Legal Document

433 U.S. 165 97 Supreme Court Reporter 2616 53 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 667 PUYALLUP TRIBE, INC. and Ramona Bennett, Petitioners,v.DEPARTMENT OF GAME the STATE WASHINGTON et al. Number 76-423. Argued April 18, 1977. Decided June 23, Syllabus After protracted litigation Washington Superior entered a judgment against petitioner Puyallup Tribe reciting that court possessed jurisdiction to regulate Tribe's fishing activities both off on its reservation, limiting number of steelhead trout tribal members might net in River each year, was directed file list authorized exercise treaty rights, report respondent Department Game caught by fishermen week. The affirmed, with slight modification. contends doctrine sovereign immunity requires be vacated; state courts have no reservation; that, any event, limitation catch is not necessary conservation measure. Held: 1. Absent an effective waiver or consent, may over recognized Indian tribe, but here does impair Court's authority adjudicate rights individual whom it properly obtained personal jurisdiction, versus Dept., 391 392, 88 1725, 20 689 (Puyallup & N Dec. Immigration Nationality Decisions ), hence only those portions involve relief itself must vacated order honor valid claim immunity. Pp. 168-173. 2. Neither nor exclusive right, under Treaty Medicine Creek, take passing through reservation. It appears Tribe, pursuant Acts Congress passed after into, alienated fee simple absolute all areas reservation abutting River, but, moreover, right fish "at usual accustomed places" exercised "in common citizens Territory," I, supra, at 398, 1728, subject reasonable regulation State power conserve important natural resource. fair apportionment between non-Indian sport Dept. 414 44, 94 330, 38 254 II could if Indians retained unlimited within 173-177. 3. complied mandate II, 48-49, 333, used proper standard necessity catch, where such based primarily expert testimony for parties. Pacific KF135 P2 177. 4. Although resists courts' provide information respect status size their find members' interests are best served voluntarily providing information, remand continue participate proceedings without treating participation as qualifying 178. 86 Wash.2d 664, 548 Reporter, 2nd 1058, remanded. William Haw. Hawai‘i KFH45 A2 Rodgers, Jr., Washington, D.C., petitioners. Bartow Farr, D. C., States, amicus curiae, special leave Court. Don S. Willner, Portland, Or., respondents, Northwest Steelheaders Council Trout Unlimited Gary Ellis. Slade Gorton, Olympia, Wash., Wash. Mr. Justice STEVENS delivered opinion 1 On 8, 1975, more than 12 years litigation, including two decisions this Court,1 Pierce County Indians. That recited had limited nets year. Game, court, judgment, modification, affirmed 1058 (1976). 2 supported vacated, also argues imposed not, We hold insofar advanced behalf rather defendants, well founded, we reject other contentions. 3 * complaint originally filed (hereafter respondent),2 named 41 individuals, "John Doe Jane Doe, (of Tribe),"3 defendants. alleged claiming immune from State's laws, were extensively set drift manner which would virtually exterminate anadromous fishery enjoined. Anadromous spend most life open sea, return adults freshwater streams, spawn. fish. prayer sought declaration defendants bound obey laws injunction netting runs 4 trial temporary restraining enjoining directing service made defendant. 5 In response, "Return Temporary Restraining Order Answer Complaint" "the TRIBE INDIANS, Chairman Tribal Council, MR. JEROME MATHESON." App. O.T. 1967, 247, 8 ). answer term "tribe" senses, first collective synonym defendant-members,4 referring nation.5 asserted describing somewhat ambiguously "property belongs Creek." Ibid. Therefore, while name tendered defendants.6 6 Throughout long has continued dual capacity entity7 representative who defendants.8 repeatedly suit, arguing neither waived immunity.9 7 addressed problems state-court footnote: "Petitioners 247 argue lacked entertain action tribe consent Government (citing Fidelity Guaranty Co., 309 506, 60 653, 84 L.Ed. 894, Turner 248 354, 39 109, 63 291), viewing suit one 'extinguish communal guaranteed federal Treaty.' This case, however, enjoin violations law As such, analogous prosecution crimes committed lands, matter there been grant courts." 396-397, n. 11, 1727, 689. 9 Thus, settled threshold question case regardless immunity, defendant-members remain amenable process connection occurring conclusion predicated separate propositions worthy restatement here. 10 First, even though therefore entitled benefits construed confer complete they claim. qualify Indians' places." Specifically, held "manner fishing, take, restriction commercial like regulated interest conservation, provided meets appropriate standards discriminate Indians." Id., 1728. 11 Second, whether sued Congress, permissible. applied immunize Tribe.10 appearance because representation members, individuals existed. And since court's review further consideration given sovereign. our decision when required determine portion run allocated which, terms, places limit directs identify engaged Court, attacked infringement consented. 13 attack founded. tribe. company supra; see, e. g., ex rel. Adams 57 181, 182-185, 356 985, 987-988 (1960); commentators, Dept Interior, Federal Law 491-494 (1958), concur. Respondent either consented entry it. certainly, mere fact appeared effect itself. 14 hand, successful assertion jurisdiction. decide questions relating allocation hatchery run, nets, hook-and-line paying license fees having so diminish allowable questions. Only 15 vigorously majority takes place inside reservation,11 prior adjudications respondent's off-reservation on-reservation fishing. relies Statutes-at-Large 1132, pre-emption affairs, see Mescalero Apache Jones, 411 145, 147-148, 93 1267, 1269-1270, 36 114. 16 Article Creek Reservation "set apart, and, far necessary, surveyed marked out use" "white man (was to) permitted reside upon same permission superintendent agent." argued these words amount free interference. Such interpretation clashes subsequent history facts case. Pursuant 27 633, chapter 1816, 33 565, Puyallups alienated, absolute, 22 acres 18,000-acre None abuts River.12 grounds "exclusive use." contrary, undisputed licensees great numbers close supervision wardens.13 17 conceded exercises civil criminal purposes, do fishing.14 Again particular reference contention. 18 Our construction makes perfectly clear although deny accustomed" places, Territory." squarely respective one." U.S., S.Ct., Rather, 19 devise formula "fairly apportioned" No Speaking Douglas plainly stated adequate assure survival steelhead: "We imply persist down very last river. Rights can controlled need species; time come precarious stream should banned until species regains assurance survival. police prevent following fate passenger pigeon; give pursue living enters nets." 49, 333. 21 resource being indigenous River. Virtually adult river returned spawned planted upstream boundaries original Reservation, encompass lowest seven miles Though decidedly unwise, allowed untrammeled interdict completely migrating "pursue River) Ibid.15 totally frustrate Creek.16 practical effect, therefore, reasserting control unequivocally rejected II. At stage unwilling re-examine unanimous render holdings meaningless. petitioner's III Finally, states below failed apply fashioning relief. disagree. conducted two-week dominated From accompanying exhibits determined how many taken diminishing future years; then 45% annual available taking fishermen's fishery.17 Wash.2d, 684-687, P.2d, 1072-1073. precisely what mandated absence focused some factual determinations, ground disagreeing them.18 23 A problem presented disposition. applies Tribe. among Indians; concern total netted during season, obtaining make possible recommend succeeding years, enforcement reached. affording equitable treatment protecting mistaken efforts. For reason, enrolled minimize risk erroneous effort. accord full past 24 remanded inconsistent opinion. 25 ordered. 26 BLACKMUN, cuncurring. join doubts, about continuing vitality day enunciated 894 (1940). am view merit re-examination 28 BRENNAN, MARSHALL joins, dissenting part. 29 While agree resolution tangled Part opinion, cannot substantive Creek. 30 When white settlers began arriving western part now State, Indians, along tribes surrounding Puget Sound, heavily dependent livelihoods salmon came up rivers 1850's territorial Governor, Isaac I. Stevens, into identical treaties representatives confine rest region settlers. One negotiated 1854 Governor Stevens Puyallups, neighboring Nisqually bands. gave southern end Commencement Bay mouth 31 provisions all-important stated: 32 "Article There . reserved present use occupation said bands (reservation land which) shall III. fish, stations, secured Territory ." 1333. (Emphasis supplied.) understand reading provisions, agree, guarantees Puyallups. concerns guaranteeing "usual stations," exclusively 34 are, first, now, 100 signing treaty?; second, extent empowered rights? write clean slate light 689, decided 1968, 254, 1973. 35 "extent rights," "to (fishing regulations) reservation." 394, 397 n.11, 1727.1 Washington's regulations id., determination measures, phrase Territory" contained treaty. response sustain ban steelhead. 80 561, 497 171 (1972).2 consequence, permitting erroneous. again means apportion(ing)" sports Puyallups' fishery. 48, explicit "off-reservation fishing," governed treaty, involved. 45, 331. Before remand, Appeals Ninth Circuit challenged existence interference, lying Reservation." Relying Mattz Arnett, 412 481, 2245, 37 92 (1973), "that continues exist." 496 620, 621 (1974) (emphasis supplied). "recently established, Reservation," accepted holding Appeals, nevertheless concluded foreclosed exercising regulatory 668-669, 1063-1064 require harvestable natural-run fishery, remaining 55% none hatchery-bred despite acceptance Appeals' still existed, terms Unlike before us plainest English provides "exclusive" read, my view, sanction fishermen. Nor ever conservation. See 485, 22483. reverse. did Mattz, instance any, purposes.4 tries avoid force analysis denigrating Circuit. states: "The dispute express (The Circuit's) predates DeCoteau District 420 425, 95 1082, 43 300, Rosebud Sioux Kneip, 430 584, 1361, 51 660." Ante, 173 n.11. This, say least, casual disregard principles res judicata collateral estoppel. parties surely assume, suggestion fully litigated positions respecting status. held, contrary contention exist, denied. 419 1032, 513, 42 307 (1974). Circuit's binding inappropriate denigrate impact holding, particularly result vest lost just issue Appeals. relying almost land, trust 174. go course, selling non-Indians "completely consistent status." 497, 2254; 586-587, 1362-1363, 660 (1977); 432, 444, 1087, 1092, 300 (1975). indeed party, contend somehow sale lands included granted argument seems "hold 'exclusive use' " forfeited enforce ignores relentlessly doing so. Indeed, begun ago effort claimed old 40 Today's decision, ironically, odds position another involving Sound. agreed State. 384 F.Supp. 312, 332 (W.D.Wash.1974) aff'd 520 676 (CA9 1975), cert. denied, 423 1086, 96 877, 47 (1976), Judge Boldt, language mean "(a)n area boundary waters reservations, wherein homes chose so." (Footnote omitted; emphasis original.) proposition apparently self-evident parties, "(a)ll agree(d) F.Supp., 341.5 Doubtless anxious bring end, explains today's broad enough dispose claims narrowly fact-specific will probably significant Sound pending suggests instead third. clear: On-reservation respectfully dissent. al., 1133, foreclose regulation, with" others; justified precluded catchable apportioned regulates Washington. Fisheries coplaintiff virtue responsibility amended allow salmon. remains Three identified officers. e., "Answering Paragraph ," App Page 8; suffered numerous arrests, jailing indignities hands plaintiffs knowingly wilfully badger, abuse degrade 9; "(t)hat recklessly using deprive defendant (sic ) them making livelihood 10. "this signed America nation ."; own found: "Defendants answered 31. Finding Fact described several ways captions years. Term "Puyallup Inc." thrice noted entity, 666 1, 1062 ceased exist; reversed 70 245, 252-253, 422 754, 758-759 (1967). whatever correct be, clearly States. Bennett copetitioner She her chairwoman Council. Accordingly, treat hereafter "petitioner" refer few occasions represented attorneys appearances County. least capacity. record reveal objection major defense assumed relied Worcester Georgia, Pet. 515, 483, 894. twice raise answer, 168-169. later course concluding memorandum merit." 18. already noted, 7, exist Solicitor General mention waive 656-657; cf. Ford Motor Treasury Indiana, 323 459, 466-470, 65 347, 351-353, 89 389. involved brought Choctaw Chickasaw Nations recover royalties mineral lease; lessee's surety. earlier bankruptcy proceeding, lessee $9,060.90 cross-claim tribes. surety pleaded bar recovery royalties. void congressional authorization 512-513, 655-656. proceeding. Circuit, 620 (1974), 307. 660. 253, 759 Counsel intimated oral title bed Tr. Oral Arg. otherwise uncontradicted findings below. protect ceded confines acquired "Pub.L. 280" much coexists city Tacoma. Public 280, § 67 590; Wash.Rev.Code §§ 37.12.010.-37.12.070 provision 280 exempts Code KF62 1162(b). "(a)s defendants' exterminated continue." 6. ability activity destroy factor cases Arnett Five Gill Nets, 48 Cal.App.3d 454, 463-464, 121 Cal.Rptr. 906, 912-913 (1975), 425 907, 1500, 757 (on reserved, 2248; People Jondreau, Mich. 539, 185 North Western 375 (1971); Arthur, 74 Idaho 251, 261 135 (1953), 347 937, 627, 98 1087; McConville, 46, 139 485 (1943). 1133. fishermen, sentence effects previously right. But recognizes shared "citizens introduced petition certiorari, brief. attempt untimely cross-petition brief affirmance. Because bearing petitioner, decline direction admirably narrow scope suited minimum intrusion protected rights. time, place, method 394 1726. sustained Review Klamath California extinguished, 2248. comparable reaching spawning grounds. Appeal expressed doubt found sufficient threat justify regulation. degree danger posed beginning. disagree willingness observe sound practices. Compare Brief Respondent, 17-18 Petitioners 11-12. carry (1974); Petitioners, 12. Boldt fisheries way endanger species: "With single exception testified highly interested witness substantiated, notwithstanding three exhaustive preparation, discovered produced credible evidence showing instance, remote recent, definitely member plaintiff his conduct detrimental perpetuation fish." 338 26. handed month half exist. appeal Boldt's certain aspects calculation related catches, never relevant respects, 676, 690 nowhere suggested treated differently year extinguished.

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