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JURISDICTION OVER FEDERAL
.
AREAS THE
WITHIN STATES
REPORT OF THE
INTERDEPARTMENTAL COMMITTEE
FOR THE STUDY OF
JURISDICTION OVER FEDERAL AREAS
WITHIN THE STATES
PART I1
of
A Text the Legislative Jurisdiction
o j Lnw
Subrnitrcd to thc A trorncy Gcncral and transmitted to the Prcsidcnt
.
UNITED STATES .
COVERNAlENT PRINTING OFFICE
WASIIINGTON : 1957
* \
1
. JURISDICTION OVER FEDERAL
AREAS WITHIN TI-IE STATES
REPORT OF THE
INTERDEPARTMENTAL COMMITTEE
FOR THE STUDY OF
JURISDICTION OVER FEDERAL AREAS
WITHIN THE STATES
PART I1
of of
Text the Lniu Legislative Jhrisdictioh
Subrnittcd to thc Attorncy Gcncral and rransnlittcd to rhc Prcsidcnr
Junc 1957
.
IINITEI) STATES .
COVERNMENTI' RINTINC OFFICE
w~SlllNC1'0N: 1917
LETTER OF TRA'NSMITTAL
OFFICE GENU~LL,
OP TllE ~\TTORNEY
Washington, D. C., June 28,1957.
LETTER OF ACKNOWLEDGMENT DEARJl n. P~ESIIIETNhTe :I nterdepurtnlentnl Committee for .
the Study of Juristlictio~io ver Federn1 hens within the States
I
now has submitted tlic sccoad, nnd linnl, part of its report, a
lVwlrirlgton, July 8,1957.
text of tile law of legislative jurisdictio~o~v cr sucl~a reas.
DeAluM R.A ITORSEYG ESEUL: I I ~ V tCak en note of the ruin1 This erlrnustivo u~idn nnlyticnl esposition of tlie lnw in this
l.eport (Part 11) wliicl~y ou trnnsrnitkd to me, rendered by tlto liitlicrto littlo crplorcd field is n vnlunble supplemei~tt o the lirst
In~erde~nrtme~lCtoaml mittee for tlw Study of .Jurisdiction over pnrt of the report, tlic co~nl)ilnt.ioo~fi facts, with recomn~endn-
l:edcral Arcns witlri~th~e Stutes. It is my u~ltlcrstandingtl mt tho tiolis, wliicli rcceivccl your ~ ~ l ~ l l l l ~ l l li~n iAl ~prii~l l1t03 G, nnd con-
l.eporL is to be publislled und distributed, for the parposc of 111u1c- stitutcs n n~njor:rtIditiorlt o lcgi~bl i b l i o ~ ~ ~ ~ ~ ~ l r ~ .
I
illE uvnilnblc to 1;edernl administrnto~so f re111 pro~)crtyF, cdeml Together, the two pnrts of this Coniniittcc's report and the
nl1d Stnte legislators, tllc legnl profession, and otlie~st,h is text of full in~ple~nentatioonf its recomn~cn~lntiow~i~ll sp rovide a basis
tlio Inw of lcgisIntive jurisdiction in these urcas. for reversing in mnny nrcns tho swiug of "tho pendulum of .
t Ill view of tlie fnct that tlic work of tho Committee is power * *. from our stntcs to tl~cce ntrnl government1' to which
+
c~llll~leteadn,d since otllcr dcpnrtn~cntsn nd npncics of the Gov- you referred ill your ntldrcss to the Confere~iceo f Stnte Governo1.s
erlllllent now Iiu\-c clear directior~ for tul- ring tliis work into on Juna 25,1057. .I .
pemlniie~itp i119i n improved Federal-Stutc relations, tho Intcr- The ercellcnce of the work of the Committee reflects grent
&partmental Committee for Ll~eS tudy of Jarisdictio~lo ver Iced- credit upon its Cllniman nnd members. Also especially note-
Arcus within tllc Stritcs is I~crcbyd issolved. worthy is llio splendid nssist.a~rcow lliclr t.lie Con~mittecr eceived
Cl~nirlnnP~ei rry TV. Alortor~u rd the ~ncnibcrso f this Com- , from tlic nt.torncys gc~icraol f tl~ese vernl Stntcs, tlie gcnernl coun-
Il,itkc Ilnva my co~i~rntulntionns~ s~i~dic clrn pprecintion of tlloir sels of Fctlernl npicirs, and other Stnte and Federal officinls.
service to our country ill bringing to light tlio fncts nad law in With llie submission of tliis second part of its report the Com-
i lIlis lnueIl neglected field. This r~~onu~nenwtnolr k, ctll~ninating mittee lins complctcd its work rind ~wonlmendst lint it be dis-
tllree years of exlinustive ell'ort, lnys nn crcslle~~fotu ndntion for solved. Si~iccth o Dcpnrtmcnts nnd otlicr pcrrnancnt ngencies of
81]ocnting to tlie Stntes some of tlie functions aliicli under our tho Fcdcrnl Gover~irnc~~~iot wc nn cnrry out directioas wl~icliy ou
Federnl-Stnte systcnl FJ~OIIpIr~o perly be pcrforined by Stato Iinvc issuctl bnscil upon Llic worlc of tlw Co~n~nittccI, join in
governnlcnts. tliis rcco~~~~~tiolcn.~ itl:~
Si~icercly, Respcc~lully,
'rile )ION~RAUILIE~ nneBn~R O~NEJLn.L, ,
Tire Attorney General,
1V'LShkgtoll, L). C.
- LETTER OF SUI3MISSION Preface
.t
Thc Intcrdcpartmental Committee for the Study of Jurie
June 17, 1967.
diction over Federal Areas within the States was formed on
D mM R. ATTORNEGYE NERAL:W ith the encouragement of December 15, 1954, on the recommendation of the Attorney
the President, the understanding aid of you and the heads of Gencral approved by the President and the Cabinet. Tho
thc othcr Fcdcral agencies rcpresentcd on thc ~omrkttcca,n d basic purposc for which the Committee was founded was to
thc invaluable assistance of the Attorneys Gencral of thc scv- find rncans for resolving t11c problems arising out of jurisdic-
era1 States and-of the principal law oficers of ncarly all Fed- tional status of Fedcrnl lands. Addressing itself to this pur-
eral agencies, the Committee now has complcted, and here- pose, the Committee; with nssistancc from all Federal agencics
with submits, tl~fci nal portion of its report, subtitled "Part 11, intcrcstcd in the problcms (a total of 33 agencies), from State
AText of the Law of Legislative Jurisdiction." Attorneys General, and from numerous other sources, prepared
This "Pnrt 11" supplements the portion of the Cornrnittee'a a report cnti tlcd Jurisdiction over Federal Areas within the
report which you transmittcd to the President on April 27, States-Part I, Tire acts and Committee Recommendations.'
1956. With its sub~nissionth c work assigned to the Committee This rcport, approved by the President on April 27, 1956, set
has bccn completed, nnd it is rccommcnded that the Com- out the filldings of tlic Commi ttcc nnd rccommended changes
mi t tee bo dissolved. in E'edcral and State Inw, and in Federal agencies' practices,
Iicspcctfully submi ttcd, 'designed to clitninntc cxisting problenis arising out of legisln-
tivc jurisdiction. It included two nppendiccs.
PERIlY W. blOR'rON,
Arrlrlanl Attornell Ueneral (Chalnrlan). The Commil.tecls research involved a general survey of the
ROllEIlT DECIIERT, jurisdictional status of all federally owned rcsl property in
acncral Oounrel, Dcparlmenl o/ Defense (Ir(cc Ohafr~nan). thc 48 States, and n detailcd survey of the status of irldividrird
msny n. igrKe, such properties in the States of Virginia, Kansns, nnd Califor-
Ardoc(ats Ueneral Coundcl, Ocnoxtl Servlcer Ad~nin~rlratlo(nE ccretary). nia. Tl~esct lirce nnmcd Statcs were selected as containing
AItTLIUR B. FOCKE. Fedcrnl real propertics representative of such properties in
Lepal Adviser, Rurca~co f Ihc Budpcl.
nII the Statcs. Inforlnatio~rw as proctlred concerning the prac-
ticca nnd problc~nsr elntctl to legislntive jurisdiction of the 23
Fcdcral ngcncics controlliug rc:il ~)ropertyn, ~ ~of dth e ndvnn-
ROlllillT I,. FI\J~RISOTON.
Ueneral Cotrnscl, ~clirrrl~~o~f cdrp~rltc trllurd. t:igc:s and tlisotl\~;int;~gcosf tlic scvcrnl legislntivc jurisdic-
tio~inls t;lt.t~scsT o1 tllc vn~iousp tlrposcs for \vllicl~ federally
I'ARl; 1. ill. IlAS'l';\.
(Jeneral Counael, Jlcpnrl~tlcnlo / Jlcrrllh, E~ltrcnlio~arn, d Welfare. ownctl 1:i1~li s IISC~. 'l'l~is ir~for~ilntioins ldlectcd nnd nna-
Dcpnrtmeot of Dcfcnae :
GEORGE D. LIEISSER
INTERDEPARTMENTAL COMMITTEE FOR THE 3 - u O~F ~ FItED FIALKOIV.
Jn,
J011N DAILEP.
JURISDICTION OVER FEDERAL AIEAS WITHIN THE STATES
' BASIL S. h'Oltl1IS
-
IlORACE I). ROUERTSON, JR.
PERIIY IV. JIOIITON, Asslelant Atlorney General, Chohnon
Ocnernl Services Admlnlstrntlon :
I<OIiLZI<T DECUE~T,' General Counsel, Depnrtment of Defenae, Vice
FRANCIS J. hlcSUALLEY
' ~ ICEhaSfrImIa11r~r. PIKE,' A~socJnteC enernl Counscl, Gencrnl ~ervlc&.Admlnls- hlAnY L. CAItL)NEI1 . .
trtillon, Kecrelary Velernne' Adn~lnlstrntlon:I t. U. WHlTI '
AI~TIIUUI.~ F OCICE, Lcenl Advlscr, Durcnu of lhc nudgct Depnrlrncnt of LIenltb, Etlucnlloo, nnd \VelCnre: HELEN BOWkV
ELlIEIt I?. UEEtiE'L'T,' Sollcllor, I)cpnrlrne~tto f lhc Iitlerlor
1101~61tTL . FAIIItINCTON, Cencrnl Counsel. Dclmrtnrent of Aprlcullure
l'dJII<E 31. IjANTA. General Counsel, Departwent of IIcnItlr, Educntlon, nnd
\Yellare
C U Y H. UIILDSALL,' Cencrnl Counsel, Velernns' Adrnlnletrntlon
Staff Dlrccfor
EDWAILD 3. LAZO\\'SKA, Depnrlnient of Jusllce
JLODERT \V. C&\\'\'EliIS, Depnrtmetrt of Juellce
IlAnOLD XIAM, Dclmrlrrlcnt of Agriculture
J'rhrclpal Staff, Port 11
UE~~NARhDl. NEIVIIUIIO, DcpnrLrnent of 1110 Interlor
THOMAS A. PACE, Depnrti~~confl Jusllcc
CllAlILES 9. SUIAI.I\'AN, I)epnrlinc~tlo f Jnsllce
UERMAN \YOIXIS80S, Dcpnrlrnent of Jcrsllce
Uepnrtment of Justlce:
HELEN DUCKLEY, Tax Ulvlslon
CALVIN \V. DEILILENCER, Omce of Depuly Altorney General
ALICE 3IILI.EIt. Inlerunl Securlly Dlvlalon
CLAIiLZ LUND. I.nnds Dlvlslon
ALICE I!. IIItICIJ'1', Lni~ilsU lvlslon
' Succccdctl BIAh'SFIEIJD D. SI'ILACUE on Fcbrunry 28, 1057, who hnd
succcedct~T VILIlEIt Bf. IlRUCliGIL on Oclobcr 13,1055.
'
Suc.coctlctl .\I.LK\VEI,I~ 11. ICI.IAIOTT on August 27. 1050.
Succ~ctletJl . IIlCUI~I.A IISISTI~O.\'Oo n Alny 3. 1057.
PREFACE
VI~I
lyzed in tlie several chapters of part I of the report, and is
sum~narizedin appendix A of the same part. cies to the extent possible under existing law. However, full ,
implementation of these recommendntions must await the en-
'I'l~cC oitkli t tcds study i11~11~dac dr eview of thc politics,
actment of certnin suggested Federnl and State legislation.
practices, and problems of the 48 States relnted to legislative
In the course of its study the Committee ascertained the ex-
jurisdiction. Inf orma tion concerning these matters similarly
istence of a serious lack of legal bibliogrnphy on the subject-
is reflcctcd and analyzed in various portions of part I of the re-
matter of its interest. With the concurrence of the Attorney
port, with chapter V of the part being en tirely devoted to the
General of the United States and the encourngement of the
laws nrd problems of States related to legislative jurisdiction.
Prcsident, it hns proceeded with the publication of this pnrt I1
Also, the texts of State (and Federal) constitutional provisions
of its report, a conlpilation of tlie court decisions nnd legal
and statutes related to jurisdiction in effect ns of December 31,
opinions it wcigllcd in tllc coursc of its study of the subject of
1955, are gathered in appendix B of part I.
legisla tive jurisdictiol~.
Tlic major coldusions of the Committee, set out in par1 I
of sthe report, whicli, of course, are applicable only to the 48
States to which the Committee's study extended, and do not
apply to present Territories or the District of Columbia, are
to the eflect that in the usual cnse the Federnl Covernnlent
a-
shollld not receive or retain any of the States' legislative juris-
diction within federally owned areas, that in some special
.
cases (where genernl law enforcement by Federal authorities
is irdica'ted) tlle Federal Governmen t should receive or retain
lcgislative jurisdiction only concurrently with the Stntes, and
that in any case the Ferlernl Government should not receive
or retain any of the States' legislntive jurisdiction with respect
to tmation, marriage, divorce, descent nntl distribution of
property, and a variety of other matters, specified in the re-
~ ~ o rwtl,li ch are ordinarily the subject of Stnte control.
'rile conclusioils rencl~edh y the Coroinittee were, of course,
rrlade only after an appraisal of the facts adduced during the
stu'dy ill the light of applicable lnw, including the great body
of decisions hnndcd down by courts nnd opinions rendered by
governmental legal oficers, Federal and Stnte, interpretntive
of nffcctetl hy legislntive juriscliclion.
I~ccolnmend:ltionsr 1111tlcb y t he Co~nlrlitto e, bnsetl on the con-
clusio~lsi ndicntccl ahovc nnd on certnin subsidiary findings,
llow constitute tlie policy of the Executive brnncll of the Fcd-
CrRl C ~ ~ ~ r ~ lain~d eir~e 0nc:itnj,; iinp1~111~1b1yt dlk krnl ngen-
Contents
.
Chapter I
OUTLINE OW LECIISLATIVE JURIBDICTION
DGVGLOPYGNT OC RGBERVATIONB IN CONBENT AND CEBBION aTATUTEa
--continued
Stale authority to make reservnlionr in consent ~talute8re cow-
"
nizcd---,--------,--------------------------------------
Retention by Federal Government ol lesa than exclurlve juris-
--------..,-------,-------__
diction on admission of Slnte--
Non-interfcrenee with Federal use now eole 1lmllatlon on reserva-
Chapter I1 Spclieoinlisc brcys cSrlrnnllicoen-s~ a-p-p--r-o-v-e-d-- ----_----- -- -- --- .-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.--.-.-.-.-. --
OnlG IN AND DEVEIBPNEh'T O I LEGISLATIVE JURISDICTION LIMITATIONB ON AREAS OVER WlllCll JURl8DlCTlON MAT BD ACQUIRED
BT COlCSENT Or STATE UWDEn CWUSE I7
OBIGlIlNa rOasr srAnYcTnIlC LofE lIl,l eS CECoTnIlOinNc n8l,a lC LCAoO~BlEg r1c1.,u O---C - -1V-1-E- -C-O--N-B-T-lT--U-T-lO--N 15 IAnre glrc r~e~qeuirrneld- -l-o-- b.-o- -"-p-u--r-c-l-ia--s-c-d-"- --b--y- -F--e-d-e-r-a--l -G--o-v--e-r-n-m--e-n t,-,--, ,
1)el~akaIn Co~~sllluliounClo nvenlion corlcernlng clauec IT----- I8 Tcrnl "~~ccclluDl uildi~lgs" co~ietrued- --,---,,----------------
Dcl~ntcsin Slatc rnlifying convcntio~~-s.- ---. . -----..---.,---- 22 LIUITATIONB ON Aams OVEII ~IIICIIr unlsormlou 'MAT RE ACQUIRED
1c3arrly caoeu ril ldiecoisnioo l~d- -r-1. .8--.-8 -- -,.---..---.-..--.---32-87 ----__-_ _ BTKI 'rCacErrleSynS IlvO iNevw lcO -wP.- S--T -A --T --E .- ---,.,-- -- --- --- -- - --- -- ----- ----------- --------------------------- ------------- --
Specific purposes for ~~hlccehss ions approved- ---,-,,-,-------
Chapter III LIMITATIONS ON AIIEAG OVER \VIIICII JURISVICTTON MAT BE RETAINED
BY FEDERAL RESERVATION-_____------------------------------
ACQUIS~TION0 8' LEGIBLATIVH JURIBDICTION PROCEDURAL PROVISIONS IN STATE CONSENT OR CEIBlON BTATUTEL,,
JUDICCIAonLf liNcOt ToIlC Ed cOcCi sFioE~D.~E-RsA -L_ - _E -_X-C -L -U -B-I -V -E - -J-U-R-I-S DICTION. ------ -----
TEnUINATION OP LEGISLATIVE JURISDICTION
Chapter VI
Par*
90 CIVIL JURISDICTION
06
Chapter V
UOBT OT DETININO AND PUNlsElNO 101 CB-lY--C-l -- --- ---- --------
Excl~lalveF ederal judadlctlon -_-_,-- -,_,,- -
a Concurrent Federal and State orlmlnal jurledlctlon --,,--,--,- ---
Law enforcement on arena of exc!usIva or concurrent jurIsdlcUon~
-----
Partial juriedlclion ,,--,--,,--------------- ---------------
Gtnte criminal juriedhtlon retalned ,----,--------------------
Acts commilted partly lo area under State jurlsdlctlon-,---,-,,-
-----------------------------
Retrial on change In jurisdicllon
8CBVICE OT STATE CRIMINAL PROCESI
In general-,------l--,------------------------------------
night by Federalgrant-__---,------- ---,,,,-,---------------------- Chapler M
Right by State reeervatlon ,---,,-,----.- --, -----------------
Reservations to serve proceae not lnconslstent 14th exclusive RELATION OF STATES TO FEDERAL ENCLAVES
jurisdictlon---------------------------------------------
----------------------------
Warrant of arrest deemed process CXCLUBIM TEDERAL JURISDICTION
Arrest without warrant not deemed eervlce of process,---,----- Stalea basically wlth~i'ta uthorlty, -,_,,,,,,,,---,,,-,,- -----
---_-------------------
Coroncr'e inqueat -----,--,,------------------------E-xcl-us-loo- of- S-ta-te -aut hority illustrated
Writ of b a b e ~co rpus--,--,---,-,,,,-------------------------
nDEIUL CBIMEB ACT OT Im -
EEecta Ilmlted, -,-----------------
ABSIMILATIVE CBlY ES STATUTES
Assimilative Crlmee Act of 1825 -,,,,,,-,,,,,----------------
hrlmilallve Crimes Act of 1806 _,,,,,,,,--,-.-,,,,------------
Re-enactments of Assimilallve Crimea Act, 1898-1940 -,-,,,-,-- Rcservatione construed _,-,,---,-------------,------
Asalmllallve Crimes Act of 1848- -,,,,,,,,,,,,,-,,,,------------ AUTUOIIITT 01 TllE STATE8 UNDER TEDERAL ITATOTEB
INTERPBETATIONB OT ABSIMILATIVE CRIUEl ACT
Adopts StnLe Inw _-----.---,--,-,,,--------------------------
Opcratce only wtlcn oflcnse Is not otherwlao defined ---,-,,-,,,-
Includes common law_----~-___------------..------,,-------
Excludes atatuLe of limitations- ----------------------- -------,--------
Excludes law on aumclcncy of indictments -----.- ,---
Oflenscslncluded-----------------.-------------------------
. -------- -----------
Oflenses not Included,,
UNITED STATE~C OYYlBBlONEn8 ACT 0T 10(4 ,,,,,-,-----------------
