Legal Document

522 U.S. 329118 S.Ct. 789139 L.Ed.2d 773 SOUTH DAKOTA, Petitioner,v.YANKTON SIOUX TRIBE et al. No. 96-1581. Supreme Court of the United States Argued Dec. 8, 1997. Decided Jan. 26, 1998. Syllabus * The Yankton Sioux Reservation in South Dakota was established pursuant to an 1858 Treaty between and Tribe. Congress subsequently retreated from reservation concept passed 1887 Dawes Act, which permitted Government allot tracts tribal land individual Indians and, with consent, open remaining holdings non-Indian settlement. In accordance members respondent Tribe received allotments then negotiated for cession remaining, unallotted lands. An agreement reached 1892 provided that would "cede, sell, relinquish, convey States'' all its lands; return, agreed pay $600,000. Article XVII agreement, a saving clause, stated nothing terms "shall be construed abrogate [1858] treaty'' "all provisions said treaty . shall full force effect, same as though this had not been made.'' ratified 1894 statute, non-Indians rapidly acquired ceded case, tribal, federal, state officials disagree environmental regulations applicable solid waste disposal facility lies on unallotted, fee land, but falls within reservation's original boundaries. Federal contend site remains part is therefore subject federal regulations, while petitioner State maintains divestiture Indian property effected diminishment Tribe's territory, such lands no longer constitute "Indian country'' under 18 U.S.C. §1151(a), now has primary jurisdiction over them. District declined enjoin construction landfill granted declaratory judgment Act did alter boundaries, consequently where apply. Eighth Circuit affirmed. Held: Act's operative language circumstances surrounding passage demonstrate intended diminish Reservation. Pp. ___-___. (a) opened if surplus freed those their status thereby diminished Solem v. Bartlett, 465 463, 467, 104 1161, 1164, 79 443, entire area remained country simply offered opportunity purchase id., at 470, S.Ct., 1166. touchstone determine whether given statute or retained boundaries congressional purpose, see Rosebud Kneip, 430 584, 615, 97 1361, 1377, 51 660, Congress' intent treaty's by diminishing must "clear plain,'' Dion, 476 734, 738-739, 106 2216, 2219-2220, 90 767. most probative evidence statutory language, will also consider historical context passage, lesser extent, subsequent treatment question pattern settlement there. Hagen Utah, 510 399, 411, 114 958, 965, 127 252. Ambiguities resolved favor Indians, lightly find diminishment. Ibid. (b) plain evinces reservation. I's "cession'' language-the claim, right, title, interest lands''-and II's "sum certain'' language-whereby pledges fixed payment $600,000 return-is "precisely suited'' terminating status. See DeCoteau County Tenth Judicial Dist., 420 425, 445, 95 1082, 1093, 43 300. Indeed, when contains both explicit evidencing "the present total surrender interests,'' provision fixed-sum payment, representing "an unconditional commitment compensate tribe land,'' "nearly conclusive,'' "almost insurmountable,'' presumption arises. Solem, supra, 1166; Hagen, 965. (c) rejects argument that, because clause purported conserve Treaty, existing were maintained. Such literal eviscerate impugning sale. Rather, it seems likely parties inserted XVIII, including general statement regarding particular ensuring "Yankton continue receive annuities [that Treaty],'' limited purpose assuaging concerns about entitlement annuities. Discussion figured prominently negotiations led mention made preservation P. ___. (d) Neither reserving sections each township schools nor prohibition liquor supports position. agrees school reinforces view extinguish land. See, e.g., Rosebud, 601, 1370; 474, 1168. Moreover, reasonable inference inclusion aware opened, areas henceforth country,'' alcohol already banned. 613, 1376. (e) Although area's are compelling standing alone, they indicate diminishment, neither do rebut insurmountable presumption'' arises statute's terms. manner transaction tenor legislative reports presented reveal contemporaneous understanding modified 471, history itself adds little considered several sale agreements time, few relevant references floor debates support finding addition, Presidential Proclamation opening indicating Nation's Chief Executive viewed altered. 602-603, 1371. (f) Despite apparent reservation, years since, Branch have described contradictory treated region inconsistent manner. mixed record reveals dominant approach, carries light strong textual E.g., 605, n. 27, 1372-1373, 27. (g) Demographic factors signify diminishment: population promptly drastically after predominantly populated only surviving pockets allotments. U.S., 12, 1166-1167, 12. Court's holding further reinforced State's assumption territory almost immediately lack attempted until recently exercise nontrust Id., 1456. Finally, Constitution, drafted 1932 amended 1962, defines include "now owned'' (h) conflicting understandings together fact continues own common, caution limit narrow presented: severed need disestablished altogether order resolve accordingly declines so. 421, 970. 99 F.3d 1439 (C.A.8 1996), reversed remanded. O'CONNOR, J., delivered opinion unanimous Court. Mark W. Barnett, Pierre, SD, petitioner. James G. Abourezk, Falls, respondents. Barbara B. McDowell, Washington, DC, amicus curiae, special leave Justice O'CONNOR 1 This case presents whether, lands, Dakota. Subsequently, General Allotment 1887, Feb. 24 Stat. 388, 25 §331 (the Act), issue we confront illustrates jurisdictional quandaries wrought allotment policy: We decide constructed regulations. If defined hold country. 2 A 3 At outset 19th century, held exclusive dominion 13 million acres Des Moines Missouri rivers, near boundary currently divides North H. Hoover, (1988). 1858, Yanktons entered into renouncing claim more than 11 aboriginal north-central plains. Apr. 19, 743. Pursuant 4 owned, possessed, claimed them, wherever situated, except four hundred thousand thereof, situated follows, wit-Beginning mouth Naw-izi-wa-koo-pah Chouteau River extending up thirty miles; thence due north point; easterly point River; down river place beginning, so quantity acres.'' Art. I, 744. 5 portion located what southeastern Charles Mix County, Dakota, later surveyed determined encompass 430,405 acres. Letter Commissioner Affairs Secretary Interior (Dec. 9, 1893), reprinted S. Exec. Doc. 53d Cong., 2d Sess., (1894) (hereinafter Letter). consideration release claims, pledged protect "quiet peaceable possession'' " [n]o white person,'' exceptions, "be reside make any upon [reservation].'' Arts. IV, X, 744, 747. promised Tribe, expend benefit $1.6 50-year period, appropriated additional $50,000 aid transition through livestock agricultural implements, houses, schools, other buildings. 6 Not assistance forthcoming, experienced severe financial difficulties followed, compounded weather cycles drought devastating floods. When war broke out Nation 1862, alone sided Government, decision isolated rest Federation caused inner turmoil well. coincided period rapid growth States' population, increasing westward migration, ensuing demands throughout Western 7 response these "familiar forces,'' 431, 1086, 300 (1975), began dismantle territories previously set aside permanent homes tribes. 466, 1163-1164, 443 (1984). pressure westward-bound homesteaders, belief private ownership, prompted 388. Within generation two, thought, tribes dissolve, reservations disappear, absorbed larger community settlers. Hearings H.R. 7902 before House Committee Affairs, 73d 428 (1934) (statement D.S. Otis policy). With respect particular, some Members speculated "close contact frugal, moral, industrious people who settle [on reservation] [would] stimulate effort [the Tribe's] progress much heretofore.'' Report Senate S.Rep. 196, (1894). 8 member 160-acre tract trust years. parcels although many clustered southern part, River. By 1890, allotting agent apportioned 167,325 95,000 allotted February 28, 1891, 26 795, small amount acreage reserved government religious purposes. amounted approximately 168,000 Letter, 5. 9 1892, dispatched three-member Commission Greenwood, negotiate acquisition July 13, 27 137 (appropriating funds enable "negotiate portions respective reservations''). Commissioners arrived October informed sent "Great Father'' discuss "this [members Tribe] common,'' Council (Oct. 1892), transcribed 48, abruptly encountered opposition traditionalist leaders. (Mar. 31, 9-11 Report). lengthy raised suggested price per acre, outstanding claims against States, future Once garnered measure submitted proposed Tribe.1 10 I II, single $600,000, $3.60 acre.2 Much focused disposition sum. VII signatories adult male 20-dollar gold piece commemorate agreement. Some sought unpaid wages service scouts War, XV, recognized claim. core current disagreement agreement's [of 1858]'' March 1893, collected signatures 255 458 eligible vote, thus obtained requisite majority endorsement. filed report May delayed investigation allegations fraud procurement signatures. On August 15, 1894, finally similar Siletz Nez Perce Tribes. Aug. 28 286. incorporated entirety necessary satisfy scout pay, award commemorative pieces. prescribed punishment violating included certain common-school 12 President Cleveland issued proclamation 21, 1895, turn percent settled. 224 Ct.Cl. 62, 623 F.2d 159, 171 (1980). conveyed non-Indians. Today, consist 30,000 6,000 Reservations: Handbook 260 (1986). formally repudiated Reorganization 1934, 48 984, §461, policy favoring assimilation left behind lasting legacy. conflict modern-day approach self-determination impetus era engendered "a spate disputes sovereign authority [surplus land] Acts since ownership.'' 1164. B 14 dispute instant site. 1992, counties formed Southern Recycling Waste Management constructing municipal facility. landfill, Reservation, non-Indian. predicate parties' assumption. 15 complaint, south one-half one-quarter (S½ N¼) Section 6, Township 96 North, Range 65 West (S6, T96N, R65W) Fifth Principal Meridan [sic], Dakota.'' App. 24. That description corresponds account deeded Lars K. Langeland Homestead 1904. Brief Respondent 1a-2a. Because inalienable, during 25-year homesteader 1904 owned Act. (The 1906 Burke 34 182, §349, issuance fee-simple patents expiration restrictions alienation 1904.) 16 permit intervened objected grounds, arguing compacted clay liner inadequate prevent leakage. After administrative hearing December 1993, Board Minerals Environment permit, require installation synthetic composite requested. Sixth affirmed Board's decision, appeal taken 17 September 1994, suit joined third party could defend grant permit. comport Environmental Protection Agency (EPA) mandating landfill. 40 C.F.R. §258.40(b) (1997). held, our Bourland, 508 679, 692, 113 2309, 2318, 124 606 (1993), assert regulatory activity Furthermore, establish compromise "political integrity, economic security, health welfare tribe,'' court concluded invoke inherent sovereignty exceptions Montana 450 544, 566, 101 1245, 1258-1259, 67 493 (1981). Accordingly, project, does appeal. determined, however, exterior delineated State,3 divided panel Appeals "Congress sell government, governmental it.'' 1439, 1457 1996). relied primarily reasoning "unusually expansive language,'' "should read narrowly minimize treaty.'' 1447. demographic development sustain 1457. 19 certiorari number decisions declaring diminished.4 520 ----, 117 2430, 138 192 reverse Circuit's result retain II 20 boundaries.'' contrast, "simply boundaries,'' 1166, Our purpose. 660 (1977). possesses plenary power affairs, modify eliminate rights. Santa Clara Pueblo Martinez, 436 49, 56, 98 1670, 1677, 56 (1978). can Celestine, 215 278, 285, 30 93, 94-95, 54 L.Ed. 195 (1909), 767 21 Here, Treaty. inquiry distinction acquiring assuming critical one, [t]he notion might coextensive ownership unfamiliar,'' 468, assumed system fade time. "Given expectation, naturally failed meticulous clarifying legislation sliced parcel off one reservation.'' Ibid.; 426, 973 (Blackmun, dissenting) ("As patina placed Acts, questions architects foreseen''). Thus, is, course, used lands,'' Acts,'' Throughout inquiry, "we ambiguities diminishment.'' 22 provides limits reservation''; return. DeCoteau, 1093. cession, 23 parallel found terminated Lake Traverse supported construe here clearly indicates even restored public domain.'' 412, 966. readily distinguishable interpreted maintaining Seymour Superintendent Wash. Penitentiary, 368 351, 355, 82 424, 426-427, 346 (1962), Mattz Arnett, 412 481, 501-502, 93 2245, 2256-2257, 37 92 (1973), "subject settlement, entry, purchase,'' without more, evince reservations. Likewise, phrase authorizing "sell dispose'' belonging Cheyenne cession. 472, 1167. here-a providing exchange payment-bears hallmarks appearing XVIII asserts urges similarly "holistic'' presume insofar fundamentally altering Treaty's noted Greger, 559 N.W.2d 854, 863 (S.D.1997), "impugn sale.'' relinquishment homesteaders means reconciled central "permanent'' home prohibited Oregon Dept. Fish Wildlife Klamath 473 753, 770, 105 3420, 3430, 87 542 (1985) (discounting basis "glaring inconsistency'' agreement). Government's contention cede maintain contradicts common time: component 1164-1165. "cannot ignore fair appraisal, runs counter tribe's late claims.'' Klamath, 774, 3432 (internal quotation marks citation omitted). Rather eviscerates appears, give "sensible construction'' avoids "absurd conclusion.'' Granderson, 511 39, 1259, 1268-1269, 611 (1994) plausible interpretation revolves around form cash, guns, ammunition, food, clothing 50 Along price, unrealized dominated historian testified, Court, loss rations "disastrous'' 589, perceived threat particularly tense negotiations, tide seemed forces opposing sale, John J. Cole warned: "I want you understand absolutely dependent Great Father to-day living. Let send instructions your cease rations, let instruct clothes. him supplies, take away money run with, know do. Everything wearing eating gratuity. Take throw wholly responsibility care themselves, result! one-fourth live winter, grass grows again nourished dust balance noble tribe.'' 10, 74. Given evident concern reaffirmance obligations Commissioners' tendency wield payments inducement sign conclude pertains continuance annuities, borders. 29 specifically [1858 Treaty]'' underscores scope clause. It true interpreting statutes way "renders words redundant.'' Gustafson Alloyd Co., 513 561, 574, 115 1061, 1069, 131 (1995). But discussion failure fulfill earlier promises, see, 3, 54-55, understood specified therein, assuage Tribes' past entitlements. apart pledge hard identify preserve, plainly expressly points XI submit resolution matters difficulty themselves Indians,'' 743, us extrapolate implicitly internal matters, there apply standard canon law [o]nce powers self-government rights shown exist, otherwise, action arguably abridge them retaining rights.'' F. Cohen, Law (1982) Cohen). reference indirect, best, persuade governance 31 contends affirms govern agreement] made,'' consistency agreements, While indeed unusual, think meaningfully distinct clauses move pre-existing treaties remain effect comparable circumstances. 769-770, 3429-3430; 548, 558-559, 1254-1255, (1981); 623, 1381 (Marshall, dissenting). "it commonplace specific'' sum Articles "governs general'' Morales Trans World Airlines, Inc., 504 374, 384, 112 2031, 2037, 119 157 (1992). 32 argues minimum, renders equivocal, confronted ambiguity adopt reading favors Carpenter Shaw, 280 363, 367, 121, 122-123, 74 478 (1930). principle according not, license disregard clear expressions intent.'' 447, 1094; Carolina Catawba 498, 506, 2039, 2044, 490 previous decisions, precise contained like conclusion case. C 33 Both seek positions two Act: Upon ratification, added sixteenth thirty-sixth Congressional purposes laws 319. "school clause'' parallels enabling act admitting Union, grants 36 every exempts "until extinguished 22, 1889, 679. considering ceding discerned "thereby making available sections.''' 1370. specifying application superfluous As natural 16th 36th employed "for purposes,''' "implies presence absence civil criminal remainder lands.'' 446, 33, 1094, 33. agree somewhat counsels terminated. "as may occupied agency, purposes.'' virtually identical [i]t difficult imagine why anticipate 35 position persuasively prohibits offering "intoxicating liquors'' "any sold comprising treaty,'' 318, signaling recommends "fix penalty violation effective preventing introduction intoxicants reservation,'' Report, suggest conclude, country.''' enacted prohibiting reservations, Cohen 306-307, [w]e assume passes legislation,'' Miles Apex Marine Corp., 498 32, 111 317, 325, 275 (1990). Reservation,'' 6-7 (emphasis added), ratification Perrin 232 478, 387, 58 691 (1914), implied lost applying "ceded formerly Reservation.'' 480, reaffirm provisions, attest III perceive note contemporary context, trends. Even expression text unequivocal derived diminished. 1166-1167. "manner negotiated'' Reports Congress'' appointed Commission, he charged [Tribe] lands'' exchanged "relinquishment'' provide income Instructions (July 98-99. confirm surrendering character. J.C. Adams once Father,'' "assist citizens nation.'' 48. strongly reconception admonished Tribe: 38 "This proclaims old time conditions civilization resistless ocean, choice accept methods destroyed it. To requires 39 "You great powerful abilities energies directed harmony surrounded you, wave swept unprepared new became weak. [Y]ou life wholly. You break barriers invite man elements civilization, young men opportunities fathers old.'' 17, 81. Cole's vivid entreaty "break barriers'' reminiscent "picturesque'' "pull nails'' outside Uintah 417, 968-969. signaled dissolved They observed severalty land-the last bond assisted estate-their interests thing past.'' 19. And, letter Chairman chiefs indicated concurred impact. urged explaining "want[ed] observed,'' desirable "keep relation obstacle hindrance advancement civilization.'' Misc. 134, 41 Siletz, Perce, cessions restore "public domain,'' 53 Cong. Rec. 6425 (June 16, 1894) (remarks Rep. McCrae); 6426 Hermann), 418, 969; 475, 1168-1169. appears annual released just Annual (Sept. 14, 1894), excerpted 450-452 (noting "some 880,000 domain''). 42 declared "ceded, sold, relinquished, [its] first article Treaty].'' (May 1895), 453. substantially unambiguous, contemporaneous, Executive, disestablishment.'' 1896 example, refers "homestead settlers discusses "former'' H.R.Rep. 100, 54th 1st (1896). From hearings Gaming Regulatory nearly century later, occasionally, invariably, referred Reservation.''5 often observed, views hazardous inferring one.'' Philadelphia Nat. Bank, 374 321, 348-349, 83 1715, 1733, 915 (1963). scores documents maps marshaled contradict interpretive value.6 linger materials utilized convenient geographical reflected statement. "reveals consistent, dominant, question,'' "carries force'' 1373, 27; 1170 (finding "rife contradictions inconsistencies'' "of help either side''). 44 "Where flooded long character, acknowledged de facto, jure, occurred.'' final least simple reason: Every necessarily resulted surge degraded character'' yet repeatedly affected 468-469, 1164-1164. does, "one clue expected,'' fewer ten hands, two-thirds municipalities inside law. casino 1991 apparently trend; steadily increased recent years, advent gaming stimulated local economy. reverted Tribal Land History (1995), 545-546. Nonetheless, "predominantly allotments,'' demographics 1167, 45 continuing unchallenged day, holding. acknowledged, "has quite consistently exercised various forms F.3d, 1455, "tribe civil, regulatory, Constitution Bylaws Business Claims Committee, VI, §1. IV 46 ended, guiding philosophy repudiated. communities struggled endured, preserved cultural roots, remained, historic despite present-day "government-to-government relationship §3601, passing believe spoke clearly, [s]ome wish [it] spoken differently cannot remake history.'' 449, 1095. 47 evincing compensation. Contemporaneous conclusion, ambiguous controverts reasoning. us, decline limited, Greger. 970; N.W.2d, 867. *** 49 sum, country, remand proceedings consistent opinion. ordered. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber & Lumber 200 337, 282, 287, 499. part: "Article I. "The hereby cede, aforesaid. II. "In ceded, aforesaid, stipulates six dollars ($600,000), hereinbefore for. ..... VII. addition stipulations preceding articles, Congress, follows: person whose name signed eighteen older date twenty ($20) double eagle, struck year memorial VIII. "Such purposes, required shall, proper office, disposed actual bona fide only. XV. fifty-one Alf. Scully 1864, compensation rate twenty-five ($225) each, aggregating eleven seventy-five ($11,475) just, ninety days (90) paid lawful heirs. XVII. "No intoxicating liquors ever dated April 19th, afterwards Indians. prescribe ratifying XVIII. "Nothing States. And signing made, 1858.'' 314-318. 1980, market value $6.65 $1,337,381.50, "unconscionable grossly inadequate,'' entitled recover difference. 178. explains allowed go forward brief supporting likelihood assertion affect contexts.'' 6. landfill's liner, District's appear academic. EPA waived requirement liner. Agency, 950 F.Supp. 1471, 1482 (D.S.D. 854 (S.D.1997); Thompson, 355 349, 350 (S.D.1984); Williamson, S.D. 512, 515, 211 184 (1973); Wood Jameson, 81 18-19, 130 95, (1964). Pub.L. 100-497, 1988, Subcommittee Native American Natural Resources, 103d (held, record, Fort Randall Casino Hotel Reservation''); 143 S9616 18, 1997) (discussion Marty School "located 135 1656 (1989) (description Andes-Wagner irrigates "Indian-owned Reservation''). 808 (referring "on former Order 5173 (Aug. 1929) (extending 2363 (Apr. 30, 1916) (same); Chairman, (Feb. 1, 1921), 480 (stating "Lake Andes Yankton-Sioux 20, 1930), 481 (discussing "heretofore constituting reservation''); Bureau Census, Commerce, Pub. 1990 CPH-1-43, p. 175 (1991), 527 (listing figures Reservation). highlights 1941 Felix then-acting Solicitor Department Interior, altered "scattered definite 7, 1941, Opinions Relating 1063, 1064 (1979). disavowed ignored determinations agency. 1969 memorandum courts, "diminish[ed] [Yankton] authority.'' Memorandum M-36783 Associate Solicitor, 1969), 518.

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