Legal Document

472 U.S. 237 105 S.Ct. 2587 86 L.Ed.2d 168 MOUNTAIN STATES TELEPHONE AND TELEGRAPH COMPANY, Petitionerv.PUEBLO OF SANTA ANA. No. 84-262. Argued Feb. 20, 1985. Decided June 10, Syllabus The Pueblo Lands Act of 1924 was enacted to adjudicate and settle conflicting titles affecting lands claimed by respondent Indian Tribe. Section 17 the provides: "No right, title, or interest in Indians New Mexico which their title has not been extinguished as hereinbefore determined shall hereafter be acquired initiated virtue laws State Mexico, any other manner except may provided Congress, no sale, grant, lease character, conveyance lands, claim thereto, made pueblo a community, living community Indians, validity law equity unless same first approved Secretary Interior." In 1928, while an action United States, guardian for respondent, quiet respondent's pending Federal District Court, Interior (Secretary) agreement between petitioner granting easement telephone line on land owned respondent. As result, Court dismissed (whose predecessor had allegedly right-of-way) from ground that it valid easement. After removed 1980, brought claiming trespass damages period prior removal asserted 1928 authorized § because Congress legislation approving it. granted partial summary judgment issue liability, holding 17. Appeals affirmed, were protected Nonintercourse Act, prohibits purchase, lease, tribe, did authorize such lands. court reasoned that, since two clauses are joined conjunctive "and," things required make valid—first, must conveyed and, second, approve—and nothing with respect agreement, requirement met hence Secretary's approval meaningless. Held: under Act. Pp. 249-255. (a) While word "hereafter" clause supports Appeals' interpretation renders nullity until acts. light canon statutory construction statute should interpreted so render one part inoperative, second cannot read limiting Congress' power legislate "hereafter." would also nullify effect 16 authorizes Secretary, consent, sell located among adjudicated otherwise favor non-Indian claimants apart main body settlement program established Moreover, practical is apply voluntary transfers A review structure leads conclusion when rather than leaving matter decided courts applying rule adopted new view unique history 249-251. (b) To harmonize 17's Act's entire "its contemporary legal context," flat prohibition against reliance connection future transactions involving involuntary alienation those after occur only if sanctioned federal law. And providing firm command, law, without approval. This gives both meaning consistent remainder historical situation, legislative history, supported contemporaneous opinion Judge who gave his stamp transaction originally similar ones enactment 252-255. 734 F.2d 1402 (CA10 1984), reversed. Kathryn Marie Krause, Denver, Colo., petitioner. Scott E. Borg, Albuquerque, N.M., Justice STEVENS delivered Court. 1 Mountain States Telephone Telegraph Company purchased Santa Ana line. contends this 1924, 43 Stat. 641, "first Interior."1 "as Congress," never authorizing Secretary. Both constructions find some support language 2 * "to provide final adjudication very complicated difficult series Mexico."2 Committee Reports "interesting Indians"3 explain why special remedial necessary. 3 "These found Coronado Spanish explorers 1541, many them residing villages occupying now occupy."4 From earliest days, conquerors recognized Pueblos' rights they still occupy,5 ownership these confirmed grants King Spain. Later, independent Government extended limited civil political 4 territory 1848 Treaty Guadalupe-Hidalgo.6 During 1910, became State, inhabitants territory—and members bar advised them—generally believed unrestricted dispose non-Indians whose originated grants. decisions Supreme Territory Mexico,7 Court's square v. Joseph, 94 (4 Otto) 614, 24 L.Ed. 295 (1877),8 "Indian tribe" Act.9 thought could convey good notwithstanding "purchase, . tribe Indians." 730, 25 U.S.C. 177. 5 prevailing concerning status drawn into question result attempt authorities regulate liquor trade Pueblos. They charges 1897 criminal prohibiting sale "Indian."10 Relying however, Territorial held, 1907, Pueblos "Indians" within statute.11 response, Enabling 1910 expressly State's Constitution prohibit "the introduction liquors country, term include all occupied Mexico."12 Sandoval, 231 28, 34 1, 58 107 (1913), noted whatever doubts there previously about applicability Pueblos, "Congress, evidently wishing sure different future, declared" "it them." U.S., at 38, S.Ct., 2. 6 narrow Sandoval case dependent intoxicating its "To Commerce Tribes." U.S.Const., Art. I, 8, cl. 3. reaching decision, rejected factual premises Joseph,13 suggested observations respecting based upon statements territorial court, then review, variance sources information, available, long-continued executive departments." 49, S. Ct., 7. disapproval Joseph strongly implied restraints contained Act—as well statute—might claims placed serious doubt. 7 3,000 putative parcels real estate inside boundaries grants.14 decision cast pall over suggesting wrongfully dispossessed might have eject settlers.15 conducting extensive hearings problem,16 drafted 1924. stated purpose "settle questions secure equitably entitled." S.Rep. 492, 68th Cong., 1st Sess., (1924). II 8 Under Public Board, composed Interior, Attorney General, third person appointed President determine 2, 636. Board instructed report setting forth metes bounds each rules Ibid. Continuous, open, notorious adverse possession claimants, coupled payment taxes 1889 date 1902 color sufficed extinguish Pueblo's title. 4.17 Board's reports implemented suits Mexico. §§ 9 directed award compensation value "could time recovered said seasonable prosecution." 6. Settlers faith, but rejected, receive improvements erected full entered before 1912 deed purporting 7, 15. 10 parcel land, foresaw consolidation holdings occur. identify adjacent owners transfer Pueblo. 8. addition, consent Pueblo, "situate nonIndian land."18 11 foregoing provisions designed consequences past transactions. contrast, section we construe case—§ 17—was entirely concerned future. It 12 641-642 (emphasis added). 13 here whether following "and"—indicates Interior. III 14 1905 States' right-of-way constructed across Ana. App. Presumably invalid See n. 17, supra. events, 1927 acting Ana, 15 litigation pending, construct, maintain operate telegraph pole line" dispute. 39.19 forwarded Bureau Affairs recommendation Id., 181-183. approved, received, endorsed agreement. 43. On Government's motion,20 id., 36, thereafter "secured sufficient right way controversy accordance Act."21 1980. October year, grant 86-92. allowed interlocutory appeal 28 1292(b) affirmed. 1984). held reasoned: 18 "The 'and.' us means exactly what says. No 'except 'shall Interior.' Two required. First, Congress. Second, approve. first, [Mountain States], nothing. Hence, condition met. fact method makes operation depends compliance clause." 1406. 19 considered 20 Our concern significant pursuant led certiorari. 469 879, 242, 83 181 (1984). We reverse. IV 21 Read literally, seems state unequivocally can "except Congress"—or, somewhat differently, enacts yet another 22 problem Even later enact free accept reject requirement. Neither nor offered plausible reason attributing futile design elementary inoperative," Colautti Franklin, 439 379, 392, 99 675, 684, 596 (1979), "hereafter."22 literal 16. 18, indicates desirable promptly Board. supra, 245-246. end, purports conveyances governing If accepted, properties foreseen provide. inconceivable inserted comprehensive scheme expect effective forthwith. 23 Finally, requirements logically three approaches transfers. left courts; applied Act; convinces followed last course. arguing simply relies section. However, second—not first—clause closely resembles Act: 17: "[N]o 26 nation equity, treaty convention Constitution." 27 slightly—but significantly—altered instead ratification case, intended understand say simple language. When appropriate extend generally applicable statutes concise end.23 Indeed, subsequent achieved omitting courts. our view, much more likely procedure history—a discussed length Reports.24 V 29 There reading better harmonizes context."25 assumed answered reference legislating benefit clear completely assimilated tribes Tribe, apply; surely wanted pre-empted area, complete jurisdiction fairly involuntary, 30 refers acquisition "right, Indians," "sale, lands." plainly freely suggests adequately protect interests allowing deems best Indians."26 31 situation Pueblos.27 available,28 numerous others years 1924.29 uniform Executive Officer responsible administering exclusive actions Act30 "is entitled great respect."31 These individuals far understanding actual intent judges consider implications half century occurred. 32 33 ordered. POWELL took case. 35 BRENNAN, whom MARSHALL BLACKMUN join, dissenting. 36 641-642, provides full: 37 38 awkward obscure provision striking illustration phraseology sometimes consequence accident, perhaps caused unfortunate too busy do work carefully should." Delaware Tribal Business Weeks, 430 73, 97, 97 911, 925, 51 173 (1977) (STEVENS, J., dissenting) opaque given rise just interpretations, but, literally multitude proffered readings—each attempts rationalize ambiguous words, phrases, away apparently inconsistent inoperative language, ultimately fails meld coherent whole.1 muddle illustrated fluctuating Department 60 years. infra, 270-275. offers up own "harmoniz[e]" anomalies ante, 252, concede aspects "remai[n] puzzle even [its] interpretation," 253, 27. 39 I attempting drain bog, turn naturally canons governed Indian-law centuries—canons specifically resolve ambiguities construing grow directly out trust responsibilities define conduct officials, tribes.2 Instead, wholly ignores boldly pronounces revisionist goes beyond current reading. give Tribes possessed tribe—the alienate unalloted tribal restrictions, subject guidelines manner, scope, requirements, timing supervision. 40 dissent. believe plausibly reaffirm clarify general exceptions thereto. reflects spirit enacted. interpretation, hand, flies face misconstrues history; overlooks evidence origins consistency administrative defer; flouts fiduciary relationship owed serve preserve relationship. 41 acknowledges, examined " 'its context.' Ante, 252. Alienation now, principles "[n]o Constitution."3 ceased entering treaties 1871,4 continued essential characteristics country: property explicit congressional authorization.5 42 Since 1871, permitted unallotted ways: through specific particular lands; Interior.6 number category end 19th early 20th century, leases farming, grazing, oil, gas, mineral development; rights-of-way highways, railways, utilities; sales timber.7 typically strict limits authority by, inter alia, prescribing price conveyed, collection royalties affected tribes, placing restrictions geographic scope conveyances, establishing procedural safeguards owners, requiring promulgation regulations exercise authority. 1851,8 shortly Civil War courts, sustained barred application grounds really "Indians." See, e.g., (1877); Lucero, N.M. 422 (1869). subsequently conceded, erroneous: lands," always "Indians race, customs, domestic government" "like reservation general." 38-39, 41, 3, (1913). Accordingly, repeatedly reaffirmed federally 1851 clearly fully them.9 44 order reassert statehood "all remain absolute control States," terms 'Indian' 'Indian country' them."10 began supervise leasing summarized above. Numerous subjected supervision 1924,11 during consideration informed being extent" tribes.12 45 sections set mechanism resolving thousands disputed resulted uncertain Sandoval. 244-246. 17—described author shortest prevent existing conditions recurring again"13—is declaratory reaffirmation stood Thus, 17—prohibiting "any manner" Congress—served merely preemption form "conveyance Interior"—can quite similarly confirming secretarial approval—where created approve conveyances. 46 does, course, redundant then-existing But acknowledged, practice enactments frequently policy declarations reaffirmations quo. Bryan Itasca County, 426 373, 391-392, 96 2102, 2112, 48 710 (1976); Johnson Graham's Lessee McIntosh, Wheat. 543, 604, 681 (1823). Arizona San Carlos Apache 463 545, 562-563, 103 3201, 3211-3212, 77 837 (1983) (re disclaimer enabling acts). Contrary doubt whatsoever already Act,14 therefore pre-emption. sentence linked phrased prohibitory terms—suggesting similarity reasonable construction.15 conclude context various effect, most comprehensible viewed reaffirming quo represented decision. below, unambitious accords legislation, guided pertaining tribes.16 47 concludes, lands" adopt "a law" "convey 251, 250, 247. A. Statutory Structure believes "better Act." superfluous authorization extremely circumstances. Specifically, belong rightfully (1) "be situate land"; (2) concurred sale; (3) went highest bidder cash."17 "get contiguous another." 1923 Senate Hearings, 154 (Sen. Jones Mexico). 49 argues vaguely "probably considered" "isolated element" somehow uniquely enabled "take initiative" "urging" 26. unsupported argument untenable. Solicitor emphasized "[i]t circumstances 16, empowered standards Secretarial Such irrational Congress."18 50 error further exposed recurrently affirmatively narrower lands—legislation rational basis if, unlimited For example: response technically clarifying nine statutes, along basic Acts cited sections," "applicable lands."19 included financial 1933 taken claimant Board.20 remove "restrictions [these] lands";21 situations" where necessary consolidate tribe's base.22 1948, "for purposes" belonging Mexico," proper officials" organized tribes.23 (4) 1949, exchange certain public domain "[f]or consolidation" lands.24 (5) Similar 1961 improving tenure pattern consolidating lands."25 (6) 1968, Cochiti, Pojoaque, Tesuque, Zuni specified purposes exceed ninety-nine years," grazing years.26 exception Tribes, limit restricted years.27 (7) 1976 Pueblos;28 place position relative tribes."29 Each meaningless duration outright land. 1933, 1947, demonstrate base improve patterns—a crafted effort today annuls. Similarly, govern generally—an irreconcilable notion avenue standardless B. Legislative History 52 explains, baffling "consistent available." 253. All offer assertion distilled excerpt colloquy Senator Lenroot Francis Wilson, attorney hearing. 253-254, 28. inquired "whether [be] advisable sold alienated Interior," Wilson replied "quite conditions." 155. 53 Unfortunately, omits crucial demonstrating pertained asking: "Might cases sell?" 154. responded "I think one. be, mind." "where allotments, strips there, divested Indian, interspersed disposition get Everyone present agreed desirable." (Wilson). 54 participants turned next "true law," "anything it" "Congress land," "[a]bsolutely" it." 155 Lenroot, Comm'r Burke, Mr. Renehan, Sen. Jones). point queried "these alienated," identified "some conditions" were—where swaps [so] condition." 55 "limited" demonstrates understood another"—the precise function narrowly Nowhere hammering intend lands.30 56 representing proceedings,31 how advocates urging treated like possibly override That provoked debate, commentary, opposition. modest engendered sharp controversy.32 historian concluded reviewing available departmental records, private correspondence, 57 "nothing record indicate anyone else greater extent modifying Non-Intercourse substantive way. construction, circulated time, certainly heated debate opposition Collier group others,33 especially officials turmoil What remarkable easily consensus. Almost alone lengthy bills, undisputed unamended."34 year "[n]owhere suggestion lands."35 contrary. 59 "uniform view" commands 'very respect.' 254. defer construction,36 checkered Interior's purported deference unwarranted. "We weight will depend, things, earlier pronouncements' agency." Morton Ruiz, 415 199, 237, 1055, 1075, 270 (1974), quoting Skidmore Swift & Co., 323 134, 140, 65 161, 164, 89 124 (1944). FEC Democratic Senatorial Campaign Committee, 454 27, 102 45-46, 70 (1981); National Assn. Securities Dealers, Inc., 694, 718-719, 95 2427, 2442-2443, 486 (1975). Department's swung wildly back enacted, routinely he Act.37 Among restrictive 50-year easements Company.38 Never hint worked change alienation. 61 1926, Special Assistant George A.H. Fraser, probably cover Pueblos: "It [the do] them, looks though [they] not."39 Fraser Congress"—meant acted undetermined future.40 accordingly filing railroad companies utilities lands.41 62 companies, obviously, anxious submit litigation. representative "railroaded thru" bureaucracy minimum delay.42 shows permit developed, official, Chicago bond house underwriting railroads.43 Attorneys Office "doubtful" "inconsistent" underlying Act.44 himself convey, approval, usually local official disinterested."45 Nevertheless, recommended obtained approach theory served acquiescing Sec. 17."46 Agency "doubtful."47 63 1926 method.48 Many grantees forced defend By acquiring deeds able either avoid defendants, case.49 described cheapest easiest getting rid of" controversies lands.50 "no difficulty all" persuading sign deeds;51 "carload lumber" thrown sweeten deal.52 recently observed, avoidance protection process involved "mere negotiated tribe."53 Cf. Locke, 471 84, 124, 12, 1785, 1794, 85 64 (1985) (criticizing use "every technical construction" enable "suck[ing] up" "much vacuum cleaner, watched closely, suck jewelry loose money"). used sporadically 1920's 1950's. approvals terms; 1936 1944 13; 1953 1959 11.54 conveyance.55 least 779 therein.56 1940's, acquisitions statutes.57 occasionally invoked "small amount acreage [was] involved" "considerable agency."58 Consistent views recent generations, construed contrary "irrational," correct "disregard [earlier] section."59 construction—such was—applied isolated incidents, reasonably lands.60 agency expertise then, appears go something this: advocated attorneys "acquiesce[d]" convenience; withered decade two; less 10% applied; ago branded "irrational" agency's top officer year; urged compass most, "uniform" extreme version land.61 66 nevertheless compel rejection interpretations faithfully hew Congress—not Court—the national lands,62 cornerstone impose title—a grounded responsibility toward tribes.63 principles, departures "lightly implied." ex rel. Hualpai Fe Pacific R. 314 339, 354, 248, 255, 260 (1941). Ambiguous Northern Cheyenne Tribe Hollowbreast, 425 649, 656, 1793, 1797, 274 Starr Long Jim, 227 613, 622-623, 358, 361, 670 Congressional extinguishment "plain unambiguous," 346, 251—that is, "must expressed surrounding history," Mattz Arnett, 412 481, 505, 93 2245, 2258, 92 (1973) (termination reservation).64 Just Term, concluding neither ratified Oneida Nation York; found, "far plain unambiguous title." County York, 470 226, 1245, 1259, 84 169 (1985). Montana Blackfeet 759, 765-766, 2399, ---- - ----, 753 (state taxation lands). 67 "puzz[ling]" hardly characterized unambiguous" statement unlike property. itself negative ("No validity" added)), effect. 261-262. intends consistently done clear, express (e.g., "[t]he permission"; "restricted leased owners").65 "fully aware means" authorized, 504, 2257, chose employ broad operative significance unearths, curious seen fit codified Title Code. reasons, having attempted Pueblos.66 68 argued, treats degree giving broader automony disposing incapable managing affairs. embodied paternalistic notions "protecting improvidence."67 rests grounds. determination "insulate impact market forces" thereby substantial [that is] existence society culture."68 argued: 69 "There inconsistency wanting insure array Like communities take long homelands. Bitter experience shown councils induced agree unwise single cause total loss base, ultimate disappearance entity. Reposing unconditioned, delegable moreover, adequate improvident Characteristically, entities Petitioner amici argue 'emancipation' Pueblos."69 alienation, long-standing deferring policy, sound. indulge unsupportable analysis management affairs.70 71 came petition writ certiorari, related With exceptions, sanction see 60, lesser approximately 80 times 60-year history. fallen virtually disuse oblivion generations. presented—however important individual involved—nevertheless implicated little handful easements.71 And, advised, renegotiated (under provisions, 17).72 72 Tenth Circuit petitioner's accord well-settled Tribes.73 Those position, essentially exercised statehood. continuing exposure 'interesting Indians,' 240, evaluate close range Government. several dismissals 1920's,74 inalienable authorization.75 lands.76 below applications settled conflict them.77 73 Notwithstanding considerations, certiorari78 holds [their] ironically, thus come circle. (1877), exempted rested assumptions "at information morass uninformed created. Today, direct encounter once again uninformed, improvident, sweeping again, step clean handiwork. 74 641. 246, text House Report incorporates verbatim text. H.R.Rep. 787, Sess. "20 population 6,500 8,000. consists 17,000 acres exterior boundaries, 340,000 all." Peace, Friendship, Limits, Settlement America Mexican Republic, 922. (1869); Nambe Romero, 58, P. 122 (1900); cf. Mares, 88 1128 (1907). excluded coverage primarily relied culture: 'For centuries lived villages, fixed communities, municipal government. [T]hey peaceable, industrious, intelligent, honest, virtuous people. feature, complexion, few habits; respects superior civilized equal thereof. .' ". regulating intercourse ample room nomadic Apaches, Comanches, Navajoes, incapacity self-government themselves citizens country care indeed, called common class. civilization attained before, willing submission government absorption mass forbid idea classed acts made. ." 616-617, (quoting 453). Trade Intercourse 1834: 1834 beginning 1790. 138. 231-232, 1851, force tribes" Territor[y] Mexico." 587. 506. 4, P., 1129. 558. "[B]y course 1854 branches regarded aid protection, considering lineage, communal life, primitive customs civilization, guardianship arbitrary controlling." 47, disclosed families comprise 12,000 persons. town lot feet front extent. stated, parties percent resisted contested." 5. steps oust persons grants, uncertainty cloud white people areas. mortgage almost nothing; [and] sales, leases, discontinued. Hearings 3865 4223 Subcommittee Considering Bills Relative Surveys, 67th 4th (1923) (Senate Hearings) (report submitted testimony R.E. Twitchell, General). Ibid.; H.R. 13452 13674 Affairs, (1923). purport Pueblos; limitations "in addition equitable defenses claimants] 637. November docketed wards judgments 1916 Laguna behalf estate. filed motion expedite informing noting Chairman [of Board] General helpful discharge duties functions Motion Advance O.T.1925, 208, p. barred, observed Candelaria, 271 432, 441-442, 561, 1023 (1926). raise 4. Unlike involves occurred passage "That adjudged board sold, may, pueblo, thereof, make, cash; buyer thereof losing claimant, purchase paying aforesaid, hereof, balance any, paid officer, officers, credit bid adjudicated." $101.60 cents 127 poles. 181. part: "[S]ubsequent institution suit States] April 13, obtained, consideration, herein Pueblo] States]." 36. 37. argued dismissal precludes challenging Brief 39-47. ruling merits action. 1402, 1407-1408 contention. pass 498 442, condemnation refused carriers. 955, 69th supplement replace example, bring "Provided, contract carry States." 637; draft letter Commissioner explained "Section Bill again. Act] changed Opposition 12. Cannon University Chicago, 441 677, 699, 1946, 1958, 560 (1979). conferred Provisions versions bill contain 1175, (1923); 1730, (1923), element encourage initiative completed. remains interpretation. inadvertently "herein" "hereinafter"; bill, ambiguity does alter clarity second. bills referred desirability Secretary: "Senator Lenroot. Have Interior? "Commissioner Burke. Certainly, statute? No; act allotted. "Mr. [representing Pueblos]. covering Five Civilized Tribes], speaking tenants, compared Tribes. patented parallel mind handled precisely you Wilson. going conditions. encouraged condition. Mr Commissioner, objection so. Department." Sections appeared bill. 24, today. 3a-4a. 112-115, 129-180, Amicus Curiae 23; 9. Edwards' Darby, 206, 210, 603 (1827). Zenith Radio Corp. 437 443, 450-451, 98 2441, 2445-2446, 337 (1978); Norwegian Nitrogen Products Co. 288 294, 315, 350, 796 (1933). 16-32; Respondent 12-32; 11-16; Atchison, Topeka Railway 9-16; Service 11-18; 3-7; Taos 5-21; de Acoma 11-13; Council et al. Amici 7-20. Mitchell, 225, 2961, 2972, 580 (1983); Tulee Washington, 315 681, 684-685, 862, 864, 1115 (1942); Cherokee Georgia, Pet. (1831). F. Cohen, Handbook Law 220-228 (1982) (Cohen). 1834, Rev.Stat. 2116, Appropriations Mar. 2079, 71. FPC Tuscarora Nation, 362 99, 118-124, 554-557, 584 (1960). York Oneida, 414 661, 667-670, 772, 777-778, (1974); 347, Cohen 510-522. 516, nn. 48-51; 517 (summarizing legislation). 1891, 795, 397 (grazing mining leases); Aug. 15, 1894, 305, 402 (farming 1899, 990, amended, 312 (railroad, telephone, rights-of-way); 1901, 1083, 319 (telephone 11, 1904, 65, 321 (pipelines); 1909, 781, 320 (reservoirs); 25, 857, 407 (timber sales); 30, 1919, 26, 31, 399 (oil gas May 29, 244, 398 (mining leases). 587: "[A]ll applicable, hereby, Territories Utah." Chavez, 290 357, 360-365, 217, 218-220, 78 360 (1933); Rosa Fall, 273 320-321, 362-363, 658 (1927); 439-443, 559, 560. Const., XXI, (adopted Jan. 21, 1911) ("The inhabiting declare forever disclaim lying sovereignty; congress States"). L. Kelly, Study Administrative Practice (unpublished manuscript 1984) (Kelly); 128-135 (Exs. 27-29). 34, infra. 72-73 (1923 Hearings): Has department ever Indians? "Colonel Twitchell. act, yes; particular. it, superintendent. [M]y making protecting rights, property, sort? Not all, Chairman, supposed so." 40-41 Letter C. Charles H. (Dec. 1923), reprinted Kelly (Ex. 37). "adop[t] "apply 251. Pueblos"). leading matter. (1924) (question "finally determined" 1913). Until today, acknowledged Acts. 9, 2A Sands, Sutherland Construction 47.16 (4th ed. 277, 65. every significance. Indians" meant immediate fee Perhaps encompass possibility allotted members. allotment Reorganization 1934, 984, 461 seq. 147-149. cash, Frank K. Richardson Henry Habicht II, (Oct. (Richardson Memorandum). Apr. 322. Although peculiar wording rights-of-way, not." 271, 39. premise 1899 sufficiently matter," (1926), emergency proceedings district invalidated defects, 816, 70th (1928), ibid. 111. 73d situations "wherein settlements standing, needed profitably proceeds reapplied improvement nearer ancient villages." 123, (1933) (legislation blocking tribes"). 5, 17-18, 323, 324. nineteen H.R.Conf.Rep. 94-1439, (1976). CFR 162.2-162.5 605, 622. Pub.L. 87-231, 75 624. 90-570, 82 1003, 415. 94-416, 90 1275, comparison "Five Tribes" above around periods allotments blood detailed relaxing restrictions. 785-788. implication, Tribes' Roberts Walker, (Nov. 1); 2). 10-11. 105-106, 154-155. John Collier, 1933. organizations opposed played active role 5-20. Collier's 144-149. 14. prepared on, records stored Archives Archives. Memorandum, expression lift 275-279, resolved preserving 66, invoking usual actions. 236-237, 225-228. 14-17, 20-21; 149-150 35). 21; 133-135 29) (Secretary's approval). J.M. Baca, (Apr. 1926), 211 59). 1925), 151 E.W. Dobson, (Feb. 161 38). 152 35); 155-161 36-38). Quoted 29; 214 60). 164 39); H.J. Hagerman Burke (Mar. 174 42); Walter Cochrane Hagerman, (May 191 50). 171, 41). 4: "If Government, resort, seem hold have, instance, 165 39). 234 69). 38. (order dismissal). Gill, 1928), 344 113). R.H. Hanna 186 48). actually signed; notes "none officers name" original thumbprinted 26-27. 6: "In instant falls short consistent. Approximately 1934. 1948 Acts." memorandum February 1943, dealing promulgated thereunder way." Memorandum W.D. Weekley (Aug. 14, 1943), 298 98). William Zimmerman, Jr., 1946), 300 100). 5-6. shows, occasion validate 435 townspeople Bernalillo, "This dozens small parcels," 42, non-Indians—the envisioned validated "slightly $6.00 acre," although "own appraisals valued hundred dollars acre." 44. "deference" Fraser's clause, 254, unconvincing additional reason. At acquisitions, Today rejects sub silentio, adopting novel followed. 252-253. principle desired D. Canons 3: Power "one fundamental expressions, major expression, constitutional affairs." 86, 919, (1977). 247-248, (1985); 777-778; Creek 103, 109-111, 79 1331 (1935); Pet., 17; 591, 604 220-228, 508-528. Washington Commercial Passenger Fishing Vessel Assn., 443 658, 676, 3055, 3069, 823 (1979); Menominee 391 404, 412-413, 1705, 1710-1711, 697 (1968); Alaska Fisheries 248 78, 89, 40, 138 (1918). 311-312, 319-321, 322a, 352, 352a, 352b, 373a, 373b, 378-380, 391a, 392-393, 393a, 394-396, 396a, 396e, 396g, 397-398, 398a, 398e, 399-400, 400a, 401-402, 402a, 403, 403a, 403a-1, 403a-2, 403b, 404-409, 409a, 415, 415a, 416, 416c, 463e, 464, 483, 483a, 487, 564c, 564g, 564w-1(b), (e), 564w-2, 574, 593, 608, 610, 610a, 610c, 622, 635, 677h, 677o, 721, 745-746, 953, 958, 973-974. stands violation well. suggest, conveyancing generally. not. Yet faced safeguards—a dictated distinctive obligation incumbent dealings exploited people." Seminole 316 286, 296, 1049, 1054, 1480 (1942). 2972; McClanahan Tax Comm'n, 411 174, 1257, 1263, 129 (1973); Choctaw 318 423, 431-432, 672, 678, 87 877 (1943); Carpenter Shaw, 280 363, 367, 121, 122, 478 (1930). 221-225. 509. enforcement derives perceived incompetence 'ward,' separate culture polity." 510. 93-604 Tribe). 25. Chambers Price, Regulating Sovereignty: Discretion Leasing Lands, Stan.L.Rev. 1061 (1974). tries justify so-called "unique status" Indians.' 242; judgment—to due—has tribes." differences lifestyle identical 361-365, 219-220; 362-363; 562-563; 45-48, 6, 24-25. 24-25; 2-3; Tr. Oral Arg. 32-33. 86-92; 1404-1407 "placed others," 'entitled "approval[s]" consisted motions (acting Pueblos) dismiss defendants complaints. contested, Oklahoma Texas, 272 42-43, 145 (1926); Vicksburg Henson, 259, 269, 273, 95, 98, 100, 209 did, enter decrees Guardian Arvizo, Equity 2079 1931); Armigo, 2080 1931). defendant negotiate agreements gathered old dating 1880's successfully retroactive validation compensation. 39-40; 301-313 101-106). suggested, "[f]ortunately viability liberally indulged, rest 40-41. 731 703, 706 (CA10), cert. denied, 853, 177, 111 (1984); Plains Electric Generation Transmission Cooperative, Inc. Laguna, 542 1375, 1376-1377 1976); Aamodt, 537 1102, 1109, 1111 1976), 429 1121, 1157, 572 (1977); Alonzo 249 189, 194-196 1957), 355 940, 429, 421 (1958); Garcia 873, 878 1930); Missions Presbyterian Church, 272, 1929). 76 (§ "reaffirmed Act"); 195-196 "insured implicit continue force"; theretofore existing, continue, extinguished, Act"). "individuals [who] 254-255, panel Alonzo. Chief Bratton former sponsored 19, amendment Phillips heard Breitenstein, member, authored 362-365, 362-363 (Nonintercourse "appl[ies] classified Indians. None dispensed with, appear comply"); 441, 562 ("While [Nonintercourse including them. opinion, 'any Indians' "); 45-49, 5-7. Rules 17.1(a) (c) (discretionary certiorari where, "has departed accepted judicial call supervision," been, Court.") (See Estreicher Sexton, Project 14-15 (1984) (executive summary) (to published N.Y.U.L.Rev. 717-718 (footnotes omitted)) can, should, establish police framework delegation lower Except relatively rare justifying intervention, manager presumption regularity wise delegates subordinates absent indication awry, validity. denigrate subordinate actors, diminishing sense increasing manager's tasks overall workload").

Classification Label: 1