Legal Document

520 U.S. 438117 S.Ct. 1404137 L.Ed.2d 661 William STRATEv.A-1 CONTRACTORS and Lyle Stockert. No. 95-1872. Supreme Court of the United States Argued Jan. 7, 1997. Decided April 28, Syllabus * Vehicles driven by petitioner Fredericks respondent Stockert collided on a portion North Dakota state highway that runs through Fort Berthold Indian Reservation. The 6.59-mile stretch within reservation is open to public, affords access federal water resource project, maintained under federally granted right-of-way lies land held in trust for Three Affiliated Tribes their members. Neither driver member or an Indian, but widow deceased tribal has five adult children who are also truck belonged his employer, A-1 Contractors, non-Indian-owned enterprise with its principal place business outside reservation. At time, was subcontract LCM Corporation, corporation wholly owned Tribes, do landscaping record does not show whether engaged work at time accident. filed personal injury action Tribal against A-1, Fredericks' loss-of-consortium claim same lawsuit. ruled it had jurisdiction over therefore denied respondents' motion dismiss, Northern Plains Intertribal Appeals affirmed. Respondents then commenced this Federal District Fredericks, her children, Court, Judge Strate, seeking declaratory judgment that, as matter law, lacked adjudicate claims; respondents sought injunction further proceedings. Relying particularly National Farmers Union Ins. Cos. v. Crow Tribe, 471 845, 105 2447, 85 818, Iowa Mut. Co. LaPlante, 480 9, 107 971, 94 10, dismissed action, determining civil complaint respondents. en banc Eighth Circuit reversed, concluding controlling precedent Montana States, 450 544, 101 1245, 67 493, Montana, subject-matter dispute. Held: When accident occurs public State pursuant land, allegedly negligent nonmembers falls regulatory adjudicatory governance; absent statute treaty authorizing tribe govern conduct driving State's highway, courts may exercise such cases. This expresses no view governing law proper forum when road Pp. ____-____. (a) Absent express authorization treaty, nonmembers' exists only limited circumstances. In Oliphant Suquamish 435 191, 98 1011, 55 209, tribes lack criminal non-Indians. Later, set forth general rule different congressional direction, authority non-Indian reservation, subject exceptions relating (1) activities enter consensual relationships members (2) nonmember threatens directly affects tribe's political integrity, economic security, health, welfare. U.S., 564-567, S.Ct., 1257-1259. (b)— controls case. Contrary petitioners' contention, Mutual establish converse Montana's. case establishes presumptively retain claims arising from occurrences anywhere Rather, these cases prescribe prudential, nonjurisdictional exhaustion requiring court which tribal-court challenged stay hand, comity, until after initial full opportunity determine own jurisdiction. See 857, 2454; 20, n. 14, 978, 14; see id., 16, 8, 976, 8. rule, explained Farmers, 855-856, 2453-2454, reflects more extensive have than proceedings corresponding need inspect relevant statutes, treaties, other materials order authority. Farmers' requirement conflict made plain there announced absence delegation statute. 557-563, 1254-1257. Read context, Court's statement Mutual, 18, 977-978, " [c]ivil [the] [of non-Indians lands] courts,'' addresses situations possess regulate activities. As nonmembers, adjudicative exceed legislative jurisdiction, direction enlarging (c) It unavailing argue, petitioners do, because underlying scene Petitioners correct following instruction-Brendale Confederated Bands Yakima Nation, 492 408, 109 2994, 106 343, South Bourland, 508 679, 113 2309, 124 606-all involved alienated, land. However, acquired renders here issue equivalent, governance purposes, facilitate forms part public. Traffic control. granting instrument details one specific landowners, right construct necessary crossings, expressly reserved dominion control rightof-way. they consented to, received payment for, use issue, so long cannot assert landowner's occupy exclude. (d) refer entertain highway-accident tort suits kind Nor shown qualifies either Montana's rule. tortious alleged fit first exception "activities members, commercial dealing, contracts, leases, arrangements,'' 565, 1258, measured cited 565-566, 1258-1259, fitting exception, Williams Lee, 358 217, 223, 79 269, 272, 3 251; Morris Hitchcock, 194 384, 24 712, 48 L.Ed. 1030; Buster Wright, 135 F. 947, 950; Washington Colville Reservation, 447 134, 152-154, 100 2069, 2080-2082, 65 10. dispute distinctly nontribal nature, between two run-of-the-mill Although "consensual relationship'' party subcontract, were strangers second concerning "threatens some direct effect health welfare tribe,'' 566, inapplicable. stating each raised question (or Territory's) would trench unduly self-government. Fisher Sixteenth Judicial Dist. Mont., 424 382, 386, 96 943, 946, 47 106; Williams, 220, 270-271; Catholic Missions Missoula County, 200 118, 128-129, 26 197, 200-201, 50 398; Thomas Gay, 169 264, 273, 18 340, 42 740. Opening optional protect self-government; defend commonplace unfamiliar crucial Tribes' 76 F.3d 930, GINSBURG, J., delivered opinion unanimous Court. Melody L. McCoy, Boulder, CO, petitioners. Jonathan E. Nuechterlein, Washington, DC, amicus curiae, special leave Patrick J. Ward, Bismarck, ND, Justice GINSBURG 1 concerns actions defendants Specifically, we confront question: driver's neither whom tribe? 2 Such cases, hold, fall out accidents highways, question. We November 1990, Gisela traffic running strip crossing road, affording project. maintains Highway Department; (Mandan, Hidatsa, Arikara) 4 occurred automobile gravel Stockert's employer. related construction community building. Contractors performed all boundaries reservation.1 nor Indian. however, members.2 5 sustained serious injuries hospitalized days. May 1991, she sued Stockert, well Contractors' insurer, lawsuit, claim. Together, damages exceeding $13 million. App. 8-10. 6 insurer appearance contest court's case, dismiss action. Id., 24-25.3 appealed jurisdictional ruling Appeals, 36. Thereafter, parties' stipulation, suit. 38-40. 7 Before resumed, Dakota. Naming claims. 41-45. 8 decisions 818 (1985), 10 (1987), determined Stockert; accordingly, cross-motions summary judgment, 54-67. On appeal, divided panel 68-90. rehearing and, 8-to-4 decision, reversed judgment. 930 (1996). concluded our decision 493 (1981), precedent, dispute.4 9 certiorari, 519 ----, 117 37, 1128 (1996), now affirm. II Our 209 (1978), non-Indians.5 decided three years later, pathmarking nonmembers. concerned Tribe hunting fishing lands Tribe's fee simple said restriction recognized rested principles support "general proposition.'' 1258. main, explained, "the inherent sovereign powers tribe''-those enjoys apart provision statute-"do extend tribe.'' Ibid. added, certain circumstances, even where Congress authorized it, encompass nonmembers: 11 "To be sure, power reservations, lands. A regulate, taxation, licensing, means, arrangements. 1258-1259 (citations footnote omitted). 12 term "non-Indian lands,'' used passage throughout opinion, refers owners. 548, 1249. 13 thus described exceptions: relates members; activity MontanaCourt retained limit forbid still Tribe. 557, 1254. held, 1257-1259.6 14 curiae urge They maintain guiding precedents those Whatever instruct regarding authority, insist, disputes inside episode-in-suit involves unless directs otherwise. Petitioners, supported alternately, cover by, holds sway, say, respect alienated address arguments turn. 15 begin contention broadly confirm any read differently. conclude, odds with, displace, Montana. Both describe allowing initially respond invocation jurisdiction; lawsuits Accord, Brendale 427, 3006, 343 (1989) (opinion WHITE, J.). 16 federal-court challenge initiated behalf minor School District. accident-in-suit struck motorcycle elementary school parking lot. occupied 847, 2449. stop 848, 2449-2450. injunction, 848-849, 17 Appeals' determine, "arising under'' 28 U.S.C. §1331, exceeded limits 852-853, 2451-2452. suit premature. Ordinarily, should hand "until jurisdiction.'' 2454. Finding cause immediate intervention,7 remanded leaving [w]hether dismissed, merely abeyance pending . proceedings.'' underscore reason gave stated. Tribal-court categorically restricted Oliphant, observed, while matters existence extent will require careful examination sovereignty, sovereignty been altered, divested, diminished, detailed study Executive Branch policy embodied treaties elsewhere, administrative judicial decisions.'' 2453-2454 (footnote 19 recognition proceedings, materials, instruction. itself, examined legislation relied upon why measures did aid Only light assertion "inherent sovereignty,'' formulate, response assertion, it. sum, extract anything prudential deference capacity "to explain parties precise basis accepting [or rejecting] 20 Blackfeet injured cattle 11, 973-974. employed operated ranch Indians residing ibid. wife, member, naming several defendants: driver; individual owners ranch; independent insurance adjuster representing insurer. Over objection adjuster-both companies Tribe-the 12, 974. 21 driver, corporation, Invoking based diverse citizenship, §1332, duty indemnify asserted wife fell coverage applicable policies. 12-13, 974-975. insurer's 13-14, 22 reversed. Holding diversity-of-citizenship complaint, remanded, determination stayed dismissed.'' 14. stated "prudential,'' jurisdictional. (stating [e]xhaustion required prerequisite''). Respect self-government appropriate give "full jurisdiction.''' 976 (quoting 2454). That respect, reasoned, equally §1331 (federal question) §1332 (diversity citizenship). 17-18, 977-978. Elaborating point, stated: 23 "Tribal important sovereignty. 1245 [1258-1259], (1981); 152-153, 2069 [2080-2081], (1980); Mont.], [382,] 387-389 [96 946-948, (1976)]. Civil affirmatively indication intended diversity courts, decline petitioner's invitation hold can impaired fashion.'' fasten courts.'' language scarcely supports bear involving defendants. 25 stressed refutation argument "Congress 978. preceded informative citations. citation points advanced proposition prime exceptions, 1258-1259. Colville, listed illustrative "nonmembers members,'' 1258-1259; acknowledged tax "non-Indians entering engage activity,'' 153, 2081. third noted conjunction (1976), covering on-reservation bearing "on Fisherthat exclusive adoption proceeding resided 383, 389, 944-945, 947-948. State-court matters, said, "plainly interfere conferred exercised Court.'' 387, 947. observed conduct-even non-Indians-if doing ""infring[e] make laws them.''' 946 (citation Fisher, emphasized keeping refers, stands nothing unremarkable [disputes of] 977. 27 Recognizing variously interpreted, reiterate enunciate requirement, "prudential rule,'' These expand stand instruction While immediately addressed concept sovereignty.'' 563, 1257. Regarding delineated-in main exceptions-the bounds "forms non-Indians.'' adhere understanding. Subject provisions identified generally "do[es] B consider next point later (1989), 606 (1993), supra, __-__, 6-the "can readily agree,'' accord 1254, considerable land.8 particular before us, agree respondents: 6.59 mile purposes,9 29 grants rights-of-way 1948 legislation. Act Feb. 5, 1948, ch. 45, 62 Stat. 17, §§323-328. grant belonging requires "consent officials,'' §324, just compensation, §325.10 made, statute, 1970. Its purpose Lake Sakakawea, project Army Corps Engineers. 30 instrument, conveyed "an easement realignment improvement over, across [specified] lands.'' Brief 1. provides "easement valid existing adverse without limitation tenure, shall actually specified.'' 3. landowners: 31 "The owners, lessees, successors, assigns crossings reasonably undisturbed occupan[cy] premises affected right-of-way; constructed lawful occupants users risk assume responsibility avoiding, repairing damage right-of-way, occasioned crossings.'' 3-4. 32 Apart specification, right-of-way. 33 Forming control.11 highway. gatekeeping right. So Cf. 689, 2316-2317 (regarding operation dam reservoir, loss "right absolute occupation implies others''). align governs III 34 ground defense exclusively To prevail here, must exceptions. 35 covers arrangements.'' description. dispute, "distinctly non-tribal nature.'' F.3d, 940. "arose [a] [highway] accident.'' "Gisela [T]ribes 36 list indicates type mind: 251 (1959) (declaring lawsuit sales transaction plaintiff defendants); 1030 (1904) (upholding permit nonmember-owned livestock Chickasaw Nation); 950 (C.A.8 1905) privilege conducting borders; characterized "inherent'' "authority terms noncitizens transact borders''); 2080-2082 (tribal cigarette "is fundamental attribute divested implication dependent status''). Measured Fredericks-Stockert presents qualifying kind. 37 Undoubtedly, drive carelessly endanger vicinity, surely jeopardize safety But if more, severely shrink Again, indicate character interest envisioned. 38 exceptional category followed four ibid.; intrude, two, saw impermissible intrusion. 39 referred recognizing competence 946; __. Next, holding competent merchant goods bought credit store. 270-271 (" [A]bsent Acts Congress, state-court conduct] always infringed them.''). dealing objections county territorial government's imposition property grazed land; find significant stake. 398 (1906) ("the Indians' [livestock], situated sufficient exempt property, private individuals, [state territorial] taxation''); 740 (1898) [territorial] put [non-Indian] lessees too remote indirect deemed privileges Indians''). 40 isolation, rule's misperceived. Key application, preface: "Indian [to punish offenders,] membership, domestic relations among rules inheritance [a reach] beyond what internal relations.'' 564, 1257-1258. needed preserve them.'' 271. therefore, applies 41 pursue sustain Dakota's highway.12 court13 [Three Tribes].'' 1258.14 *** 43 For reasons stated, 44 Affirmed. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber & Lumber Co., 321, 337, 282, 287, 499. forum-selection choice-of-law selecting Utah resolution. 2. resides 932 (1996) (en banc). assert, unresolved factual residence 1-2, 2; Opposition 3, 4. Under disposition immaterial. Satisfied could claims, declined children's consortium claim, 25; thus, issue. Petitioner similar rights six-year limitations.'' Reply 6, answered "are proceed forum.'' 6. note, contradiction, physically much closer [is] courthouse.'' Duro Reina, 495 676, 684-685, 110 2053, 2059-2060, 693 (1990), Indians. Shortly Duro, provided §1301(2). figured prominently (1993). Brendale, Nation zone area public; almost half 4, closed No garnered majority. writing Members both areas 422-432, 3003-3009. STEVENS, Justices, zoning area. 443-444, 3014-3015. BLACKMUN, areas. 456-459, 3021-3023. considered Cheyenne River Sioux reservoir. determined, dominantly, area, 697, 2320-2321, left resolution remand applied, 695-696, 2319-2320; 868, 869-870 1994) (decision justified regulation Tribe). indicated unyielding requirement: "We suggest motivated desire harass conducted bad faith,' patently violative prohibitions, futile adequate 856, 21, 2454, note regard unqualified "that prohibit Tribe.'' Ibid.; 15-16. contextual treatment compare §1151 (defining country'' chapter include "rights-of-way reservation'') §§1154(c) 1156 (term country,'' sections dispensation possession intoxicants, "does reservations''). Rights-of-way §325, ordinarily consent §324 (describing circumstances owners). police patrol roads including detain turn officers stopped violating law. Schmuck, 121 Wash.2d 373, 390, 850 P.2d 1332, 1341 banc) (recognizing offenders way confers unlimited travel Reservation's roads''), cert. denied, 510 931, 114 126 308 __, Within system, nonresidents sole court, remove court. §1441. When, covered evident conduct. forums disputes. 854, 2452-2453, (1985). Therefore, otherwise way, serve delay. 21; 7.

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