Legal Document

448 U.S. 136 100 Supreme Court Reporter 2578 65 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 665 WHITE MOUNTAIN APACHE TRIBE et al., Petitioners,v.Robert M. BRACKER al. Number 78-1177. Argued Jan. 14, 1980. Decided June 27, Syllabus Pursuant to a contract with an organization of petitioner White Mountain Apache Tribe, Pinetop Logging company (Pinetop), non-Indian enterprise authorized do business in Arizona, felled tribal timber on the Fort Reservation and transported it organization's sawmill. Pinetop's activities were performed solely reservation. Respondents, state agencies members thereof, sought impose Arizona's motor carrier license tax, which is assessed basis carrier's gross receipts, its use fuel diesel used propel vehicle any highway within State. paid taxes under protest then brought suit court, asserting that federal law could not lawfully be imposed logging conducted exclusively reservation or hauling Bureau Indian Affairs (BIA) roads. The trial court awarded summary judgment respondents, Arizona Appeals affirmed pertinent part, rejecting petitioners' pre-emption claim. Held : are pre-empted by law. Cf. Warren Trading Post versus Tax Comm'n, 380 685, 85 1242, 14 165. Pp. 141-153. (a) tradition sovereignty over must inform determination whether exercise authority has been operation Where, as here, State asserts conduct non-Indians engaging activity reservation, particularized inquiry made into nature state, federal, interests at stake, designed determine whether, specific context, would violate 141-145. (b) Federal Government's regulation harvesting, sale, management timber, BIA roads, so pervasive preclude additional burdens here assessing question against for operations roads 145-149. (c) Imposition undermine policy assuring profits from sales inure Tribe's benefit; also Secretary Interior's ability make wide range determinations committed his concerning setting fees rates respect harvesting sale timber; adversely affect comply sustained-yield policies 149-150. (d) Respondents' generalized interest raising revenue insufficient, context this case, permit proposed intrusion regulatory scheme timber. Pacific KF135 P2 150. 120 Ariz. 282, 585 Reporter, 2nd 891, reversed. Neil Vincent Wake, Phoenix, Ariz., Michael Judge Brown, Tucson, petitioners. Elinor Haw. Hawai‘i KFH45 A2 Stillman, Washington, D.C., U.S., amicus curiae, special leave Court. Ian Atlantic Macpherson, Asst. Atty. Gen., respondents. Mr. Justice MARSHALL delivered opinion 1 In case we once again called upon consider extent engaged commerce seeks apply consisting two corporations operating Reservation. Tribe contend alternatively, they represent unlawful infringement self-government. appeals rejected claims. We hold law, therefore reverse. 2 * 6,500 reside mountainous forested region northeastern Arizona.1 organized constitution approved Interior Reorganization Act, 25 Code KF62 § 476. fund governmental programs derived almost enterprises. Of these enterprises, have proved far most important, accounting 90% total annual profits.2 3 occupies 1,650,000 acres, including 720,000 acres commercial forest. Approximately 300,000 "sustained yield" basis, permitting each area cut every 20 years without endangering forest's continuing productivity. Under land owned benefit cannot harvested consent Congress. Acting Regulations 141.6 (1979) constitution, approval Interior, 1964 Timber (FATCO), manages, harvests, processes, sells FATCO, conducts all was created aid funds. It employs about 300 members. 4 entered contracts authorizing harvest pursuant regulations Affairs. FATCO itself contracted six companies, Pinetop, perform certain carry out economically own.3 Since first agreements 1969, required fell trees, them correct size, transport FATCO's sawmill return contractually specified fee. approximately 50 Its activities, Reservation, subject extensive control. 5 1971 respondents4 issue here. first, "[e]very common property property." Ariz.Rev.Stat.Ann. 40-641(A)(1) (Supp.1979). "contract property" since "the transportation property, compensation, public highway." 40-601(A)(7) (1974). tax amounts 2.5% receipts. second excise "[f]or purpose partially compensating highways." 28-1552 eight cents per gallon "in propulsion state." Ibid. because uses vehicles highways 6 protest,5 roads.6 agreed reimburse liability incurred result on-reservation intervened action plaintiff.7 7 Both petitioners respondents moved applicability Pinetop. Petitioners submitted supporting affidavits manager head forester Affairs, Chairman Tribal Council; offered no disputing factual assertions affiants. respondents,8 appealed Appeals. 891 (1978). Purporting test set Pennsylvania Nelson, 350 497, 76 477, L.Ed. 640 (1956), held did conflict dominant assessment challenged taxes, "occupy field." concluded unlawfully infringe declined review decision granted certiorari. 444 823, 43, 62 30 (1980). II 8 Although "[g]eneralizations become . treacherous," Mescalero Jones, 411 145, 148, 93 1267, 1270, 36 114 (1973), our decisions establish several basic principles boundaries between Long ago departed Chief Marshall's view laws [a State] can force" boundaries, Worcester Georgia, Pet. 515, 561, 483 (1832).9 See Moe Salish & Kootenai Tribes, 425 463, 481-483, 96 1634, 1645-1646, 48 (1976); New York ex rel. Ray Martin, 326 496, 66 307, 90 261 (1946); Utah Northern R. Fisher, 116 28, 246, 29 542 (1885). At same time recognized tribes retain "attributes both their territory." Mazurie, 419 544, 557, 95 710, 717, 42 706 (1975). Wheeler, 435 313, 323, 98 1079, 1086, 55 303 (1978); Santa Clara Pueblo Martinez, 436 49, 55-56, 1670, 1675-1676, 56 106 As result, there rigid rule resolve particular may applied status described " 'an anomalous one complex character,' despite partial assimilation American culture, retained 'a semi-independent position States, nations, possessed full attributes sovereignty, but separate people, power regulating internal social relations, thus Union whose limits resided.' McClanahan 164, 173, 1257, 1263, 129 quoting Kagama, 118 375, 381-382, 1109, 1112-1113, 228 (1886). 9 Congress broad regulate affairs Commerce Clause, Article 1, 8, cl. 3. supra, 322-323, S.Ct., 1085-1086. This congressional "semi-independent position" given rise independent related barriers assertion reservations First, such See, e. g., 165 (1965); supra. Second, "on right Indians own ruled them." Williams Lee, 358 217, 220, 79 269, 271, 251 (1959). Washington Yakima Nation, 439 502, 99 740, 762, 58 740 (1979); Fisher District Court, 424 382, 943, 47 (1976) (per curiam ); Kennerly Montana, 400 423, 91 480, 27 507 (1971). either, standing alone, sufficient holding inapplicable undertaken They related, however, important ways. self-government ultimately dependent Even so, traditional notions deeply engrained jurisprudence provided "backdrop," 172, 1262, vague ambiguous enactments always measured. 10 unique historical origins generally unhelpful those standards emerged other areas differences form treacherous import properly other. 475, 1642. repeatedly recognized, reflected encouraged number demonstrating firm promoting self-sufficiency economic development.10 Ambiguities construed generously order comport encouraging independence. 174-175, n. 13, 1263-1264, 13. proposition find preempted express statement effect required.11 applicable weight, 171, 1261, "automatic exemptions 'as matter constitutional law' unusual. 481, 17, 1645, 17. 11 When involving only issue, inapplicable, State's likely minimal strongest. 480-481, 1644-1645; Comm'n. More difficult questions arise where, cases examined language relevant treaties statutes terms underlie developed traditions mechanical absolute conceptions Compare Thomas Gay, 169 264 (1898). 1261; 1270. III 12 With mind, turn respondents' claim may, consistent contested outset observe comprehensive. That takes Acts Congress, detailed promulgated day-to-day supervision §§ 405-407, reservation.12 sold Secretary, proceeds sales, less administrative expenses Government, transferred owner. Sales "be based consideration needs best owner heirs." 406(a). statute specifies factors making determination.13 assure continued productivity timber-producing reservations, unallotted lands "may accordance sustained yield." 407. disposition sales. He promulgate forestry units. 466. 13 authority, govern Among stated objectives "development forests people self-sustaining communities, end receive stumpage value, whatever profit capable yielding labor qualified perform." 141.3(a)(3) (1979). cover variety matters: example, restrict clear-cutting, 141.5; comprehensive guidelines 141.7; advertising 141.8, 141.9; specify manner bids accepted rejected, 141.11; describe circumstances into, 141.12, 141.13; require call timber-cutting permits 141.19; fire protective measures, 141.21; provide board appeals, 141.23. Tribes expressly enterprises 141.6. regulations, exercises literally daily present Bureau; indeed, record shows some drafted employees Government. cutting, hauling, marking decides matters how much will cut, trees felled, used, equipment should employ, speeds travel, width, length, height, weight loads. 15 governing Part 162 open "[f]ree use." 162.8. Their administration maintenance funded contributions tribes. 162.6-162.6a. On Forestry Department contractors, repair maintain existing construct new Substantial sums spent purposes. federally ones. A high percentage receipts expended purposes, maintained personnel tasks relating road maintenance. 16 agree case. Respondents seek reservation.14 There room scheme. ways, obstruct policies. And equally unable identify function service justify 17 general level, threaten overriding objective guaranteeing "receive [the forest] yielding. Underlying program rests part "to revitalize self-government" assume control "business affairs." 151, 1272. imposition Government minute details production expressed desire benefits 18 addition, Secretary's reviews approves sets services rendered determines Tribe. Most notably reviewing writing agents predict amount proper allocation expenses, costs. throw calculus, reducing revenues diminishing profitability potential contractors. 19 Finally, sustainedyield expenditures contractors undertake measures ensure These include reforestation, control, wildlife promotion, improvement, safety inspections, policing largely revenues, effectively diminish reduced pay expenses. noted above, assess functions performs whom fall. Nor able legitimate served impose. refer raise revenue, discern responsibility justifies Though least purports "compensat[e] highways," (Supp.1979), compensatory built, maintained, policed believe 21 argument whenever contrary. simply acting even though explicit subject. (1959); emphasized significant geographical component remains highly inquiry; boundary absolute, factor weigh determining exceeded permissible limits. 'The consistently guarded governments reservations.' 558, 718, 223, 272. Moreover, undisputed burden asserted fall Tribe.15 where underlying threatened impose, except impermissible.16 22 reasoning follow naturally unanimous "gross proceeds" retail trading Navajo Referring sovereign "comprehensive traders" prohibited attempted taxes. Id., 688, 1244. No precluded tax. Nonetheless, "detailed regulations," specifying fashion," id., 689, 1244, licensing traders, show taken fully hand imposing traders." 690, 1245. burdens, held, "could disturb disarrange statutory plan" eventually passed themselves. 691, 1246. referred fact had "largely free run automatically relieved carrying responsibilities." "since legislation left duties responsibilities respecting Indians, intended privilege levying tax." conclude, respects indistinguishable Post. 23 24 Reversed. STEVENS, STEWART REHNQUIST join, dissenting. 26 imposes businesses compensate greater than normal 160, 170, 3, 2599, 2601, 684 (POWELL, J., concurring). originally presented joint venture (Pinetop Co.) hired when located light concessions sides various stages litigation, N Dec. Immigration Nationality Decisions doubt reach if merits before us, Court's Between November May 1976, $19,114.59 $14,701.42. determined latter improperly denied 60% credit entitled law.1 After allowance credit, disputed 41/2-year period $25,000 $5,000-$6,000 year. 28 actually dispute, considerably less. concedes credits. To understand necessary note operate four different kinds Reservation: (1) highways; (2) (Bureau Affairs) serving recreational needs; (3) financed Indians; (4) private built loggers Pinetop.2 represents extremely limited, does dispute use. hand, conceded assessments improper either roads3 roads.4 If arises more akin former latter. appears like insofar public.5 constructed officers.6 think appropriate vacate remand further behalf POWELL point out, see why acknowledgement interest. ante, (opinion Court); 174, 2601 opportunity focus point, might well remaining decided. 31 assuming, courts uphold similarities InWarren 165, taxation doing tribe "disturb disarrange" burden. Central Machinery 168, 2592, 2596, (STEWART, dissenting). assume, arguendo, relied inWarren present. due process equal protection.7 But relationship 32 points business. Thus, among things, sometimes drafts companies requires BIA's dictates haul mark repair. Ante, 14. reasons that, increase price decrease enterprise, substantially interfere states "overriding objective" forest yielding, "undermine" "adversely law." 33 From practical standpoint, prediction massive interference forest-management seems overdrawn, say least. involved produced $1,508,713 1973. maximum 1% profits. Given concession taxed actual probably less.8 relatively trivial "obstruct policies." 34 reliance indirect financial disturbing. rule, invalid nonexempt taxpayer expected pass cost through person who exempt Detroit, 355 466, 469, 78 474, 476, 424, cf. Confederated Colville 447 134, 2069, 10. found exception chosen trader taxation. unlikely serious adverse impact business, infer intent confer immunity. way subsidize industry encourage self-government, evidence today. 35 respectfully dissent. established Executive Order signed President Grant 9, 1871. By Act 7, 1897, Statutes-at-Large 64, divided San Carlos Reservations. 1973, showed net $1,667,091, attributable operations. initially economically. Highway Department, Commission, individual entity. 1976 $14,701.42 pending outcome Refund litigation five employed stayed suit. For purposes travel records highways, computations evidently allocate portion taxable highways. believed avoid loss services. proceeded state-law calculating Final issues after trial. reversed Superior calculation 291, 819, 900 shift approach discussed 219, 270, Organized Village Kake Egan, 369 60, 71-75, 82 562, 568-570, 573 (1962); (1973). Financing 1974, 1451 seq., states: "It hereby declared help develop utilize resources, physical human, utilization resources enjoy standard living productive efforts comparable enjoyed neighboring communities." Similar Self-Determination Education Assistance 1975, 450 1934, 461 "intent 'to rehabilitate Indian's life give him chance initiative destroyed century oppression paternalism.' 152, 1272, H.R.Rep. 1804, 73d Cong., Sess., (1934). Gross, Sovereignty: An Analysis Recent Policy, Texas L.Rev. 1195 "Indians going beyond boundaries," "a nondiscriminatory law" absence "express contrary." 148-149, long history. Cook, Wall. 591, 210 (1874), Pine River 186 279, 920, 46 1164 (1902), sell unless improvement land. interpreted deserving means support, limited quantity support , percent go poor tribe, old, sick otherwise helpless supported." 285-286, 922. Attorney General Cook mean Op.Atty.Gen. 194 (1888). interpretation overturned 25, 1910, ch. 431, 855, amended, 407, repudiated Shoshone 304 111, 794, 1213 (1938). summarized Algoma Lumber Co., 305 415, 420, 59 267, 83 260 (1939), "[u]nder tribes, beneficial owners plenary exercised protection Indians." 196; Mitchell, 445 535, 1349, 63 607 Those "(1) growth need maintaining capacity heirs, highest land, advisability practicality devoting future oral counsel appeared concede unwilling defend contrary conclusion below, distinction Tr. Oral Arg. 34-37. Contrary throughout brief contention pre-emption, none, distinguishing course, falls pre-empted, (1976), makes clear. Our today pre-emptive scheme, which, (1965), leaves Buck 105 Hayden-Cartwright 104. 18, 1246, squarely reason us depart holding. authorizes military reservations," overcome applies all. wood pulpwood. logs hauled paragraph XIII complaint, alleged: "There categories Ft. Plaintiffs operations: exclusively; loggers. transporting woods sawmill, plaintiffs' although short portions many trips "The category (3), Categories (1), (2), sources monies Arizona. Tribal, meaning Revised Statutes Sec. 40-601.9, inappropriate." argument, Assistant stated: "But remained thoroughfare traveled [sic ] 32. Later he asked following gave answer: "Mr. quite apart involves what Weyerhauseur Company rancher owns square miles ranch 365 days year, year 366, never Arizona? "MR. MACPHERSON: not, Your Honor." 39. advised argument: "However, current legislative exists now, intention forward purported theory says can, ahead assured my client telephone last night. put apprise true facts are." 35. rebuttal, surprise at, nevertheless accepted, Counsel "My good friend, just said remarkable things. "I hear saying longer interested collecting said, am delighted accept concession. suggestions made. "His predecessor, argued appellate claiming lower gives burdened bring "Our opening briefs issue. acknowledge "Trial counsel, Beus informs me lunch understanding agreement included payment allocable "QUESTION: Well, say, importance, me, confined "Is there, dispute? WAKE: submit until Macpherson spoke. now you isn't. I— isn't [counsel] [is] withdrawing perhaps clarify remarks. You gladly. gladly but— won your the— Honor, being it, event regard since—" 54-56. colloquy occurred What meant real fight "Does tell example police speed things that? specifically detail. However, presents hypothetical decide. Stevens, is—we felt ethical situation is. "But, having legal please still decided Federal—the use, 36-37. Did roads? correct, Honor. contribute construction So shows, responsibility, either? 41-42. Due Process Clause prohibit completely state-owned Or taxing system, required, protection, types identical respects. parties told

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