sub hamburg b/103635 american indian law: native …
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SUB Hamburg
B/103635
AMERICAN INDIAN LAW:NATIVE NATIONS ANDTHE FEDERAL SYSTEM
CASES AND MATERIALS
Sixth Edition
Carole E. GoldbergJonathan D. Varat Professor of LawUCLA School of Law
Rebecca TsosieProfessor of Law and Willard H. Pedrick Distinguished Research ScholarSandra Day O'Connor College of LawArizona State University
Kevin K. WashburnDean and Professor of LawUniversity of New Mexico School of Law
Elizabeth Rodke WashburnMorris K. Udall and Stewart L. Udall Foundation
f LexisNexis*
TABLE OF CONTENTSChapter 1 HISTORIC AND MODERN CONCEPTIONS OF THE
TRIBAL-FEDERAL RELATIONSHIP 1
A. HISTORIC MODELS OF TRIBAL-FEDERAL RELATIONS 1
1. Introduction 1
2. Treaty Models of the Political Relationship between Indian Tribes and the
Federal Government 4
a. International Self-Determination Model 4
Treaty of Fort Pitt with the Delaware Nation 4
b. Treaty Federalism Model 5
Treaty of Hopewell with the Cherokee Nation 6
Treaty of New Echota with the Cherokee Nation 7
c. Colonial Federalism Model 7
Treaty of Fort Sumner with the Navajo Nation 8
NOTES ON MODELS OF TRIBAL-FEDERAL RELATIONS 8
B. HISTORY OF TRIBAL-FEDERAL RELATIONS 13
1. Introductory Perspectives 13
Cornplanter (Seneca), Speech Delivered to President George
Washington at Fort Stanwix, 1790 13
Tecumseh (Shawnee), Speech Delivered at Vincennes, Indiana,
August 12, 1810 13
2. The Uneven History of Federal Indian Policy: Politics, Assimilation, and
Autonomy 14
a. The Colonial Period (1492-1776) 15
b. The Confederation Period (1776-1789) 17
c. The Trade and Intercourse Act Era (1789-1835) 18
d. The Removal Period (1835-1861) 20
e. The Reservation Policy (1861-1887) 22
f. The Allotment Period and Forced Assimilation (1871-1934) 24
g. The Indian Reorganization Act Period (1934-1940) 30
h. The Termination Era (1940-1962) 33
i. The Self-Determination Era (1962-1980) 35
j . Government-to-Government Relations and Decreases in Federal Indian
Program Funding (1980-present) 39
k. History, Federal Indian Policy, and Statutory Interpretation 43C. ORIGINS OF THE MODELS: FOUNDATIONAL UNITED STATES
SUPREME COURT DECISIONS AND THE TRIBAL RESPONSE 441. Property, Sovereignty, and Claims of Conquest: The Case of Johnson v.
M'Intosh 44
xix
TABLE OF CONTENTSSpeech of Corn Tassel (Cherokee at Hopewell Treaty Negotiations) . 44
Johnson v. M'Intosh 45
NOTES ON JOHNSON v. M'INTOSH 492. Sovereignty Revisited: The Cherokee Cases 53
Cherokee Nation v. Georgia 54NOTES 58Worcester v. Georgia 61
NOTES 71NOTE ON THE RHETORIC OF EXCLUSION 76
D. PROCESSING MODELS OF TRIBAL-FEDERAL RELATIONS ASLEGAL DOCTRINE: NINETEENTH AND EARLY TWENTIETHCENTURY ILLUSTRATIONS 77
1. Treaties Between Nations _. 78Ex Parte Crow Dog 79NOTES 82
2. The Rise of Federal Plenary Power 86
United States v. Kagama 86NOTES ON KAGAMA 89
United States v. Clapox 92NOTES 94Lone Wolfv. Hitchcock 95NOTES ON LONE WOLF 97United States v. Sandoval 100NOTES ON SANDOVAL 103
E. INTERNATIONAL HUMAN RIGHTS LAW AND INDIGENOUSPEOPLES' RIGHTS 107
1. International Models of Political Self-Governance 108NOTES 109
2. The Institutional Framework for International Human Rights Law . . . . 112NOTES 114
3. Comparative Perspectives on Indigenous Rights 118
Chapter 2 RECURRING ISSUES IN TRIBAL-FEDERAL LEGALRELATIONS 123
A. FUNDAMENTAL DEFINITIONAL QUESTIONS 1241. What is an Indian Tribe or Nation? 124
a. Tribal vs. Federal Definitions 124b. Definitions of "Tribe" under Federal Statutes 126c. Achieving Federal Recognition 127d. The Politics of Federal Recognition 132
Testimony of Kevin Gover, Professor of Law, Arizona StateUniversity College of Law 133
xx
TABLE OF CONTENTS2. Who is an Indian? 134
a. Traditional Tribal Views of Status and Community Membership . . . 134
b. Federal Definitions 137
P.S. Deloria & Robert Laurence, What's an Indian? A
Conversation About Law School Admissions, Indian Tribal
Sovereignty, and Affirmative Action 140
NOTES ON DEFINING WHO IS AN "INDIAN" 142
3. What Is the Extent of Tribal Territory, or Indian Country? 144a. Indian Nations' Relationships to the Land 144b. Defining "Indian Country" 145
i. Formal and Informal Reservations 146United States v. John 146NOTE 148
ii. Dependent Indian Communities 149
Alaska v. Native Village ofVenetie 150NOTES ON VENETIE AND "DEPENDENT INDIAN
COMMUNITIES" 156iii. Allotted Land Outside Reservations 157iv. Determining the Boundaries of an Indian Reservation 158
Solem v. Bartlett 159NOTES ON DETERMINING CONGRESSIONAL INTENT
TO DIMINISH BOUNDARIES 169B. EQUAL PROTECTION QUESTIONS POSED BY INDIAN
LEGISLATION 174
1. Indian Classifications as Political Rather Than Racial 176Morton v. Mancari 176NOTES ON MORTON v. MANCARI 183
United States v. Antelope 185NOTES ON TREATING INDIAN CLASSIFICATIONS ASPOLITICAL RATHER THAN RACIAL 187
2. Indians as a Constitutional Racial Classification? 190AFGE v. United States 191NOTE ON INDIANS AS A CONSTITUTIONAL RACIAL
CLASSIFICATION 192
3. When Might Equal Protection's "Strict Scrutiny" Invalidate FederalIndian Legislation? 193
Babbitt v. Williams 194Rice v. Cayetano 196NOTES ON TREATING INDIANS AS A SUSPECT RACIALCLASSIFICATION 200
C. CANONS OF CONSTRUCTION FOR INTERPRETING THE TRIBAL-FEDERAL LEGAL RELATIONSHIP 202
xxi
TABLE OF CONTENTSMinnesota v. Mille Lacs Band of Chippewa Indians 203
San Manuel Indian Bingo and Casino v. N.L.R.B 210
NOTES ON INDIAN LAW CANONS OF CONSTRUCTION 218
Chapter 3 TRIBAL SOVEREIGNTY AND ITS EXERCISE 225
A. TRIBAL GOVERNING AUTHORITY 227
1. Inherent Tribal Sovereignty 227
Talton v. Mayes 227
United States v. Wheeler 229
NOTES 234
Merrion v. Jicarilla Apache Tribe 236
NOTES ON EXCLUSION AND TRIBAL GOVERNING
AUTHORITY 244
2. Federally Supported Tribal Authority 246
United States v. Mazurie 246
NOTE ON VARIETIES OF CONGRESSIONAL SUPPORT FOR
THE EXERCISE OF TRIBAL AUTHORITY 249
Bugenig v. Hoopa Valley Tribe 250
NOTE ON BUGENIG 255
3. Federal Judicial and Legislative Responses to Inherent Tribal
Sovereignty 255
a. Federal Judicial Plenary Power Purporting to Preempt Tribal
Sovereignty 255
Oliphant v. Suquamish Indian Tribe 257
Duro v. Reina 266
NOTES '.'.' 273
Montana v. United States 281
NOTES 286
Strate v. A-l Contractors 288
NOTES 298
Nevada v. Hicks 301
NOTES ON HICKS 323
Plains Commerce Bank v. Long Family Land & Cattle Co., Inc. . 326
NOTE 336
b. Congressional Acknowledgment of Inherent Tribal Sovereignty . . . . 337
United States v. Lara 337
NOTES ON LARA 352B. INTERJURISDICTIONAL RESPECT AND COOPERATION:
EXTRADITION, FULL FAITH AND CREDIT, AND COMITY 355Eberhard v. Eberhard 357Wilson v. Marchington 369
xxii
TABLE OF CONTENTSNOTES ON FULL FAITH & CREDIT AND COMITY 376
C. MODERN TRIBAL GOVERNMENTS 382
1. Tribal Constitutions and Courts 382
a. Emergence of Modern Written Tribal Constitutions 383
b. Types of Tribal Courts 394
2. Tribal Law Provisions on Jurisdiction 400
3. Sources of Law in Tribal Courts 401
NOTES ON CUSTOMARY LAW 403
4. Tribal Restrictions on Tribal Governments 405
a. Tribal Provisions for Federal Approval 405
b. Tribal Bills of Rights 407
Winnebago Tribe of Nebraska v. Bigfire 408
NOTES 412
5. Federal Restrictions on Tribal Governments: The Indian Civil Rights
Act of 1968 412
Santa Clara Pueblo v. Martinez ; 413
NOTES 421
6. Federal Conceptions of Tribal Taxing and Regulatory Power 425
Kerr-mcgee v. Navajo Tribe 425
Atkinson Trading Company, Inc. v. Shirley 428
NOTES ON TRIBAL TAXING JURISDICTION 434
Brendale v. Confederated Tribes & Bands of the Yakima Indian
Nation 437
NOTES ON TRIBAL REGULATORY POWER 440
D. TRIBAL SOVEREIGN IMMUNITY 443
1. In Federal and State Courts 444
Oklahoma Tax Commission v. Citizen Band Potawatomi Indian
Tribe Of Oklahoma 444Kiowa Tribe of Oklahoma v. Manufacturing Technologies, Inc. . . . AA1
NOTES ON TRIBAL SOVEREIGN IMMUNITY IN FEDERALAND STATE COURTS 451C & L Enterprises, Inc. v. Citizen Band Potawatomi Indian Tribe of
Oklahoma 455NOTES ON WAIVER OF TRIBAL SOVEREIGN IMMUNITY . . 461
2. In Tribal Courts 467Charbonneau v. St. Paul Insurance Company 467NOTE ON SCOPE OF SOVEREIGNIMMUNITY IN TRIBALCOURT . 472
E. TRIBAL POWER TO DEFINE MEMBERSHIP 472
Poodry v. Tonawanda Band of Seneca Indians 475NOTES ON TRIBAL MEMBERSHIP/CITIZENSHIP AND
xxiii
TABLE OF CONTENTSBANISHMENT 482
Chapter 4 FEDERAL & STATE AUTHORITY IN INDIANCOUNTRY 489
A. THE FEDERAL GOVERNMENT'S PLENARY POWER OVER INDIANSAND INDIAN COUNTRY 491
1. Sources and Scope of the Power 491
United States v. John 494
NOTES 498
Delaware Tribal Business Committee v. Weeks 501
NOTES ON THE BILL OF RIGHTS AND PLENARY POWER . . 503
2. Non-Constitutional Limitations on Legislative Plenary Power: Canons
of Construction, Treaty Abrogation & Political Accountability 505
United States v. Dion 505
NOTES ON TREATY ABROGATION 511
3. Criminal Jurisdiction as an Illustration of the Exercise of Federal Power
Over Indian Affairs 517
a. Introduction 517
b. Federal Criminal Jurisdiction Statutes 519
NOTE ON JUVENILE OFFENDERS AND FEDERAL
JURISDICTION 527
c. Implications of Federal Criminal Jurisdiction Statutes for Tribal
Jurisdiction 528
NOTES ON CONCURRENT TRIBAL JURISDICTION OVER
"MAJOR" CRIMES & DOUBLE JEOPARDY 531
Walker v. Rushing 535NOTES ON CONCURRENT TRIBAL CRIMINALJURISDICTION UNDER PUBLIC LAW 280 AND LIKESTATUTES 537
d. Criminal Jurisdiction, Policing and Extradition 539e. Problems : : 543
4. Federal Civil Jurisdiction 547a. Federal Jurisdiction to Tax and Regulate 547
Squire v. Capoeman 547Lazore v. Commissioner of Internal Revenue 551NOTES ON FEDERAL TAXATION OF TRIBES & TRIBAL
• MEMBERS • 556b. Federal Civil Adjudicative Jurisdiction 558
County ofOneida v. Oneida Indian Nation 558National Farmers Union Insurance Cos. v. Crow Tribe 561Iowa Mutual Insurance Co. v. LaPlante 564
xxiv
TABLE OF CONTENTSNOTES ON FEDERAL CIVIL JURISDICTION INVOLVING
INDIAN COUNTRY 568
5. Federal Executive Power & the Executive Trust Responsibility 579
a. The Bureau of Indian Affairs & the Administration of Federal Indian
Programs 579
United States v. Eberhardt 580
NOTES ON STATUTORY AUTHORITY FOR
ADMINISTRATIVE ACTION 581
b. The Trust Relationship 583
United States v. Mitchell 586
NOTES ON TRUST MISMANAGEMENT CLAIMS 594
United States v. White Mountain Apache Tribe 598
United States v. Navajo Nation 600
NOTE ON CURRENT MISMANAGEMENT CLAIMS 604
Cobell v. Norton 605
NOTE ON FURTHER DEVELOPMENTS IN THE COBELL
LITIGATION 612
Cobell v. Salazar 616
NOTE ON SETTLEMENT OF THE COBELL LITIGATION . . . 618
c. Conflicts of Interest Between Government Departments and the
Prospect of Equitable Relief 618
Nevada v. United States 619
NOTES ON INJUNCTIVE ENFORCEMENT OF THE TRUST . 630
B. STATE AUTHORITY IN INDIAN COUNTRY 634
1. Tribal Expectations 634
Cherokee Council, 1830 --. 634
George W. Harkins (Choctaw), Farewell Letter to the AmericanPeople, 1832 634Treaty With the Creek and Seminole Tribes 634NOTE ON TRIBAL EXPECTATIONS REGARDING STATEAUTHORITY 635
2. Early Approaches to Inherent State Power in Indian Country 636
NOTES 6363. Congressionally Authorized State Power in Indian Country 6424. The Modern Era 646
a. State Adjudicative Jurisdiction 648Williams v. Lee 648NOTES 650Joe v. Marcum 655NOTE ON ENFORCEMENT OF JUDGMENTS IN INDIAN
COUNTRY 659
XXV
TABLE OF CONTENTSTeague v. Bad River Band of Lake Superior Tribe of Chippewa
Indians 660
NOTES 669
b. State Taxing and Regulatory Jurisdiction 671
Washington v. Confederated Tribes of the Colville Reservation . . 671
NOTES 680
Central Machinery Co. v. Arizona State Tax Commission 688
White Mountain Apache Tribe v. Bracker 691
Cotton Petroleum Corp. v. New Mexico 699
NOTES ON STATE TAXING JURISDICTION 715
New Mexico v. Mescalero Apache Tribe 722
California v. Cabazon Band of Mission Indians 731
NOTES ON STATE JURISDICTION TO REGULATE 738
Mescalero Apache Tribe v. Jones 740
NOTES 742
Oklahoma Tax Commission v. Chickasaw Nation 747
NOTE 752
Chapter 5 JURISDICTION UNDER SPECIAL STATUTES 755
A. PUBLIC LAW 280 AND RELATED STATUTES 7571. Text and History 757
Carole E. Goldberg, Public Law 280: The Limits of State
Jurisdiction Over Reservation Indians 7582. Acquiring and Exercising State Jurisdiction Under Public Law 280 . . . 766
Bryan v. Itasca County 766
NOTES 7713. Concurrent Tribal and State Jurisdiction under Public Law 280 778
NOTES 7784. Practical Effects and the Future of Public Law 280 781
Carole Goldberg & Duane Champagne, Executive Summary, Final
Report: Law Enforcement andCriminal Justice Under Public Law . 782NOTE ON THE FUTURE OF PUBLIC LAW 280 784
B. ALASKA 7841. The Alaska Native Claims Settlement Act of 1971 (ANCSA) 786
NOTES ON THE ALASKA NATIVECLAIMS SETTLEMENTACT 787
2. Indian Country and Tribal Government Jurisdiction 7883. Alaska Native Subsistence Rights 790
C. HAWAII 7921. The Hawaiian Homes Commission Act of 1921 7932. The Hawaii State Constitution and the 1982 Amendments 795
xxvi
TABLE OF CONTENTS3. Ceded Lands Controversy 796
Hawaii v. Office of Hawaiian Affairs 797
4. Native Hawaiian Political Status and Legal Rights 802
NOTES ON NATIVE HAWAIIAN SOVEREIGNTY 805
D. INDIAN CHILD WELFARE ACT 806
1. Introduction 806
2. Jurisdiction and "Domicile" Under ICWA 808
Mississippi Band of Choctaw Indians v. Holyfield 808
NOTES 823
3. "Indian Child" Under ICWA 827
In ReA.J.S. 827
NOTES 834
4. "Good Cause" and Transfer of ICWA Cases from State to Tribal
Court 840
Bureau of Indian Affairs Guidelines for State Courts Indian Child
Custody Proceedings 840
NOTES ON TRANSFER OF CASES FROM STATE TO TRIBAL
COURT 842
5. ICWA and the Adoption and Safe Families Act 846
E. INDIAN GAMING REGULATORY ACT 847
1. The Jurisdictional Regime for Tribal Gaming 847
Kevin K. Washburn, Recurring Problems in Indian Gaming 848
Rumsey Indian Rancheria of Wintun Indians v. Wilson 851
Seminole Tribe of Florida v. Florida 860
NOTES 864
2. Business Disputes Related to Gaming 874
Bruce H. Lien Company v. Three Affiliated Tribes 875
NOTES ON TRIBAL GAMING DISPUTES 877
F. FEDERAL INDIAN LIQUOR CONTROL STATUTES 879
Rice v. Rehner 879
NOTES ON FEDERAL INDIAN LIQUOR CONTROL LAWS 884
G. FEDERAL ENVIRONMENTAL LAWS 886
1. Introduction: Tribal Perspectives on Economic Development and the
Environment 886John Echohawk, We Are Sovereign Peoples 886
2. The Basic Framework of Federal Environmental Law and Policy . . . . 888a. EPA's Indian Policy 889
EPA Policy for the Administration of Environmental Programs
on Indian Reservations 889b. Implications for Application of State Environmental Laws 891
Washington Department of Ecology v. EPA 891
xxvii
TABLE OF CONTENTSNOTES 894
3. Federal Laws Regulating Tribal Activities 895
a. Environmental Review Requirements 896
Davis v. Morton 896
NOTES ON FEDERAL ENVIRONMENTAL REVIEW
REQUIREMENTS 899
b. The Endangered Species Act in Indian Country 903
Secretarial Order #3206 904
NOTES ON TRIBES AND THE ENDANGERED SPECIES
ACT 907
4. Federal Protection for Tribal Environments and Economic Activities
from Non-Indian Economic Development 908
Wisconsin v. Environmental Protection Agency 908
NOTES ON TRIBAL ENVIRONMENTAL CONTROLS
AFFECTING OFF-RESERVATION DEVELOPMENT 914
H. INTERGOVERNMENTAL AGREEMENTS 916
1. Why Enter into Intergovernmental Agreements? 916
National Congress of American Indians & National Conferenceof State Legislatures, Government to Government: Models of
Cooperation Between States and Tribes 917Interlocal Agreement for Deputization and Mutual Law EnforcementAssistance Between the Little Traverse Bay Bands of Odawa Indiansand the County of Emmet [Michigan] 919Cigarette Tax Contract Between the Squaxin Island Tribe and the
State of Washington 924NOTES ON TRIBAL-STATE INTERGOVERNMENTALAGREEMENTS 932
2. Authority to Enter Into Tribal-State Agreements 935Pueblo of Santa Ana v. Kelly 937
3. Enforcement Issues 938
Chapter 6 TRIBAL RIGHTS TO LAND & CULTURALRESOURCES 941
A. TRIBAL PROPERTY INTERESTS 943
1. Aboriginal Title 943United States ex rel. Hualpai Indians v. Santa Fe Pacific
Railroad Co 944State of Vermont v. Elliott 949NOTES ON ABORIGINAL TITLE 955
Tee-Hit-Ton Indians v. United States 960Nell Jessup Newton, At the Whim of the Sovereign: Aboriginal Title
xxviii
TABLE OF CONTENTSReconsidered 967
NOTES 973
2. Recognized Title 975
United States v. Shoshone Tribe of Indians 975
United States v. Sioux Nation 978
NOTES ON RECOGNIZED TITLE 989
3. Executive Order Reservations 994
Sioux Tribe v. United States 995
NOTES 999
4. Placing Indian Land in Trust 1003
Carcieri v. Salazar 1006
NOTES ON LAND-INTO-TRUST AND CARCIERI 1020
5. Land Claims 1022
a. The Indian Claims Commission 1022
United States v. Dann 1024
NOTES ON THE DANN CASE AND THE INDIAN CLAIMS
COMMISSION 1028
b. Claims Under the Nonintercourse Act 1034
County ofOneida v. Oneida Indian Nation 1035
City ofSherrill, N.Y. v. Oneida Indian Nation of New York . . . . 1044
NOTES ON THE ONEIDA LITIGATION AND THE
NONINTERCOURSE ACT 1057
6. Allotted Lands 1063
Northern Cheyenne Tribe v. Hollowbreast 1063
Black Hills Institute of Geological Research v. South Dakota School
of Mines and Technology 1068
NOTES ON ALLOTTED LANDS 1070
Hodel v. Irving 1073Babbitt v. Youpee 1081NOTES ON FRACTIONATED ALLOTMENTS 1083
B. CULTURAL RESOURCES 10871. Sacred Sites & Religious Freedom 1087
Lyng v. Northwest Indian Cemetery Protective Association 1089Employment Division, Department of Human Resources of
Oregon v. Smith 1099
NOTES 11132. Cultural Property 1122
a. Tangible Cultural Property 1122Chilkat Indian Village v. Johnson 1123Chilkat Indian Village, IRA v. Johnson 1125United States v. Corrow 1129
xxix
TABLE OF CONTENTSNOTES ON TANGIBLE CULTURAL PROPERTY 1136
b. Intangible Cultural Property 1138
Rebecca Tsosie, Reclaiming Native Stories: An Essay on Cultural
Appropriation and Cultural Rights 1139
NOTES 1140
3. Protections for Native American Human Remains 1146
a. Exhumation of Human Remains 1148
Charrier v. Bell 1148
NOTES 1152
b. "Repatriation" and "Ownership" of Human Remains Under
NAGPRA 1156
Bonnichsen v. United States 1156
NOTES 1165
Chapter 7 THE OPERATION OF THE RESERVED RIGHTSDOCTRINE: HUNTING, FISHING, AND WATERRIGHTS 1169
A. HUNTING, FISHING, AND FOOD-GATHERING RIGHTS 1171
Aleck Paul (Chippewa), Our Stock of Food & Clothes 1171
1. On-Reservation Rights 1172
Menominee Tribe v. United States 1172
NOTES ON ON-RESERVATION HUNTING & FISHING
RIGHTS 1176
2. Off-Reservation Food-Gathering Rights 1186
United States v. Winans 1189
NOTES ON WINANS & ITS AFTERMATH 1192
Washington v. Washington State Commercial Passenger Fishing
Vessel Association 1197
NOTES ON OFF-RESERVATION FOOD GATHERING
RIGHTS 1209B. COMPETITION FOR CONTROL OF WATER 1219
1. Source, Quantity, and Use of Indian Water Rights 1220Winters v. United States 1220Arizona v. California 1222NOTES ON WINTERS RIGHTS 1224In re General Adjudication of All Rights To Use Water in Gila
River System and Source 1227NOTES ON WINTERS RIGHTS QUANTIFICATION 1235Arizona v. San Carlos Apache Tribe 1248NOTES ON STATE ADJUDICATION OFINDIAN WATERRIGHTS 1259
XXX