole conferred first implement specific laws, second over relations between Indians—not general make rules governing conduct. Federal Law (1958), 54—55; Cohen, Handbook (1945), 102. We agree support fish-trap 6 Corps Service. But grants right be free regulation prohibition. Like certification Interstate Commerce Commission, each simply acknowledgment activity does violate federal an exemption licensing police requirements. Cf. Maurer Hamilton, 309 598, 726, 84 969; South Carolina Highway Dept. Barnwell Bros., 303 177, 58 510, 734. objection Rivers Harbors 30 1121, 1151, 33 § 403, obstruction streams incident Angoon; use land them. attempted exempt As case, certain grounds relied court longer urged State. principal dispute concerns meaning disclaimed title over, inter alia, 'any lands property rights), may held any Eskimos, Aleuts (hereinafter called natives) trust said natives.' 8 its brief amicus curiae contended absolute ousted Indians urge Congress intended protect freedom continue had done before statehood, interfere actually practiced time. argue addition using exercising aboriginal protected 4. below concluded Alaskan natives extinguished, enjoyed common Alaskans, protects given 9 wisely abandoned position legislate respect activities Legislative reveals such intention Congress, concerned protection claims existence time statehood. See, e.g., Hearings Before House Committee Insular Affairs H.R. 2535 bills, 84th Cong., 1st Sess. 124—131, 266—267, 381—383 (1955). we accept Alaska's contention 'including refers owned Section must construed light circumstances formulation enactment. See Pacific Fisheries 248 78, 87, 39 40, 41, 63 138. aware few existed Its concern preserve status quo possessory claims, statehood would extinguish recognize compensable. Hearings, supra, 130, 384 (1955) (Delegate Bartlett); Senate S. 50, 83d 2d 227 (Senator Jackson), 260—261 (1954).1 10 Discussion hearings 1955 bill affords further evidence based law included. 205 (like enacted) select large tracts transfer ownership. understood disclaimer provision left choose 'property' desired, taking leave unimpaired Indians' sue compensation later established due. 135 Bartlett). Feeling experience shown procedure too slow prompt relief Oklahoma's Representative Edmondson proposed State's selection. Id., 381. rejected virtually destroying lands. For, although pointed extended them, four representatives clearly stated belief included just reservations also unproved dispute, covered most 383 (Representatives Engle, Dawson, Metcalf, Westland). 11 'Fishing rights' appeared reported 1951, S.Rep. 315, 82d 2. Earlier bills mentioned land. fishing-rights unique respects same earlier statutes. 67—68, 566 567, infra. because vital importance 125 Department's Solicitor 1942, 57 I.D. 461. There discussion 'fishing Congress. considering suggestion Senator Cordon State, reserving compensation, except Asked describe Heintzleman portrayed smokehouse beside stream, 50 town where live, visited purposes perhaps weeks year. 137 (1954). 12 similar basis Angoons fished disputed since custom that, taken water replaced year, 'jump' trap-site. prior claim trapper respected. Libby, McNeil & 107 F.Supp. 697, 700, 14 37, 42 (D.Alaska 1952); Gruening, (1954), 171; 461, 462 (1942). means makes compensable States; claims. claimant assert his claim, whether right, occupancy, Government. Appellants' within 13 provides shall proprietary matter 'shall remain control States,' parties proceeded assumption possess apply Consequently argument centered 'rights.' erroneous. Although reference unique, retention 'absolute' adopts formula nine Acts. Arizona remained 'under 36 557, 569; yet Williams Lee, 358 217, 220, 223, 79 269, 270, 272, 251, declared test could applied application self-government. identical language Montana's admission 676, 677, Draper 164 240, 17 107, 41 419, non-Indian who accused murdering another Montana prosecuted courts. applies North Dakota, Washington. Identical Acts admitting New Mexico (36 558—559) Utah (28 108), Constitutions Idaho (1890, Art. 19) Wyoming 26), ratified (26 215 (Idaho); 26 222 (Wyoming)). 15 indicate invariably jurisdiction. momentum substantially past legislation touching carries settled legislative history. 16 contains relating property. disclaim property; retains it; tax it. urging dealt granting possessed used States. Subcommittee Public Lands 206 1808, 80th 12, (1947). third nothing case; exclude laws appellants' traps. rather than governmental interest. determined, after some debate, best way ensuring establish If subject transferred thereby lose damages. 286 18 received little attention 1954 copied Oklahoma should 'subject jurisdiction, disposal States.' Enabling 3, 34 267, 270. Barney, behalf Department, inclusion avoid possibility McBratney, 104 621, 869, criminal extinguished Senators Barrett Jackson thereupon expressed clear desire made areas. Barney denied deprive 'political jurisdiction' properties. declared: 19 'The well waive still political actions people those lands, long affect land.' 20 said: 'All you interest,' agreed. 21 act including meant term 'police power,' boundaries unless express definitely implied, thing, 22 Slaughter bill, 11, 'exclusive' Mt. McKinley Park. answer direct question, 'jurisdiction' proposal mean 283—287 contained title, extintinguish taxation. 331. Provisions retaining considered interchangeable least committee, 'almost identical' S.Rep.No. (1951). 23 Most phrasing phrase. usual employed retain acts, 1958 abundance caution deleted word construe abolishing entirely. different 1163, 85th (1957). language, passed first, Cong. Rec. 9756, amendments feared lost once again conference report. 12009—12010. differences wording * designed define jurisdictional problems involved. objective identical. strong end product identical.' amendment what examination decisions also: words oust completely rights).' 'Absolute' carried gloss predecessor statutes, undiminished, exclusive. Boston Sand Gravel Co. 278 47—48, 52, 54, 73 170. 1958, 545, many relation constant days John Marshall. early years, white man pressed eastern part continent, isolate tribes territories own beyond Mississippi, quite govern themselves. 1828 treaty Cherokee Nation, 311, guaranteed never subjected Territory. Even Government asserted punish crimes committed non-Indians. 469, 470; 139. 1152, 1152. spread westward, became evident place forever isolated. recognition fact began consider less foreign nations our country. 1871 treaties abolished, 544, 566, 71, 71. 1887 General Allotment 388, 331—358, authorizing division among individual view toward eventual assimilation into society. 1885, departing Ex parte Crow Dog, 109 556, 396, 27 1030, intruded extend several land, 362, 385, 1153, 1153; Kagama, 118 375, 1109, 228. Other offenses tribe, Quiver, 241 602, 699, 1196. notion drawn Chief Marshall's Worcester Georgia, Pet. 515, 561, 483; Kansas Wall. 737, 755—757, 667; York 761, 708, distinct nation whose penetrate, yielded closer analysis confronted, course subsequent developments, diverse concrete situations. By 1880 viewed ad nations. contrary, cases surrounding Territory, forbidden Northern R. Fisher, 116 28, 31, 246, 247, 29 542. Langford Monteith, 102 145, 53, process served territorial 924, 45 1032, murder law.2 reversed abruptly 1934. A great allottees sold disposed proceeds. Further allotments prohibited safeguard remaining new add existing ones. Tribes become manage affairs, organize adopt constitutions 986, 987, 988. These soon 1250. 28 Concurrently influence increased decreased. result report making unfavorable comparisons 1929 sanitation quarantine reservations, inspections health educational purposes, compulsory school attendance. 1185, 231, 231. Meriam Problem Administration (1928); H.R.Rep. 2135, 70th (1929); Law, 83 (1945); 126—127. 1934 enter contracts extension educational, medical, agricultural, welfare assistance 596, 452, 452. During 1940's sometimes civil well, reservations. E.g., 62 1161; 1224, 232; 64 845, 233; 705. shift termination responsibility resulted abolition 1950's. 68 250, 891 et seq. (Menominees); 718, (Klamaths). 1953 full consenting adequate future. 67 588, 1162, 1360, 1360. added list 545. disclaims federally privileges uses Finally, sale liquor consent tribe itself. 586, 1161, 1161. Thus substantial degree opened doors marked contrast prevailed Decisions Congressional regulate affecting Thomas Gay, 169 264, 340, 740, cattle lessees upheld Fisher Maricopa decisions, taxation railroad rights-of-way. conceded taxed grazed leased might, cases, indirect effect remote require result. latest decision, action brought price goods latter Navajo Reservation. applicability said, depends 'whether infringed ruled them,' 271. Another recent statement principle reaffirming non-Indians reservations: '(I)n absence limiting obligation enactment, exercise boundaries,' ex rel. Ray Martin, 326 496, 499, 66 307, 308, 90 261. 31 impair reserved gone extensive activities, reservation. doubted outside Rights Courts, Minn.L.Rev. 153 (1940), citing Pablo People, Colo. 134, 46 P. 636, 37 L.R.A. 636. treaties, off-reservation hunting regulation, Ward Race Horse, 163 504, 1076, 244; Tulee Washington, 315 681, 862, 86 1115, holdings courts Washington enforced reservation, Pioneer Winslow, 159 Wash. 655, 294 557; Moore 157 F.2d 760, 765 (C.A.9th Cir.). Cooney, 77 Minn. 518, 80 N.W. 696. 32 True, others, while certainly impinge treaty-protected self-government, factor decisive Lee. Nor derived laws. lack here, occupancy. migratory habits salmon, merely local matter. empowered so. judgment affirmed. However, hardship, stay Brennan, continued Court, will force until 1962 season, defined ordered. Judgment 35 DOUGLAS, joining dissents reasons opinion. DOUGLAS. When announced 5, 1962, I noted joined dissented continuation elaborate my views reached Conference insufficient prepare Monday. 38 33, 34, maintain pending. then plainly justified, questions presented Now, however, adjudication made; unanimous concluding needed arise Regulations, administrative allow lacking. And deference, justified grounds. continues device nefarious needs potent reasons. 40 destruction caused notorious. Van Devanter, conservationist jurist, described trap1 'to catch about 600,000 single season,' 'will tend materially reduce natural supply accessible Indians.' Dr. David Starr Jordan 1904 Salmon Commission stated, 'If ultimate interests permanence fisheries, allowed anywhere *.' 169. Beginning 1931 Territorial Legislature memorialized condemning adverse industry. Sess.Laws 1931, 275; 1953, 401—402; Sess.Laws. 1955, 447—448. Resolution ended saying: 'WHEREAS, vast majority decades hand study, convinced program can achieve lasting abolished immediately, forever, waters; 'NOW THEREFORE, your Memorialist, Territory respectfully urges requests immediate enacted Alaska.' Native Brotherhood, organized speak Indians,2 reiterated stand 'for complete traps.' 44 6, Associated Press emphasized invidious Indians: 1945 Legislature, behest, Governor, outlawing discrimination public establishments race, creed, color. Seaton's inverse Whites deeply sowing seeds bitterness arousing interracial friction antagonism America disappeared performance inexcusable pressure play. referendum 1948, 88.7% voted abolition, Angoon's vote Kake's 123 Yet Seaton sought Court's conclusion Metlakatla's historically legal status. leaves open present hoped he Metlakatla, referendum—though owning seven traps—voted 112 privilege race finally disappear totally 49th State.' 47 devastating Court: 'It unusual season. impact eleven fisheries Southeastern considerable point conservation. season's gill net purse seine fisherman area run 2,000 10,000 respectively. fishermen, whites alike, resulting creates social powerless remedy upheld. basic industry intimated much described. Such admitted Union far aware. pitifully depleted, entire affected, another, plentitude preservation resource whole.' 915. 'efficient,'3 adjective which, standards, 'destructive.' Gruening 'Its economic aspects unceasing attack cannery men depend types gear generally.' 170—171. selective device, type fish. catches everything swims; 'in season' irretrievably fishermen greatest 51 destructive device4 employed, absent showing imperative need. exists is, course, 2106, 2106 disposing review 'affirm, modify, vacate, set aside reverse, 'require proceedings circumstances.' reason unjust turn nets lines like everyone else. All us motion October 1961 expedite hearing cases. 52 begins July, To commit sums money materials supplies, wire, netting, equipment. portion ordered January, upheld, investment wasted. Conversely, unable 1962.' 53 Whether construction know. Why manner apparent. starts months date What problems, any, without traps, asked juncture litigation. gratuitously knowledge actual facts. dispense group largesse, sat Affairs, giving domain favored few. 54 Those know story decline salmon5 look depletes choice national asset. Severe human hardship handed down true, shown. disposition ample notice ways earning livelihood lazy man's trap.6 requiring 'all natives, acquired through sovereignty,' favorably explanation: 'As paragraph valid together provide determination, perfection relinquishment subtract authority, quo.' H.R.Rep.No.1731, (1948). effect, H.R.Rep.No.255, 81st (1949). railway country, holding discussed. alternative ground right-of-way withdrawn Phoenix 156 347, 391, 447. follows: 'A consists tall stakes mechanically driven piling extending shore varying distances seaward, depending depth water. Wire webbing stretched across seaward ocean bottom upward above high Located wing hook opening heart pot. pass around shoreward end. One tendency migrating parallel shoreline travel incoming tide. Fish stopped eventually follow attempt by-pass obstruction. constructed discourage by-passing divert pot remain. With variations construction, floating adapted deep commonly highly productive.' 903. (Dept. 1958), 963. defend rate being better seine. movable 'difficult keep track inspectors,' stationary readily inspected. Subcommittee, Fisheries, 5856, 62d Sess., 458—459. quick 'provided jigger.' 458. describes 'jigger': 'jigger' lateral curved hooked, away wall outer 'heart' direction come. avoidance heading impossible.' significant Regulation bar (see 88.3), 1913 banned op. cit., James Wickersham, delegate testified 1914 start depletion salmon: 'I want call committee stream depleted California, Sacramento River. River rivers canners put up salmon. 1864 canned packed California 1882 200,000 River—48 pounds 4,800 tons 'Then decrease, went 123,000; 90,000; 57,000; 31,000; 14,000; 1906 none river. For years up, 950 short, utterly destroyed now, substantially. 'Of causes. overfishing, putting barriers fish, mining. things going happen mining streams. obstacles bring evil get work there, depleted. 'When Russians Kadiak century ago, Karluk surrounded spot. That probably turned Evermann acquainted say world. saw 1903. how done. side post hold nets. big boats, nets, half mile long, suppose, bay, came fastened rope shore, attached engine, got along engine pulled number caught unbelievable, machinery. themselves handle kind. able small machinery handling stream. Every region knows destroyed; destroyed.' Territories 11740, 63d 45—46. discussions plight Pacific, Merchant Marine Foreign S.Con.Res. 35, I, 502, 86th Sess.; 2586 1420, II, Dufresne, Troubled River, Field Stream, July 27; Netboy, Northwest (1958); Year Surprise Canning, Fisherman, Jan. 25, 81; 1960, 53; 1961, 13, 23; Fleet, Vanishing Salmon, Atlantic, May 48, 51: 'In estimation, former wealth fishery doomed. Oregon, main runs badly crippled gone. diminished coast Puget Sound, careful husbandry increase. My advice heed lesson states it.' replete examples depletion. serious wildlife. account scarcity brown bear population, 25—26. fishes night sleeps; employs kinds gear; labor-saving 389.

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