Legal Document

420 U.S. 194 95 Supreme Court Reporter 944 43 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 129 Alexander Judge ANTOINE et ux., Appellants,v.State of WASHINGTON. Number 73—717. Argued Dec. 16, 1974. Decided Feb. 19, 1975. Syllabus Appellant Indians were convicted state statutory game violations that had allegedly been committed in an area a former Indian reservation the tribe ceded to Government by Agreement made 1891, later ratified and implemented Congress, one whose provisions (Art. 6), relied upon as defense appellants, specified hunting rights common with other persons would not be taken away or abridged. The State Court, upholding lower court's rejection appellants' defense, held Congress was constitutionally empowered inhibit State's exercise its police power legislation ratifying contract, which here party between Executive Branch tribe; any event federal implementing statutes (which did mention Article 6) render laws inapplicable beneficiaries Agreement; 6 merely promise so long it retained land allowed others hunt thereon, also permitted there. Held: 1. must construed light longstanding canon construction wording treaties agreements is their prejudice. Pp. 199-200. 2. Supremacy Clause precludes application since 1891 are 'Laws . Pursuance' Constitution therefore like all 'Treaties made' binding affected States. Nor does fact abolished contract-by-treaty method dealing tribes affect Congress' legislate on problems Indians, including contracts parties. Choate versus Trapp, 224 665, 32 565, 56 L.Ed. 941; Perrin States, 232 478, 34 387, 58 691. 200-204. 3. In pursuant plenary constitutional powers manifested no purpose subjecting conferred regulation, view unqualified ratification qualification those precluded Clause. 204-205. 4. Although free regulate non-Indian area, exempt from control have preserved nothing without legislation, 'an impotent outcome (the) negotiations.' Winans, 198 371, 380, 25 662, 49 1089. 205-206. 82 Wash.2d 440, 511 Pacific Reporter, 2nd 1351, reversed remanded. Mason D. Morisset, Seattle, Wash., for appellants. Joseph Lawrence Coniff, Jr., Olympia, appellee. Mr. Justice BRENNAN delivered opinion Court. 1 husband wife, Indians. They Superior Washington1 offenses possession deer during closed season violation Wash.Rev.Code §§ 77.16.020 77.16.030 (1974).2 occurred September 11, 1971, Ferry County unallotted what once north half Colville Reservation.3 Confederated Tribes northern under congressionally adopted Agreement, dated May 9, 1891. provided expressly 'the right fish lands allotted said shall anywise abridged.'4 Appellants' congressional approval excluded cession exclusive, absolute, unrestricted part Indians' larger portion reservation, thus limiting governmental regulation precluding them 77.16.030. Washington properly rejected this affirmed convictions, 1351 (1973). We noted probable jurisdiction, 417 966, 94 3169, 41 1137 (1974). reverse. 2 * President Grant established original Reservation Order July 2, 1872. became 1889, 26 Statutes-at-Large 1552, next year, Act Aug. 1890, 355, created Commission negotiated Agreement.5 By terms, return benefits included stipulations pay $1,500,000 five installments. become effective, however, only 'from after Congress.' Congressional given series statutes. first statute 1, 1892, 27 62, 'vacated restored (the tract) public domain .,' 'open(ed) (it) settlement ..' second came 14 years later, June 21, 1906, 325, 377—378. That terms 'carr(ied) into effect agreement,' authorized appropriation $1,500,000. Payment effected subsequent enactments 1907 1911, each appropriated $300,000 recited substantially identical language payment 'to Reservation, Washington, opened first, eighteen hundred ninety-two being full sum set aside Treasury twenty-first, nineteen six, agreement ceding date ninth, ninety-one (Emphasis supplied.) 1015, 1050—1051 (1907); 35 70, 96 (1908); 781, 813 (1909); 36 269, 286 (1910); 1058, 1075 (1911).6 3 applied over century Worcester Georgia, Pet. 515, 8 483 (1832). See Kansas 5 Wall. 737, 760, 18 667 (1867); Kagama, 118 375, 1109, 30 228 (1886); Choctaw Nation 119 28, 7 75, 306 380—381, 663—664, 1089 (1905); 675, 569, 50 941 (1912); Menominee Tribe 391 404, 406 n. 88 1705, 1707, 20 697 (1968). supra, case involving statute, stated: 'The construction, instead strict, liberal; doubtful expressions, resolved favor weak defenseless people, who wards nation, dependent wholly protection good faith.' U.S., at 569. Seminole 316 286, 296, 62 1049, 1054, 86 1480 (1942); Morton Ruiz, 415 199, 236, 1055, 1075, 39 270 Thus, even if there doubt, none, words '(t)o carry (1891) 1906 Act, 'ratifying 1907—1911 laws, 6, require we construe having article. II 4 admitted statehood two earlier, Agreement. relies attempt distinction purposes Clause7 result contract treaty concurrence two-thirds Senate, II, § cl. passed House Senate. states '(o)nce ratified, becomes supreme law land' (emphasis supplied), but mere enforceable 'only against it,' 'not (and) land.' Wash.2d, 444, 451, P.2d, 1354, 1358. grounds attempted do clearly emerge opinion. states, however: enacted implementation they within enact Id., context discussion take mean party. fallacy proposition legislated '(Law) and, therefore, 'all Treaties made,' seems find support that, sovereign independent nations. 1354. Twenty 1871, 16 544, 566, forbidden thereafter recognition nations nations, abrogated tribes.8 1871 resulted opposition Representatives practical exclusion policy role affairs. For nearly arrangements 'by Advice Consent Senate,' money out these treaties, voice development substantive reflected them. resentment 1867 repealing allowing President, Secretary Interior, commissioner affairs enter tribes,' Mar. 29, 1867, 15 7, repealed few months 20, 18. After further unsuccessful attempts field policy, refused grant funds new treaties. Department Federal Law 211 (1958). Finally, Senate capitulated joined passage rider Appropriation 1871. Law, 138.9 This meant more, relations governed Acts treaty. Elk Wilkins, 112 94, 41, 28 643 (1884); re Heff, 197 488, 506, 848 (1905). change way legislating Several decisions settled proposition. (1912), tax exemptions contained 1897 Oklahoma, agreement. 691 (1914), enforced clause intoxicating liquor should sold South Dakota relinquished although contention sale liquors rested exclusively State. Rather, because empowered, when securing State, prohibit intoxicants lands, 'it follows possesses exclusive subject prohibition supreme.' 483, S.Ct., 389. Dick 208 340, 399, 52 520 (1908). These sustained 'plenary deal special (that) drawn both explicitly implicitly itself. I, 8, 3, provides 'regulate Commerce Tribes,' thus, extent, singles proper separate legislation.' Mancari, 535, 551—552, 2474, 290 (1974); see 270. Once law, land. could terminated conditions never made. Mattz Arnett, 412 481, 93 2245, 37 92 Choate, Perrin, Dick, settle constituted provisions, Constitution, land, 'superior paramount authority limits tribes.' 353, 403.10 III holds cannot 'make reference provision appellants.' reasons: '(I)f thought constitute abridgement, express inserted, consent sought obtained.' 448, 1357. reasoning fatally flawed. inquiry whether consenting appellants acquired federally guaranteed Plainly such rights. exercised protected enacting No found legislative history. unqualifiedly, effect' 'ratif(ied)' explicit abridged.' force Clause, neither nor required achieve result. IV 9 construes 449—450, 1357—1358. But enjoyed 'in persons,' interpretation Clause's preclusion qualifying regulation. Non-Indians are, course, rights, remains fishing. else legislation. consistency prejudice makes out-congressional expression, acts negotiations convention, seemed more give word more.' 380; 664, 1089; Puyallup Game (Puyallup I), 392, 397—398, 1725, 1728, 689 Winans involved reserved taking usual accustomed places, citizens Territory.' 378, 663. & N Immigration Nationality Decisions considered '(t)he fish, stations, secured Territory 395, 1726. 'may, qualified 398, 1728; 384, 662. presents stronger flat 'shall V 10 although, 'may manner fishing (and hunting), size take, restriction commercial may regulated interest conservation, meets appropriate standards discriminate Indians.' 'appropriate standards' requirement means demonstrate reasonable necessary conservation measure, Dept. Tribe, 414 44, 330, 38 254 (1973); Tulee 315 681, 684, 862, 864, 1115 (1942), conservation. 11 amicus curiae invites announce restrictions 'cannot abridge State's) demonstrating compelling need' Brief Amicus Curiae 16. occasion address question. has argued, let alone established, applying ban out-of-season question useful deer. Hunt 278 96, 38, 73 200 (1928).11 12 judgment sustaining convictions reversed, remanded proceedings inconsistent 13 It ordered. Judgment DOUGLAS, concurring. agree together putting umbrella 17 1872 Grant, Order,1 known Tribes. 1890,2 appointed negotiate willing dispose On entered latter right, title, claim in' tract constituting approximately reservation. (Italics added.) 1892 restoring opening settlement.3 promised cash hunt. Therefore agitation action Congress. succeeding years, eventually acted, authorizing appropriating installments.4 Each essentially same, $300,000: 19 'In residing million thousand acres Act), approved ..'5 practice making ended.6 Yet Laws States' well Treaties' covered VI, recently And (1914). 21 pressures live up great discussed S.Rep.No.2561, 59th Cong., 1st Sess., 134—140 (1906). Would stand 'Agreement' 1891? head Mark Atlantic Fullerton, 1904 Chief Washington. He stated his views: 22 'I can understand why just sacred awarded most solemn When gave forever title absolute band ever land; though exchange forced one, yet was, promise, believe, honor bound respect protect accordingly. Legally, difference compensation Puyallup, Wyakimas, Nez Perces reservations taken, questioned; morally, certainly hard make distinction. 23 'It my transaction somewhat warped judgment, recall impassioned appeals some aged members remnant bands, calling people heads sign offered ample, ground last heritage tie earth, help feeling bitterness remember Government, whom represented honorable, took solace compensation.'7 24 'right plainly covers homesteaders, 'right' contains exception. As clear—the Solicitor General says, 'strong language.' rights—in case, rights—on equal footing inhabitants had. 'This nation our Game, A grants conditioned State,' 1729. measures, applicable all, available id., 398—403, 1728—1730, discrimination measures permissible, 48, 333, tendered here. record devoid findings needs methods. boldly claims exact license hunters qualifies granted irrespective need. comes non-Indians Lacoste Conservation, 263 545, 549, 44 186, 187, 68 437 (1924). 'rights' quite different. An effort restrict tracts private speaks tract, ultimate disposition several parts it. strain implied exception parcels ended ownership. general rule governing apt here: faith. recognized, exception, than Whether different contest owner need reached. issue impose regulatory restraint bestowed Such assertion fall reason 29 REHNQUIST, STEWART joins, dissenting. Court's conclusion, ante, 947, '(c)ongressional given' 31 specifies 'Laws' 'Treaties' land,' Thing Contrary notwithstanding.' If containing customary respecting seasons hunted, invalid virtue either Concededly Commissioners treaty; intended such, earlier power. Washington's refers us monetary Colvilles termination following years. There is, syllable about fair say member voting remotest idea, careful readings, preserve 'carrying out' appropriations described 'ratifying' concludes articles 33 three earner settling legislatively ratify accomplished, 'legislation Ante, 204. undoubtedly critical so. Far supporting reached U,.s. (1908), show how virtually precedent is. cases involve representing bands tribes. thereby law. contrast accomplished cases, acted indeed. Atoka Dawes Chickasaw representatives 1897. Curtis 495, relevant follows: 'That Five Civilized commissions twenty-third day April, ninety-seven, herein amended, hereby confirmed 505. section then proceeds haec verba text contrary Sioux December 1892. 15, 1894, 314, used much same employed Choate: 'Sec. 12. agreement, accepted, confirmed.' 40 Then followed, itself, verba. Likewise incorporation today treats simply another instances elevate done little attention issue, actually Whereas manifest evidenced present scraps language, ambiguous best, contain think consideration materials, actual occasions spoke, rather elided excerpts 6. 42 consisted lying Okanogan Columbia Rivers 1890 'negotiate of, open white settlement.' 336, 355. year met executed 'go existed 1872, vacated. surrender relinquishment quoted exemption presented 52d ratification, body adamantly approve characterization 'first' bit historical legerdemain. Doubts expressed order, again highlighting disagreement Legislative Branches best 45 vacated 'notwithstanding executive order proceeding whereby apart Indians,' declared entry proclamation disposed Washington.' Stat 63. Section tracked providing entitled select 80 him severalty. occupy reside remaining parts, chose preference receiving allotment. concerned various school mill sites portion. 46 conspicuous absence $1,500,000, whatsoever Agreement's immunity taxation. entirety provided, 8: 47 recognizing ownership still use occupancy.' 64. 48 signature Harrison. Members Federated justifiably alarmed bargained. 14-year campaign, detail report Butler Vale Ct.Cl. 497 obtained relief. relief embodied amount adoption description efforts obtain relief, resulted, demonstrates whatever ancillary accorded Claims opinion, appear added authenticity contemporaneity, describe events: pursuance act thrown settlement; made, complied until 1906. anxious justly, solicitous. Their adverse Committee Affairs, per directly challenged positive denial 51 May, Levi Maish, Pennsylvania, Hugh Haw. Hawai‘i KFH45 A2 Gordon, attorneys counselors prosecute receive therefor cent might recover. Nothing Maish-Gordon contract. Notwithstanding expiration, number rendered efficient services permission committees thereof, final compliance covering mentioned agreement.' Ct.Cl., 514—515 added). formed basis suit described, press claim. It, too, recites concern directed Government's failure compensate reservation: 53 "And whereas principal dollars ($1,500,000) .;' 54 failed comply stipulated lands; 55 'And implicit trust faith now earnestly protest agreement; ". secure presentation prosecution Maish Gordon counsel collection claims." 502 57 Similarly, letter Chairman Commission, Page 199 focused solely provide compensation.' friends, attorneys, ultimately acceded compensation. Appropriations With Tribes, 59 'To bearing ninety-one, benefit times (1,500,000) ninety-two, 60 surely major Colvilles, liberal read authorize effectuate article Not exemption, 61 1907, four annual Acts. appropriation, goes provide: twenty-first 1050—1051. 63 Thus rests decision pronouncements. reciting authorization 'carry cover referring Acts, mechanism expends funds, concluded utterly unrelated indication compensation, affecting determined returned domain. 64 far reasoned materials begin placing Executive/Legislative dispute authority. signing indicated doubt justified setting conveyed title. willingness surrender, agreed return. battle around halls sought. Sympathy plight lead distort face response demands enactment entire 65 affirm appellant enrolled Reservation. Colville, Columbia, San Poil, Okanogan, Perce, Lake, Spokane, Coeur d'Alene. wife Canadian deal, her distinguishable husband's drew Moreover, appellee conceded oral argument reversal conviction wife's conviction. Tr. Oral Arg. 22. pertinent part: unlawful person animals respective therefor. 'Any hunts guilty gross misdemeanor animal foregoing 'bounded east south River, west Okanagan British possessions.' C. Kappler, 916 (2d ed. 1904); Seymour Superintendent, 358 351, 354, 424, 426, 346 (1962). full: aforesaid improvements thereon subject, limitations prescribed taxation purpose, national, municipal; enjoy hindrance freely water courses belonging connected allotted, status southern supra. At residual above composed Fullerton Durfur Payne. Nespelem, discuss 'a .' During days, Ko-Mo-Del-Kiah, strongly opposed Antoine, great-grandfather Moses, Joseph, favored proposed fair. meeting Marcus Barnaby, Lake sale. Minutes Concerning Negotiation Sale, National Archives Document 21167. delay occasioned initial reluctance certain changes, Cong.Rec. 3840 (1892), doubts raised Order. S.Rep.No.664, (1892). Interior reported unfounded. 137, 139 bill replaced lump $1.25 acre, paid sales homesteading. disagreed, paid, preserved. Many protests thereupon 139, letter, 140, said: many finally bore fruit installment lawyers District Columbia. recovered judgments Claims. provides: Pursuance thereof; Authority Land; Judges every thereby, codified Code KF62 71, 'No territory acknowledged recognized tribe, obligation lawfully prior March invalidated impaired.' Former Commissioner Affairs Walker summarized struggle insolence conscious strength, growing jealousy towards prerogative—arrogated Senate—of determining, connection executive, questions committing incidentally pecuniary obligations limited own discretion, inquiry, led adoption, severe parliamentary struggles, declaration 'hereafter power, treaty." citing 211—212, Walker, Question (1874). Rev.Code 37.12.060, assumes jurisdiction deprive 'Nothing chapter band, community privilege, afforded treaty, grants, hunting, trapping, control, licensing, thereof.' Appellants apparently fenced property. 'Counsel owners fence exclude hunters. Nevertheless maintain abridgment 1356 entitlement posted raise serious case. Exec. 1872; 1904). 62. appears 1050—1051; 813; 1075. 71: 140

Classification Label: 1