Legal Document

537 U.S. 465 UNITED STATESv.WHITE MOUNTAIN APACHE TRIBE No. 01-1067. Supreme Court of United States. Argued December 2, 2002. Decided March 4, 2003 Under Pub. L. 86-392, 74 Stat. 8 (1960 Act), the "former Fort Apache Military Reservation" is "held by States in trust for White Mountain Tribe, subject to right Secretary Interior use any part land and improvements." The has exercised that with respect about 30 post's buildings appurtenances. Tribe sued amount necessary rehabilitate property occupied Government accordance standards historic preservation, alleging had breached a fiduciary duty maintain, protect, repair, preserve property. In its motion dismiss, acknowledged that, under Indian Tucker Act, it was jurisdiction Federal Claims certain tribal claims, but stressed waiver operated only when underlying substantive law could fairly be interpreted as giving rise particular duty, breach which should compensable money damages. contended lacking here because no statute or regulation read impose legal obligation on maintain restore property, let alone authorize compensation breach. agreed dismissed complaint, relying primarily v. Mitchell, 445 U. S. 535 (Mitchell I), 463 206 II). court ruled like General Allotment Act at issue Mitchell I, 1960 created nothing more than "bare trust," predicate finding enforceable monetary relief. Circuit reversed remanded, understanding Government's triggered common-law trustee's act reasonably chose utilize, an supporting damages claim. held Act's provision exclusive control over actually raised level II, supra, 225, this federal timber management statutes regulations, assumed "elaborate control" forests, identified specific relationship award. Held: gives Tribe's suit against Pp. 472-479. (a) claims "otherwise would cognizable ... if claimant were not tribe," 28 C. § 1505, creates claim damages, e. g., S., 216. A capable grounding such "can mandating sustained." E.g., id., 217. This "fair interpretation" rule demands showing demonstrably lower standard initial sovereign immunity Government. It enough creating amenable reading mandates recovery See 218-219. While premise will "lightly inferred," 218, fair inference do. 472-473. (b) two cases give sense infer qualifying not. gave functional obligations manage timber, 542-543, contrary established allottee, representative States, responsible using land, ibid., found Congress did intend resources, 542. however, regulations there considered full responsibility resources Indians' benefit, they defined contours States' responsibilities beyond "bare" minimal level, thus through faltered responsibility. 224-226. 473-474. (c) goes bare permits duties trustee potentially liable expressly defines then proceeds invest discretionary authority make direct portions corpus. undisputed day availed itself option. As actual use, then, merely daily supervision enjoyed occupation, so obtained least plenary II. Although unlike cited case, does conservation duties, fact supports improvements incumbent trustee. See, Central Southeast & Southwest Areas Pension Fund Transport, Inc., 472 559, 572. Thus, 226. 474-476. (d) rejects three defenses. First, argument specifically carved out odds natural provided "Fort Apache" trust, consisted used Secretary. Second, from intent provide remedy inferable rests failure appreciate either role drawing scope Testan, 424 392, Army Air Force Exchange Service Sheehan, 456 728, relies. assertion explicit support every leave II wrongly decided, explicitly providing inadequate compensated More fundamentally, position, carried conclusion, relation analysis; needed, are Sheehan Testan contrary; without mix relevant fact, affirmative reasons believe have been intended, absent provision. Third, clearly wrong argues prospective injunctive relief tailored situation, rather remedy, appropriate maintenance failures. If suggesting recompense run-down order repair them, proposing economic (but perhaps cumbersome) equivalent But must limited injunction toe mark future, bar courts making whole deterioration already suffered, shield whose very availability deter wasting period before gone E. 227. 476-479. 249 F. 3d 1364, affirmed remanded. SOUTER, J., delivered opinion Court, STEVENS, O'CONNOR, GINSBURG, BREYER, JJ., joined. filed concurring opinion, joined, post, p. 479. THOMAS, dissenting REHNQUIST, SCALIA KENNEDY, 481. CERTIORARI TO THE STATES COURT OF APPEALS FOR FEDERAL CIRCUIT. Gregory G. Garre argued cause With him briefs Solicitor Olson, Assistant Attorney Sansonetti, Deputy Kneedler, Elizabeth Ann Peterson, James M. Upton. Robert Brauchli brief respondent.* JUSTICE SOUTER Court. 1 question case arises Act: We hold does. 2 * former military post dates back 1870 fort within territory became reservation 1877. 1922, transferred (Secretary) and, 1923, set aside 400 acres, some 7,000, Theodore Roosevelt School. Jan. 24, ch. 42, 42 1187. attended again 1960, administrative school purposes long needed purpose." Act). right, although record catalog uses made Department Interior, extended appurtenances, few built first land. National Park listed national historical site 1976, recognition augury fortune, just 20 years later World Monuments Watch placed 1998 List 100 Most Endangered Monuments. Brief Respondent 3. 3 1993, commissioned engineering assessment resulting cost $14 million preservation. sought 1999, Claims, citing terms among others,1 "maintain, preserve" App. Pet. Cert. 37a. 4 moved dismiss state upon might granted lack subject-matter jurisdiction. invested render judgments tribes including based Congress, imposing authorizing breach.2 5 complaint jurisdiction, seminal (1980) (1983) I (Allotment 24 388, amended, 25 331 et seq. (1976 ed.) (§§ 331-333 repealed 2000), "the allotted sole benefit Indian," 348; 541, trust" members. 224. general members, rather, being "responsible land," "occupy[ing] "manag[ing] land." 542-543. opposite result statutes, 406-407, 466, CFR pt. 163 (1983), forests. 209, 225. award Id., 225-226. 6 Here, compared trust." saw mandate behalf 7 Appeals States's proviso common chosen building together Chief Judge Mayer dissented "carve[d] out" entitled own consequence contingent future interest insufficient even action permissive waste. 1384 (2001). 9 certiorari decide whether suits 1016 (2002), now affirm. 10 Jurisdiction requires clear statement waiving immunity, 538-539, falling waiver, 216-217. consent may inferred, "unequivocally expressed," 538 (quoting King, 395 1, (1969)) (internal quotation marks omitted), "define [a] court's jurisdiction," Sherwood, 312 584, 586 (1941)) omitted). contains 212, proof "any founded Constitution, Congress," 1491(a)(1), companion statute, confers 1505. 11 Neither 538-540; we said if, damage 217 (1976)) 12 immunity. "Because supplies nature, separate need second nor construed manner waivers immunity." enough, B 13 characterizations "limited," 542, "bare," 224, distinguish trust-in-name one hallmarks conventional relationship. Navajo Nation, 504 (discussing §§ having "removed element relationship"). form "h[e]ld 348, timber; contrary, allottee occupy "impose duty" 542; cf. 217-218, language, reference intended "to prevent alienation land" guarantee allottees "immune taxation," 544. 14 subsequent arose look addressing lands implication imposed those possessed "comprehensive harvesting timber" "exercise[d] literally [its] management," 222 Bracker, 448 136, 145, 147 (1980)) "pervasive" sale "virtually aspect forest 219, 220. "full Indians," "define[d] responsibilities" "fairly compensation" III 15 statutory course, relationship3 Tribe." 8. Unlike "subject purpose," true not, conservation, elementary law, after all, confirms commonsense assumption administering allow fall into ruin his watch. "One fundamental assets," 572 (1985) (citing Bogert Bogert, Law Trusts Trustees 582, 346 (rev. 2d ed. 1980)); see Mason, 412 391, 398 (1973) (standard "such care skill man ordinary prudence exercise dealing property" A. Scott, 1408 (3d 1967) omitted))); Restatement (Second) 176 (1957) ("The beneficiary reasonable property"). Given corpus, "it naturally follows duties."4 16 raises defenses corpus all. asserts purposes. 24-25 (emphasis deleted). According carve-out means less I. position Act. trust; Nor apparent reason strain avoid straightforward reading; makes treat since presumably redound way. 17 Next, contends inferable, "[t]here word — source relies suggests existence mandate." 28. rests, 392 (1976), 728 (1982), position. 18 To extent demand brought substitute plain demanding requirement meant duty. begin with, decided vain objection And likewise ignore where inferring sure, imply claimed, failed place discharge asserted. find further focus once provided, obligation. 19 authorization critical generally employees petitioner sought, "expressly denie[d] action" personnel, petitioner. 740. resting plaintiffs unsuccessfully asserted allegedly improper job classifications Classification liable," 399, longstanding presumption petitioner's argument. "The until he duly appointed it. . purport change rule, suggestion legislative history alter it." 402. both required strong indications Together show require express provision, current otherwise here. Finally, unsound simply inappropriate failures maintenance, situation. Reply 19. think wrong. 227 ("Absent retrospective little officials violating their managed obtain judicial decree breaches 550 omitted))). IV 21 judgment affirmed, remanded proceedings consistent opinion. 22 ordered. Notes: John Echohawk Tracy Labin American Indians amicus curiae urging affirmance. These included Snyder 208, 13, Historic Preservation 80 915, 470et appears yet relinquished buildings, concedes "some fallen varying states disrepair, structures condemned demolished." 4. For present address how affects Where, inMitchell 206, 225 sources create "[a]ll elements elsewhere recognized 1831. Cherokee Nation Georgia, (1831) (characterizing between "a ward guardian"); people"). proper measure us. mean relevance preservation standards. do significance indemnified upkeep maintenance. 244 indemnity estate expenses properly incurred administration trust"). reach rent-free occupant obligated supply funds benefits from. Property 187, Commentb (1936) ("When owner life shall given act, example, repairs effective compelling doing act"). 23 whom BREYER joins, concurring. join Court's satisfied inconsistent wrote 488. Both instant guided aligned ranked explains, instruct "[t]o ..., identify establishes other allege faithfully perform duties." Navajo, 506. satisfies threshold, determine `can sustained [the governing law] impose[s].'" Ibid. 219). 26 threshold met. 8, provides Tribe" same time, authorizes fort. Ante, 469. observes, qualification employs term art ("trust") commonly understood entail obligations, ante, 474-476, "invest[s] corpus," 475; 508 ("no [Indian Mineral Leasing (IMLA)] language coal leasing"). Further, describes, tenably maintains "availed option" "exercis[e] [and] enjo[y] occupation" 475, done irreconcilable caretaker obligations. dispositive question, accordingly, measure, placing simultaneously Government-trustee's occupancy, harm caused maladministration 27 contrast, turns IMLA concrete otherwise, answers negative. "controversy falls I's domain," concludes, derive liability-imposing implementing regulations." Post, 493. coal-leasing provisions allied lacked characteristics typify genuine relationship: Those assigned managerial leasing; establish "limited relationship" existed 507-508. develops, characterized authorized management. exercises manager trustee, agree, places II's governance.* allowed ruin," inferable. 29 CHIEF JUSTICE, SCALIA, KENNEDY join, dissenting. majority's conclusion matter finds neither text our law. repeatedly held, test conferred (1976) Eastport Corp. 178 Ct. Cl. 599, 607, 372 1002, 1009 (1967)) added). Instead applying test, engages new inquiry, asking principles permit inference" available, existing 473. newly devised approach, basis anything confer I). Because "can[not] sustained" (Tribe), 400, respectfully dissent. 31 stated "grant [for States] specificity." Accord, 739 (1982) (stating "jurisdiction respondent's cannot premised violation awards damages"). majority agrees damages; indeed, "spea[k] States." Gnotta 415 1271, 1278 (CA8 1969) (Blackmun, J.). Instead, holds "trust" favor Tribe. 474-475. 32 "in ." 541 389, 348). Despite concluded congressional lacking. reasoned "not unambiguously ha[d] undertaken lands."1 33 review evidence acknowledges "silen[t]" also regard "maintenance protection duties" can 11; 1377 (CA Fed. 2001) ("It define government's obligations"). Indeed, II), "establish. `comprehensive' managing the" 222. "clearly establish[es] operation lands," 34 addition, "[n]othing imposes carves unrestricted specified 3d, (Mayer, dissenting); 1375 requirement" beneficiaries, i. e., Native Americans"). "Secretary inure Indians. cede future. anything, 35 indication effect Accordingly, 36 concluding far too much weight factual "control" all distinguishes "has II." 475. analysis, "misconstrues focusing nature relationship." 46 20, (1999). "timber promulgated thereunder," added), what led conclude "pervasive "area sales n. 29. But, now, never notions foundation statutes. 37 talismanic jurisprudence. state: 38 "[A] necessarily assumes elaborate forests properties belonging `[W]here takes monies (unless otherwise) though (or document) fund, connection.'" 224 171, 183, 624 981, 987 (1980)). 39 However, involve over" sufficient involved "comprehensive" regulatory scheme "addressed virtually Indians." 220, 222, forth "fundamental document," barest degree And, Supra, 484. my view, 40 Moreover, assuming proposition mere (which cannot), guidance duties. event, to, puts it, "preserve property." wished Its follow course strongly 41 rendered inquiry open-ended, questions determined murky trusts,2 parcel-by-parcel determination "portions control," 1383. Such approach certainty guide fashioning legislation insulates trust. ultimate detriment refrain relationships apprehension liability 43 today fashions so, radically alters focused divining control. (1980), tug placement. (GAA) narrowly circumscribed agricultural grazing purposes." GAA removed "hallmarks 473 (the relationship.")). modify Tribe," except confirm Government-trustee 475 Occupation feature trusteeship, ordinarily entails. 475-476. observed governed principles: comparable private When general, bare, relationship, applicable trustees Rather, traditionally guardian-ward guardianship intensive fiduciaries."Cherokee Oklahoma 565, 573 (1990) (citations internal Even trusts determining exists well ultimately costs trust"); 3A Scott W. Fratcher, 244, 325 (4th 1988) ("[The trustee] liabilities payment taxes, repairs, improvements. ."). Besides bald "naturally follo[w]" duty,ante, 476 attempt explain lies available

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