Document: 532 U.S. 645121 S.Ct. 1825149 L.Ed.2d 889 NOTICE: This opinion is subject to formal revision before publication in the preliminary print of United States Reports. Readers are requested notify Reporter Decisions, Supreme Court States, Washington, D. C. 20543, any typographical or other errors, order that corrections may be made goes press.ATKINSON TRADING COMPANY, INC., PETITIONERv.JOE SHIRLEY, Jr., et al. No. 00-454. SUPREME COURT OF THE UNITED STATES Argued March 27, 2001Decided May 29, 2001 Syllabus In Montana v. 450 544, this held that, with two limited exceptions, Indian tribes lack civil authority over conduct nonmembers on non-Indian land within a reservation. Petitioner's trading post such Navajo Nation Reservation hotel occupancy tax Tribe imposes room located reservation's boundaries. The Federal District upheld tax, and Tenth Circuit affirmed. Relying part Merrion Jicarilla Apache Tribe, 455 130, latter court complemented Montana's framework case-by-case approach balanced land's fee status Tribe's sovereign powers, its interests, impact exercise powers had nonmembers' interests. concluded fell under first exception. Held: Nation's imposition upon reservation invalid. Pp. 8-14. (a) general rule applies tribal attempts nonmember activity occurring land. Tribal jurisdiction limited: For not expressly conferred them by federal statute treaty, must rely their retained inherent sovereignty. Their power sharply circumscribed. noted only exceptions: (1) tribe regulate activities who enter consensual relationships members; (2) non-Indians lands when threatens has some direct effect tribe's political integrity, economic security, health welfare. U.S., at 565-566. regulatory authority, id., 566, adjudicatory Strate A-1 Contractors, 520 438, 453. Citing Merrion, respondents submit do restrict impose revenue-raising taxes. However, because taxing extended transactions trust involving members, 137, it easily reconcilable Montana-Strate line authority. A reaches no further than Thus, does exempt taxation from rule, applied straight up. Because Congress authorized issue through treaty statute, incidence falls land, establish existence one exceptions. 3-8. (b) exceptions obtain here. Neither petitioner nor guests have entered into relationship justifying tax's imposition. Such stem commercial dealing, contracts, leases, arrangements, Montana, supra, 565, nonmember's actual potential receipt police, fire, medical services create requisite connection. Nor petitioner's as an "Indian trader" licensed Affairs Commissioner sufficient itself support As second exception, operation threaten Contrary respondents' argument, judgment Brendale Confederated Tribes Bands Yakima Nation, 492 408, 440, did give broad where acreage miniscule relation surrounding Irrespective percentage reservation, exception grants nothing beyond what necessary protect self-government control internal relations. Strate, 459. Whatever might endanger integrity. 8-13. 210 F.3d 1247, reversed. ON WRIT CERTIORARI TO APPEALS FOR TENTH CIRCUIT Rehnquist, J., delivered for unanimous Court. Opinion Chief Justice Rehnquist 1 544 (1981), we question which presented whether We hold neither obtains 2 1916, Hubert Richardson, lured possibility wealthy Gray Mountain cattlemen, built Cameron Trading Post just south Little Colorado River near Cameron, Arizona. G. Trader, pp. 136-137 (1986). Richardson purchased directly but Reservation, been established 1868, see 15 Stat. 667, was later eight miles so exterior See Act June 14, 1934, ch. 521, 48 960-962. 1934 enlargement Reservation-which today stretches across northeast Arizona, northwest New Mexico, southeast Utah-did alter property: It is, like millions acres throughout 3 Richardson's "drafty, wooden store building four small, one-room-shack cabins overlooking bare river canyon," 135, since evolved business complex consisting hotel, restaurant, cafeteria, gallery, curio shop, retail store, recreational vehicle facility. current owner, Atkinson Company, Inc., benefits Post's location intersection Arizona Highway 64 (which leads west Grand Canyon) 89 connects Flagstaff Glen Canyon Dam north). significant portion stems tourists way National Park. 4 1992, enacted 8 percent boundaries Reservation. 24 Code 101-142 (1995), App. Pet. Cert. 102a-124a. Although legal guests, owner operator collect remit respondents, members Tax Commission. 104, 107. pay approximately $84,000 taxes annually. 5 challenge rejected both Commission Petitioner then sought relief also tax. divided panel Appeals 1247 (2000). 6 agreed our cases area "did make question," 1256, nonetheless "fee simply factors should consider" determining exists, 1258 (citing 18 U.S.C. 1151). decision 130 (1982), "complement[ed]" "case-by-case approach" "the nature attempting exercise, interests involved." F.3d, 1255, 1257, 1261. likened similar imposed Mexico concluding "consensual exists could refrain privilege lodging confines therefore remain free liability [tax]." Id., 1263 Buster Wright, 135 F. 947, 949 (CA8 1905)). dissenting judge would without "any language 'factors' derived Merrion" based her view record, none applied. 1269 (Briscoe, dissenting). 7 granted certiorari, 531 1009 (2000), now reverse. most exhaustively reasoned modern addressing observed At Crow attempt fishing hunting "readily agree[d]" 1868 Fort Laramie Treaty prohibit 557, "power cannot apply non-Indians." 559. delineation nonmembers, stemmed dependent Surveying dating back 1810, Fletcher Peck, Cranch 87, 147 (1810) (Johnson, concurring) (stating lost "right governing every person limits except themselves"), "through original incorporation well specific treaties statutes, many attributes sovereignty." 563.1 sovereignty "their territory": "[E]xercise relations inconsistent tribes." 564 Wheeler, 435 313, 326 (1978) ("[T]he ... necessarily freedom determine external relations" (emphasis deleted))). 9 extracted precedents proposition extend tribe," possible bases First, "[a] regulate, taxation, licensing, means, dealings, arrangements." Ibid. Second, . welfare tribe." 566. Applying these precepts, found there subjected themselves "tribal jurisdiction" agreements dealings "imperil subsistence Tribe." regulations enforced. 10 set forth "broadly addressed concept 'inherent sovereignty.' " 453 (1997) (quoting 563). dealt Three Affiliated Tribes' assertion judicial automobile accident traveling state highway ability police patrol highway, 456, n. 11, public right-of-way lacked "assert landowner's right occupy exclude," 456. Recognizing "immediately involved authority,"2 reasoning "delineated-in main exceptions-the bounds retain 'forms non-Indians.' 565). accordingly governed assertions ("Subject controlling provisions identified courts respect generally 'do[es] tribe' added) 565)). 11 taxes.3 year after severance lessees extract oil gas doing, derives solely exclude "general sovereign, jurisdiction." 137. held, incident nonmembers: "They benefit provision protection governmental services, 'the advantages civilized society' assured government." 137-138 Exxon Corp. Department Revenue Wis., 447 207, 228 (1980)). 12 however, careful note 'transactions significantly members.' Washington Colville 134, 152 There undoubtedly parts suggest broader scope quoted above.4 But holding deem controlling. 142 ("[A] until enters conducts tribe"). An tax-whatever derivation-reaches land.5 13 read Accordingly, incumbent 14 Respondents argue tax.6 Echoing Appeals, numerous provided Nation. record reflects State Police portions traversing reservation; Emergency Medical Services will respond emergency call Post; local Fire Departments provide fire area.7 charge appropriate particular service actually rendered,8 think generalized availability patently insufficient sustain "commercial arrangements," If did, swallow rule: All benefit, extent, "advantages society" offered tribe. (internal quotation marks citation omitted). result square precedents; indeed, implicitly argument Strate,9 consented availing while 456-457, 11. reject reading ignores subverts territorial restriction power. 16 principal amicus, becoming trader." "to appoint traders rules he proper specifying kind quantity goods prices shall sold Indians." 25 261. acquired license transact strictures promulgated Commissioner. CFR pt. 141 (2000).10 arising out relationship, us, clear 17 requires regulation nexus itself. example, even though respondent Contractors perform landscaping work time accident, "was party subcontract, [T]ribes were strangers accident." 457 thus trigger another-it "in penny, Pound." E. Ravenscroft, Canterbury Guests; Or Bargain Broken, act v, sc. 1. here grounded can reach 64, rights-of-way. said virtue warranted light effects Again noting trader," emphasize employs almost 100 Indians; visiting large amounts surround isolated property.11 cause doubt Chapter possesses "overwhelming character," Brief 13-14, fail how "threatens 566.12 19 find unpersuasive augment claim reference 440 (1989) (opinion Stevens, J.). Brendale, per Justices, zone parcel heart" 800,000 closed largely uninhabited extrapolate enjoy wherever plain turned land13 fact development place entire jeopardy." 443 omitted).14 'beyond relations.' 459 564). 431 White, J.) (holding "must demonstrably serious imperil 20 "unique aggregations possessing territory," precludes extension limits. Mazurie, 419 557 (1975). therefore, presumptively failed commensurately related vindicate presumption ripens holding. Reversed. 21 Souter, filed concurring opinion, Kennedy Thomas, JJ., joined. NOTES: nearly 90 million General Allotment Act, 388, amended, 331 seq., issuance patents individual allottees who, patent years, transfer non-Indians. repudiated practice allotment Reorganization 984, 461 equated alienation "with dissolution affairs 559, 9. "defie[d] common sense suppose intend purchasing allotted become South Dakota Bourland, 508 679 (1993); 408 (1989). concede fall framework. 565 ("A nonmembers"). referenced Eighth 947 (1905). never endorsed Buster's statement "jurisdiction govern inhabitants country conditioned title they it." 951. guidance type contemplated 566 authoritative precedent. misplaced Appeals' reliance 1151 conferring certain criminal acts country," "all Government, notwithstanding patent, and, including rights-of-way running reservation." Duro Reina, 495 676, 680, (1990). relied demarcate state, federal, matters, DeCoteau County Judicial Dist., 420 425, 427, (1975) ("While concerned, face, jurisdiction, recognized questions [citing cases]"), deal statutorily Section address least context inapt analogy Our State's substantial describing (1980); Japan Line, Ltd. Los Angeles, 441 434, 445 (1979)). Only full sovereigns enforce laws against all come sovereign's territory, citizens aliens," "can longer described sense." 685. petitioner, unclear relevant. need not, decide exceeds considering contacts responded Post. 57a. charges (a flat call-out $300 mileage $6.25 mile). 127-129. Reply Petitioners 13-14 Amicus Curiae 29 O. T. 95-1872. "preclude" imposing traders" "fees [it] appropriate," contemplate authorize 141.11 reflect amount 1995 study commissioned Commerce states 96.3 16,224,896 tribally owned, comprising 762,749 acres, 4.7 percent, Economic Development Administration V. Tiller, American Reservations Trust Areas, p. 214 (1995). 1990 Census reports 96.6 residents Indian. Joint Lodging 182. lies, population 2.3 percent. 181. referred "necessary management," 141, Just incorporating Merrion's tantamount rejecting rule. (1997), stated misperceived." triggered tribe, broadly permit considered "necessary" self-government. unless drain resources severe "imperil[s]" integrity lands. adverse Stevens' sets detail restrictive "closed area" 438-441. Pursuant reserved 1855 forested severely those "courtesy system." 439 establishes save few natural areas parks issue, open public. 61. 447, (noting "retained zoning area"); 688 "is vital maintenance self-determination"). 22 coherence various manifestations law non-Indians, source doctrine case I join Court's opinion. Under territory much (as here) likelihood (or not) facts exist relevant proposition" 565. That principle, regardless owned

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