_________________________
No. 95-1922
PASSAMAQUODDY TRIBE,
Plaintiff, Appellant,
v.
Defendants, Appellees.
_________________________
_________________________
Before
Circuit Judges.
______________
_________________________
Thomas D. Warren,
_________________
Assistant
Attorney
General,
General, with
whom
Assistant
_________________________
February 9, 1996
_________________________
SELYA,
SELYA,
Circuit Judge.
Circuit Judge.
The
Passamaquoddy Tribe
(the
_____________
Tribe)
sued
(collectively,
to
compel
Maine or
Maine
the
and
the
State) to
governor
recognize its
of
Maine
asserted
25
U.S.C.
2701-2721, 18 U.S.C.
I.
I.
denied relief.
Act,
does not
We affirm.
In order
to put this
appeal into
perspective, it
is
necessary to juxtapose the Gaming Act and the Maine Indian Claims
Settlement
Act of 1980,
25 U.S.C.
Act).
claims
to nearly
two-thirds of
Maine's land
mass.
See Joint
___ _____
649,
651-53,
aff'd, 528
_____
667-69
(D.
Me.)
(reviewing
Tribe
under
federal
auspices.
The
dispute's history),
a settlement of
arrangement
was
designed
to
Tribe
and
the
Penobscot
relationship between
Nation),
and
to
create
unique
See Penobscot
___ _________
464 U.S.
923 (1983).
ratified the
suit.
The Passamaquoddies
provisional pact
and Maine's
and the
legislature followed
6201-6214.
Penobscots
The
the
parties' agreement
henceforth would
and
established the
govern matters
ground rules
of common political
that
concern to
all
Indian land
Penobscots, and
See
___
25 U.S.C.
addition,
claims and
submitted the
1721(b)(4),
hard-won gains.
The
1723(b)
Passamaquoddies, the
&
(c),
1725(a).
the State a
It stated:
provisions
of any
federal
law enacted
Settlement
Act],
for
the
benefit
or tribes or
of
bands
of
In
the
laws of
the
State
of
Maine,
subsequently
enacted
Federal
law
is
_____________________________________________
specifically made applicable within the State
_____________________________________________
of Maine.
________
25 U.S.C.
consideration for
its title to
its agreement:
the Settlement
Act confirmed
recognition of its
federal
for
See 25
___
U.S.C.
1733.
Approximately
Gaming Act.
a three-tiered regulatory
paradigm in respect to
described
layers
these three
S. Ct.
Narragansett
____________
description here.
in Rhode Island v.
_____________
would be pleonastic
We
denied, 115
______
to rehearse that
Class III
outright ban on
must, upon
request
the
of
gaming (and
a federally
recognized
and
it
self-
and conditions
gaming on
under
which the
Indian lands.
See
___
tribe can
25 U.S.C.
introduce Class
2710(d).
III
The statute
states
do
not stall
faith.
The
different
the negotiations
Act
in bad
and
the Gaming
Act
are
vastly
latter has
conduct them
2710(d)(7).
Settlement
in scope.
or
national implications.
Act is
From
the
a political standpoint,
broader in that
it purposes
to
cover
virtually the
entire field
State
concentrates exclusively on a
II.
between the
gambling.
of relationships
II.
Mindful
sponsored
of
the
bandwagon.
It chose
gaming
success
of
enterprise.
to
be
2710(d)(3)(A),
Indian-
a Maine
conducted
on
"Indian
lands,"
sought to add
Stat. Ann.
6205 (authorizing
incremental land
the
25
a designated
tribal lands.
for its
to its inventory of
municipality
Because
the Tribe
Calais,
real estate
scotched
other
aboard the
nascent
meteoric
See
___
U.S.C.
parcel of
30 Me. Rev.
acquisitions).
proposed
casino.
As
boundaries and
lagniappe,
the
state
Calais to
be used
a tribal-state
court
compact under 25
of competent
extended to Maine.
jurisdiction
The
713,
the Gaming
if a
Act
1, codified at
________ __
6205(1)(c).
compact.
2710(d), or (2)
declared that
After
U.S.C.
defendants moved
for judgment
on the
for a
pleadings,
Fed. R. Civ. P. 12(c), asserting that the Gaming Act did not hold
among
other
things
that
the
Gaming
motion.
Act
It contended
reached
Maine,
as
in
within Maine.
Unimpressed
district
by the
Tribe's armada
of
arguments, the
force in Maine
See Passamaquoddy
___ _____________
III.
III.
ANALYSIS
ANALYSIS
A
A
This
interpretation.
case
By
turns
its
possesses
terms, the
narrow margins.
The
Gaming
of
Act, if
See 25
___
U.S.C.
which is federally
question
statutory
taken
in
powers of self-governance.
Consequently, if we were to
the Tribe
on
2703(5).
Gaming Act,
is to give
Samuels,
_______
Tribe, 19
_____
take
into
effect to
113 S.
the legislative
Ct. 1119,
F.3d at 691.
account
legislative enactment,
will.
1122-23 (1993);
See Negonsott
___ _________
Narragansett Indian
___________________
the
tacit
assumptions
v.
that
a court must
underlie
general policies
but
v.
Agler, 280
_____
Massachusetts,
_____________
113
U.S.
379, 383
(1929);
Put simply,
v.
in a vacuum.
See
___
Thinking Machines
_________________
Taking this
section
supra
_____
p.3.
At first
glance, the
does
not dispute
nor could
it
immediately to
1735(b), quoted
conditions precedent
plainly satisfied.
that the
to the
The Tribe
Gaming Act
is a
Indians,
would
of
Indian nations, or
tribes or
bands of
benefit of
Indians, which
Maine."1
25 U.S.C.
section
16(b) provides
statute
unless
______
"applicable
16(b) is
1735(b).
that Maine
Congress
has
In such
will be
"specifically
circumstances,
exempt from
such a
made" the
statute
listen before
weakening the
foundation on which
between Maine
It
and
the settlement
____________________
1Among other
Act, if it
applied, would
preempt various provisions of Maine's criminal law, including 17A Me. Rev. Stat. Ann.
953-954.
the law
to have effect
within Maine,
that
extends to
The
text
of the
Gaming Act
contains
not so
much as
a hint
that
Maine.
Where,
as here,
Congress enacts
a statute
of general
knowledge that a
the
from
to
to alter
bring
Tribe,
_____
about such
19 F.3d
Congress is
at 704
an
decision to omit
alteration.
n.21 (observing
See
___
Narragansett Indian
___________________
that when
an "enacting
indulging" any
other presumption).
The
grounds.
fashion
Tribe's principal
It posits
to
predecessor's
will,
and
constitutional
pale.
534
on constitutional
tantamount
530,
is
rejoinder is
binding a
successor
therefore
careens
in this
Congress
to a
beyond
the
(1962); Reichelderfer
_____________
v.
Quinn,
_____
287
U.S. 315,
318
(1810).
We
from
it
to the Indian
statute fully
Congress
tribes in Maine.
effective in
Congress could
Maine through
the
make such a
use of
explicit
16(b).
Thus,
serves both
section 16(b)
to limn
the
is purely an
manner in
interpretive aid;
which subsequently
it
enacted
In fine, section
be read.
Congresses only to
the
Penit.
______
v. Marrero,
_______
417 U.S.
Act shall
U.S.
48,
(1955)
subsequent legislation
provisions of
legislation
Bank,
296 U.S.
(1974) (earlier
provide"); Shaughnessy v.
___________
(earlier
statute
shall
[the earlier
shall do
659-60 n.10
so expressly
52
653,
so expressly");
497, 501
directed
. supersede
statute] except
Pedreiro, 349
________
or
that
modify
to the extent
"[n]o
the
such
Posadas v.
_______
National City
_____________
directed that
____
subsequent
except when
laws
"shall not
they specifically
apply
to
the Philippine
Islands,
Co.
___
v. United States,
______________
208 U.S.
452,
456 (1908)
(similar
to
distinguishes this
_______
to
the
conclusion that
the latter
lacks force
Doing so,
led inexorably
within Maine's
boundaries.
B
B
The
Tribe
tentative conclusion
Gaming
Act
operative
generates several
that Congress
in
Maine.
other
did not
Its
responses
intend to
to our
make the
most ferocious
attack
the Gaming
Act
impliedly repealed
it
insofar as
gambling
on
We
principle
are
that
disfavored."
Rodriguez
_________
unequivocally
implied
committed
repeals
of
to
"the
federal
statutes
U.S. 522,
bedrock
are
at 703; accord
______
524 (1987);
TVA v.
___
Hill, 437 U.S. 153, 189 (1978); United States v. Borden Co., 308
____
_____________
___________
U.S.
188,
statutes
198 (1939).
are capable
courts, absent
The
of
a clearly
U.S.
repeal
by
implication
general rule
coexistence, it
is
is
that "when
the duty
as effective."
Morton v.
______
(apart
from
10
of
two
the
to the
Mancari, 417
_______
clear
expression
of
Congress's
later
intent to repeal) is
a finding that
Morton,
______
703-04.
"[I]f the
provisions,
U.S. at 190;
two [acts]
the
latter
act,
operates
to the
extent
of the
first."
United States
_____________
v.
are
repugnant in
without
any
U.S.
any of
repealing
repugnancy as
Tynen, 78
_____
19 F.3d at
a repeal
(11 Wall.)
their
clause,
of the
88,
92
(1870).
outright repugnancy.
statute
covers
the
entire
be implied if
subject matter
"and
embraces
for
Id.; see
___ ___
Narragansett
Indian Tribe,
____________________________
19
F.3d
conflict
application of
. . ., for
new
a substitute
irreconcilable
when applied
does
a later
not
at
exist
703-04.
merely
But
because
an
the
Radzanower v. Touche Ross & Co., 426 U.S. 148, 155 (1976).
__________
_________________
These
Indian law
precepts fit
context.
without
See, e.g.,
___ ____
special tailoring
in the
F.3d at 704;
F.2d
In
contains no evidence of
design.
attack.
The
Gaming Act
let alone
838
a patent expression
16(b) of
of any
such
11
was
fully
cognizant
of
the
Settlement
Act
and
apparently
way displace
the old:
[I]t
is the intention
nothing
in
supersede
specific
any
encompassed
. [the
Gaming
specific
grant
jurisdiction
of
to
in
Federal
a
State
another
including the . .
Act]
will
restriction
or
authority
or
which
may
be
Federal
statute,
. [Maine] Indian
Claim[s]
Settlement Act.
1988
The
any suggestive
repeal.
absence of
integration
contrary.
There, we
concluded
that Congress,
in passing
the
Gaming Act, had impliedly repealed the Rhode Island Indian Claims
Settlement Act of
that
it
1978, 25
touched upon
U.S.C.
gambling
1701-1716,
activities.
to the
See
___
extent
Narragansett
____________
____________________
2We
Rhode
Island
Indian
Claims
of no
help in
Settlement
the context
Act
at 700.
of
of the
1978.
See
___
Act,
exempted
yet,
prior
exonerative provision.
the
report "shed[] no
law
it actually
appended
to the
Rhode Island
to
enactment,
the reach
Congress
In that circumstance,
light on Congress's
enacted."
report
from
Id.
___
did not
By
of
the
removed
the
we concluded that
contrast, the
contain
any similar
draft bill
language
Settlement
Act included
unnecessary).
a savings
Thus, unlike
clause making
in the
case
such language
of Rhode
Island, no
12
Indian Tribe,
____________
contained no
the
19
F.3d at
704-05.
provision comparable
literal terms
subjecting Indian
of
the two
gaming
to two
But
the
to section
Rhode Island
Act
16(b); therefore,
statutes created
incoherence by
mutually exclusive
regulatory
environments.
effect
to both
transpired.
acts, we
concluded that
an implied
repeal had
See id.
___ ___
Here,
in
contradistinction
to
the
situation
that
the
Settlement
incoherence.
Act
and
the
Gaming
Act,
and
prevents
any
and
upon
the
same
subject
matter
in
one
or
more
particulars
meet
Act remains
this benchmark,
precludes
the Settlement
inviolate and
Act in Maine.
See Ysleta
___ ______
v. Texas,
_____
statute
Congress
granting Texas
36 F.3d
1325,
1335 (5th
Cir. 1994)
a federal
gaming because
it intended to
To
text
of
the Gaming
Act
means
different
13
things in
different
settings.
Without a
savings
clause like
section 16(b),
this
omission may indicate an intent to apply the Act across the board
especially
weighed,
Congress
But when
a savings
only
if,
as
clause is in play,
as in this case,
to prevail.
two New England states bear witness to the truism that, "[i]n the
game
of
statutory
interpretation, statutory
language
is
the
C
C
even if
we give
full force
within Maine.
contention
general
definitional
bestow the
problem
effect to
section 16(b),
the
that because
governmental
and
It maintains that,
power
Settlement Act.
Tribe satisfies
requirement
benefices of
with this
the
court can
infer
the Gaming
contention is
Once
federal
Act's
recognition
Congress's intent
Act upon
that it
the Gaming
the
entirely
Tribe.
and
to
The
ignores the
becomes readily
apparent
effort
to
reintroduce
the
notion
of
implied
repeal.
14
In a
comprehensiveness
Bonds,
_____
349 U.S.
expression
302
(1955), permits
Marcello v.
________
minimal particularity
of
We do
In
Marcello,
________
provision
of
the
Administrative
do so
"expressly."
See
___
at 305
559).
(quoting
later
APA
12,
now
Congress enacted
the
codified at
Immigration
I&N
U.S.C.
id.
___
must
Although the
so many
words, the
Supreme Court
concluded
that the
neoteric
statute's
review
deportation
procedure superseded
extensive
review scheme,
similar
the
APA's judicial
in material
respects to
the
and
(2) the
I&N Act
procedure which
contained an
it prescribed "shall
Marcello,
________
explicit provision
be the sole
the deportability of
that the
and exclusive
an alien."
See
___
determination
that
the
subsequent
15
Congress
had
"expressly"
superseded
the APA's
deportation.3
modalities in
respect to
Id. at 310.
___
The Tribe's
sure,
judicial review
reliance on Marcello
________
is mislaid.
To
be
not
provide
subject.4
particularly
____________________
persuasive
similarity does
parallel
for
present
Procedure
Act
of the
to
specific points
which
the
deviations
Procedure
the
from
legislative
history
technique and of
and
methods
and
at
Administrative
the recognition in
of
this
the particular
the direction
the
in the
adaptive
deviations,
statute
that the
exclusive
procedure
for
deportation
proceedings.
Unless
employ
we
are
magical
effectuate
Administrative
an
to require
the
passwords
in
exemption
Procedure
Congress to
order
from
Act, we
to
the
must hold
Id.
___
4The
in
and
tribes that
territories,
located
in
2710(b)(1).
Gaming
federal
2710(b)(1)
that
federal
proscribe
law
to tribes that do
recognition, see
___
not exercise
purposes,
do
id.
___
states
activities
lands on
see
___
has no application
attain formal
2703(5),
&
their
(d)(3)(A), tribal
lands
II
2710(b)(1)
and
Act,
like
assume, favorably
the
I&N
Act,
regulatory regime.
16
III
gaming
gambling,
U.S.C.
jurisdiction over
Class
pretermits
25
not
to the
constitutes
see
___
id.
___
For present
Tribe, that
a
the
comprehensive
purposes.
beyond
Here, the
deportation
provisions
procedure delineated
of consequence
in
the I&N
Unlike the
Act, none
of the
Act
excludes Maine.
has
not declared
Moreover,
the
unlike in the
Gaming Act
to
be "exclusive"
of
other
signposts writ
both to distinguish the instant case from Marcello and to put the
________
into perspective.
legislation,
an earlier statute).
in employing
of words as
opposed to
Though their
when weighed on
of cases,
see, e.g. Sims v. CIA, 471 U.S. 159, 167 (1985), decided under an
___ ____ ____
___
exemption
from
Information Act,
need
not divulge
the
disclosure
5 U.S.C.
matters
provisions of
the
552(b)(3) (providing
that are
Freedom
of
that agencies
"specifically exempted"
by
statute), to support its ipse dixit that Congress need only enact
____ _____
a comprehensive statute to mute the
That
other
statutes,
and,
unlike
section
16(b),
plays
no
enacted statute.
17
from the
usual canons
To this end, it
of construction
invites us to depart
and chart
the statutory
interface between the Gaming Act and the Settlement Act by resort
to
special interpretive
preference
that
the law
sometimes
v. Catawba
_______
(collecting cases);
We
The
reflects
autonomy.
rule of
strong
federal
interest
which the
in
Tribe alludes
safeguarding
rule is
apposite
trumpet.
If
preferential
Band,
____
construction to
476
only
ambiguity
when Congress
does
interpretation never
U.S.
at 506;
not
has
blown
loom,
the
arises.
Rosebud Sioux,
______________
19 F.3d
at
an
Indian
But the
uncertain
occasion
for
430
691.
U.S. at
587-88;
When, as
now,
Congress
has
unambiguously
expressed
its
intent through
according
to
embroidery.
ambiguity,
their unvarnished
So
it
is
the principle
meaning,
here:
of
since
without any
there
preferential
is
its
laws
judicial
no statutory
construction is
not
triggered.
D
D
different spin.
Under
18
sanctioned by
the National
Indian
Gaming Commission.
U.S.C.
2710(b).
adopted
See
___
25
the Tribe
this
proposal
to
the
Commission.
of
a letter
dated
July 19,
1995,
asked
to,
that determination.
The
Commission
asserted
in which
the
Commission's
applied in Maine.
See generally
The Tribe
Chevron U.S.A.
Inc. v.
___ _________
____________________
(1984)
(discussing
deference
due to
467 U.S.
agency
837, 842-43
interpretations);
F.3d
12, 16 (1st Cir.) (similar), cert. denied, 116 S. Ct. 145 (1995).
_____ ______
The
district court
demurred.
The
Tribe
assigns error.
We
discern none.
It
is
transpicuously clear
that,
under
Chevron, no
_______
See Strickland,
___ __________
the
48 F.3d at 16.
Settlement Act
congressional intent.
the Gaming
as
a clear
Here, we read
and
Furthermore,
Act's failure
to mention
section 16(b) of
unambiguous expression
in light of
of
section 16(b),
statute,
apply in Maine.6
____________________
6The Tribe
ambiguity.
statute,
We do not agree.
the sound
Act's silence as
a latent
of silence
here is
pregnant
with meaning.
19
In
this instance,
moreover,
there
is another
valid
reason
appropriate
statute
under
else
only
that it administers.
845 (1986).
cannot
Chevron
_______
might
See CFTC v.
___ ____
be
Act.
in a
its
That
prerogatives,
role belongs
delegated
when an
Deference is
agency
interprets
be addressed
Settlement
to the Commission.
by
the
Secretary
does
to
Commission, whatever
not
administer
the Secretary
of
the
the
to
the
Commission.
Though the
v. Hope, 16 F.3d 261, 264 (8th Cir. 1994), we cannot take it upon
____
to
entrust the
Commission with
Act and
If more
we
note that
were needed
deference
is
inappropriate when
decisions.
78-79 (1st
Cir.
1992).
on
decrypting
Tribe.
_____
As
and
applying Marcello
________
courts, not
its
agencies,
In
reading
agency's
rests
F.2d 74,
upon
an
conclusion
980
predominantly
this instance,
depends almost
and
have
of judicial
the
exclusively
Narragansett Indian
____________________
special
expertise in
____________________
Taken
intent
Maine.
in
context,
that silence
logically
denotes
Congress's
20
that amounts
a determination
of judicial precedents.
IV.
IV.
CONCLUSION
CONCLUSION
accord
that is
now
memorialized in
the
Settlement Act
as
covenant
to
govern
valuable consideration
afforded
by section
their
future relations.
16(b).
The Tribe
reaped
the
burdens
Maine
received
the protection
also received
money, and
benefits,
the
Tribe cannot
imposed under
the
Settlement Act
valuable
recognition.
expect
the
Having
corollary
to disappear
merely
We need go no further.
make
the Gaming
Act specifically
applicable within
not
Maine, and
Affirmed.
Affirmed
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21