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Rice v. Cayetano

Rice v. Cayetano, 528 U.S. 495 (2000), was a case filed in 1996 by Big Island rancher Harold "Freddy" Rice against the state of Hawaii and argued before the United States Supreme Court. In 2000, the Court ruled that the state could not restrict eligibility to vote in elections for the Board of Trustees of the Office of Hawaiian Affairs to persons of Native Hawaiian descent.[1]

Rice v. Cayetano
Argued October 6, 1999
Decided February 23, 2000
Full case nameHarold F. Rice, Petitioner v. Benjamin J. Cayetano, Governor of Hawaii
Citations528 U.S. 495 (more)
120 S. Ct. 1044; 145 L. Ed. 2d 1007; 2000 U.S. LEXIS 1538; 68 U.S.L.W. 4138; 2000 Cal. Daily Op. Service 1341; 2000 Daily Journal DAR 1881; 2000 Colo. J. C.A.R. 898; 13 Fla. L. Weekly Fed. S 105
Case history
PriorInjunction denied, 941 F. Supp. 1529 (D. Haw. 1996); summary judgment granted for defendant, 963 F. Supp. 1547 (D. Haw. 1997); affirmed, 146 F.3d 1075 (9th Cir. 1998); cert. granted, 526 U.S. 1016 (1999).
SubsequentRemanded, 208 F.3d 1102 (9th Cir. 2000).
Holding
Hawaii's denial of the right to vote in OHA trustee elections based on ancestry violates the Fifteenth Amendment.
Court membership
Chief Justice
William Rehnquist
Associate Justices
John P. Stevens · Sandra Day O'Connor
Antonin Scalia · Anthony Kennedy
David Souter · Clarence Thomas
Ruth Bader Ginsburg · Stephen Breyer
Case opinions
MajorityKennedy, joined by Rehnquist, O'Connor, Scalia, Thomas
ConcurrenceBreyer (in result), joined by Souter
DissentStevens, joined by Ginsburg (Part II)
DissentGinsburg
Laws applied
U.S. Const. amend. XV

Rice was represented by attorney John Goemans. John Roberts (who would later become the Chief Justice of the United States) argued for Ben Cayetano, the governor of Hawaii at the time.

The February 2000 court ruling in Rice v. Cayetano encouraged Hawaiian sovereignty opponents to file a similar lawsuit, Arakaki v. State of Hawai‘i, months later. As the Rice case resulted in non-Hawaiians being allowed to vote in OHA elections, the Arakaki case resulted in non-Hawaiians being allowed to stand as candidates in OHA elections.

Background edit

Beginning in 1978, Hawaii held statewide elections for the trustees of the Office of Hawaiian Affairs (OHA), an agency charged with disbursing particular funds and benefits to those who may be classified as "Native Hawaiians" ("any descendant of not less than one-half part of the races inhabiting the Hawaiian Islands previous to 1778"), or those who may be classified simply as "Hawaiian" ("any descendant[s] of the aboriginal peoples inhabiting the Hawaiian islands ... in 1778, and which peoples thereafter have continued to reside in Hawaii"). By law, only Native Hawaiians or Hawaiians could vote for, or be elected to, this Board of Trustees.

Harold F. Rice was a rancher of European descent whose family had resided in Hawaii since the mid-19th century. In March 1996, he attempted to register to vote for the OHA trustees. Where that application asked for confirmation that "I am also Hawaiian and desire to register to vote in OHA elections," Rice scratched out the words "am also Hawaiian and" and checked "Yes." Denied eligibility because he was not Hawaiian, Rice sued under the 14th and 15th Amendments to the U.S. Constitution.

The District Court for the State of Hawaii ruled against Rice, due to its conclusion (as summarized by the 9th Circuit Court of Appeals) that "the method of electing OHA trustees meets constitutional standards for the essential reason that the restriction on the right to vote is not based on race, but upon recognition of the unique status of native Hawaiians that bears a rational connection to Hawaii's trust obligations." The District Court held that the OHA does not sufficiently resemble a typical government bureau, with governmental powers, and that it is "carefully constrained by its overall purpose to work for the betterment of Hawaiians."

The 9th Circuit Court of Appeals also denied Rice's claim.[2] For one thing, Rice contended that the legal status of an eligible voter is contingent solely upon race, and that Hawaii's contention that such status is a political designation, rather than a racial one, is an obvious effort to circumvent the Constitution with semantics. The Court of Appeals agreed that it might indeed be the case that the political designation is a racial designation under the state's statute, yet "the constitutionality of the racial classification that underlies the trusts and OHA is not challenged in this case. This means that we must accept the trust and their administrative structure as we find them, and assume that both are lawful." Because Rice had not challenged the OHA's very existence, which is predicated on a racial classification, the Court could assume that "the state may rationally conclude that Hawaiians, being the group to whom trust obligations run and to whom OHA trustees owe a duty of loyalty, should be the group to decide who the trustees ought to be." Thus, despite an apparent racial classification for eligibility to vote, within the context of the OHA's creation and mandate, the classification is actually "not primarily racial, but legal or political."

Furthermore, the Court of Appeals decided that the OHA trustee election was a "special purpose election" such as that upheld in Salyer Land Co. v. Tulare Water District (1973). In that case, the election for directors of a certain "special purpose water district" was limited to landowners in that district. The weight of a landowners vote was proportional to the amount of land that was owned, and thus seemed to contradict the 14th Amendment's Equal Protection clause. The Court held that because these landowners were disproportionately affected by the policies of the water district directors, and that such directors existed for a "limited purpose" and exhibited a "lack of normal governmental authority," the districts did not violate the Constitution when they denied a vote to those who did not own land in the district, and granted votes proportionally to the amount of land owned. The elections for the OHA Board of Trustees is similar to that of the water district directors, in that "the vote is for the limited purpose of electing trustees who have no governmental powers and perform no governmental purposes." Also, because Hawaiians, as defined by statute, are those disproportionately affected by the OHA, the vote for its trustees may be limited to them. Thus this exception to the 14th Amendment was used to justify the Hawaiian voting scheme under objections based on the 15th Amendment.

Finally, the Court of Appeals concluded that "the voting restriction for trustees is rooted in historical concern for the Hawaiian race ... carried through statehood when Hawaii acknowledged a trust obligation toward native Hawaiians ... and on to 1993, when Congress passed a Joint Resolution 'apologiz[ing] to Native Hawaiians on behalf of the people of the United States for the overthrow of the Kingdom of Hawaii ... and the deprivation of the rights of Native Hawaiians to self-determination'." Thus the 9th circuit held that native Hawaiians were entitled to "special treatment" much like the special treatment accorded Native American Indians in Morton v. Mancari, where "preferential treatment that is grounded in the government's unique obligation toward Indians is a political rather than a racial classification, even though racial criteria may be used in defining eligibility."

Rice appealed to the Supreme Court. There, he would argue that the eligibility requirements subverted the original intended purpose of the public lands as written in the Annexation and Organic Acts, both of which granted subsequent benefits to all "inhabitants" of Hawaii, regardless of race. Therefore, he claimed, the elections dp not qualify as "special purpose" under Salyer, nor does the eligibility requirement denote a political rather than racial classification. Finally, he claimed that the protection under Morton v. Mancari was inappropriate. The Petitioner would deny that there is any "special relationship" at all, for there is no "former sovereign" or "historical relationship" clause in the Constitution, and the analogy with Indian tribes thus has no legal standing.

The State of Hawaii disagreed. They claimed that native Hawaiian people have a "special relationship" with the United States, indeed a sort of semi-sovereign status, analogous to that of native Indian tribes, which affords them a large measure of self-determination. They would seek to demonstrate that this status had been legitimized repeatedly by Congress, though it had never been made explicit by treaty or codified in the U.S. Constitution.

In order to understand this extraordinary defense, some background is necessary. The Kingdom of Hawaii was an independent, sovereign nation from 1810 until 1893. Throughout this period, the increasing economic interests of American businessmen began to clash with the interests of the Hawaiian government. In 1887, under the threat of violence, the Kingdom's Prime Minister was compelled to resign, and a new Constitution was implemented. This heavily curtailed the administrative power of the monarchy. When Queen Lili'uokalani took steps in 1893 to counter this imposition, she was overthrown in a coup d'état by the Committee of Safety which was composed of white businessmen, missionaries and colonists (both Hawaiian citizens and foreign nationals). The Committee set up a provisional government led by themselves, and the next year declared the existence of the Republic of Hawaii. In 1898, the Republic accepted annexation by the United States, and when President McKinley signed the Annexation and Organic Acts soon thereafter, Hawaii became a U.S. Territory. At this time, 1,800,000 acres (7,300 km2) of land, formerly overseen by the crown, were ceded to the United States. The Annexation Act stipulated that all revenues and proceeds from the use of this public land would "be used solely for the benefit of the inhabitants of the Hawaiian Islands for educational and other purposes." The Organic Act similarly held that all "funds arising from the sale or lease or other disposal ... shall be applied such uses and purposes for the benefit of the inhabitants of the Territory of Hawaii."

Seeing the subsequent cultural and economic decline of Hawaii's native population, in 1920 the U.S. Congress passed the Hawaiian Homes Commission Act (HHCA), which placed 200,000 of those acres under the authority of said Commission, such that they could be leased by Native Hawaiians for token sums. A "Native Hawaiian" was defined as "any descendant of not less than one-half part of the blood of the races inhabiting the Hawaiian Islands previous to 1778." That date, 1778, is the year in which Captain Cook "discovered" the islands, and thus the date of the first known Western presence.

When Hawaii became a state in 1959, it was agreed that the state would include the HHCA in its own Constitution, including the specific definition of Native Hawaiian. In 1978 the state Constitution was amended to provide for the Office of Hawaiian Affairs (OHA), which would hold the lease on those lands not already under the purview of the HHCA. The OHA lands would be similarly held in a "trust" managed for the benefit of Native Hawaiians.

Petitioner's argument edit

For the Petitioner, the relevant history of Hawaii begins with the Annexation Resolution, not in the previous era of sovereignty. Claims of sovereignty based upon the status or political standing of Natives prior to the 1893 coup are both mistaken and irrelevant. The Petitioner's Brief notes that at the time of their transfer, "these 'public lands' were held by the Republic of Hawaii free and clear of any encumbrances or trust obligations. None of the former citizens of the Hawaiian kingdom held any cognizable interest in these lands" (3). To support this claim the Petitioner notes that only the Monarch enjoyed title to "Crown lands." When these lands were ceded by the Republic of Hawaii to the United States, the Resolution stipulated that these lands would "be used solely for the benefit of the inhabitants of the Hawaiian Islands for educational and other public purposes." (Emphasis added by Petitioner). The Petitioner would use population statistics up through the turn of the 20th century to show that the Kingdom of Hawaii had been "consciously multiracial," and thus the term "inhabitants" referred to numerous races, including Westerners. Furthermore, the date of 1778 had obviously been chosen for the eligibility requirements because "it marks the last days of what might be characterized as the era of relative 'racial purity' in the Hawaiian Islands." (25). Any claim of a connection between that date and sovereignty status for native Hawaiians is bogus, for the Kingdom of Hawaii did not exist until 1810. Also, during the era of the Hawaiian kingdom, many who would not qualify as Hawaiian under the OHA statute were, in fact, full citizens of the Kingdom. In particularly strong terms, the OHA is denounced for using a "blood quantum" to define eligibility status, a requirement that is "disturbingly reminiscent of the 'Blood Protection' and 'Citizenship' laws adopted as part of the infamous Nuremberg Laws".

The Petitioner also denies that Salyer, with its "special limited purpose" exception to the 14th Amendment's Equal Protection clause, is appropriate in this case. First, because Salyer dealt with land ownership, and not race, it does not apply to begin with. The 9th Circuit Court thus made a grievous error when it determined that this case was "'not the sort [of election] that has previously triggered Fifteenth Amendment analysis'." (Pet. Br. 18). Such a determination would "create an infinitely elastic loophole" in which anyone could circumvent the 15th amendment by simply claiming that the purposes of any such election was "limited." The Petitioner quotes Terry v. Adams (1953), which held that the 15th Amendment's prohibition of race-based election laws "included any election in which public issues are decided or public officials selected." (19) Furthermore, Salyer is an inappropriate defense under the 15th Amendment because it was decided as an exception to the 14th Amendment, due to that amendment's "one man, one vote" rule. Thus, it cannot be applied to the 15th Amendment's explicit ban on race-based qualifications. The Petitioner quotes from Gomillion v. Lightfoot (1960) to illustrate that the 15th Amendment is absolute, no matter how carefully constructed the means to a racially discriminatory end. That case concerned a district in Alabama that had been drafted such that it excluded all potential non-white voters. Though race was mentioned nowhere in the statute, it had been struck down due to the clearly racially discriminatory result. Quoting Lane v. Wilson (1939) as well, the Petitioner notes that the 15th Amendment "'nullifies sophisticated as well as simple-minded modes of discrimination'" and goes on to say that "In contrast to the purportedly race-neutral grandfather clauses, white primaries, and gerrymanders invalidated in the foregoing cases, the OHA voting restriction is startlingly 'simple-minded'. Hawaii closes its election booth to anyone who fails its racial test" (16).

The OHA cannot be justified on the grounds that enfranchisement is limited to those who are the interested parties, for the same logic could have been applied to the Gomillion gerrymander case. "Both constitute attempts to achieve a 'racially pure' voting bloc justified on the ground that the right to vote has merely been limited to those 'primarily affected' by the decisions of the elected officials." Besides, the entire concept of an exception under Salyer is inapplicable in the first place, even if it did constitute an exception to the 15th as well as the 14th amendment. This is because the "'disproportionate effect' prong requires, at a minimum, that the costs of those activities be borne disproportionately by those granted the right to vote ... the Salyer exception, therefore, cannot be applied to the OHA, a state agency that expends substantial funds drawn from taxes paid by all citizens of Hawaii without regard to race" (20). Because those state officials chosen in OHA elections "manage and spend both legislative appropriations and public lands proceeds, it is axiomatic that all Hawaiian citizens ... have a legitimate interest in the proper management of those funds" (20-21). Furthermore, the comparative wealth of those funds and the "sweeping" authority with which the OHA manages them, along with the numerous and government-like programs that it administers, render the comparison between a small water storage district and the OHA untenable.

More controversially, the Petitioner discounts the idea that there is a "compelling state interest" in limiting the OHA elections based on the history the State's relationship with native Hawaiians (i.e., in order to protect against current discrimination or offset the effects of past discrimination). "Nothing in the record demonstrates ... the existence of any past or present discrimination against racial 'Hawaiians'." (31). The Petitioner sarcastically notes that "The Respondent now takes the position that the State of Hawaii has a compelling interest in engaging in blatant discrimination today – and indefinitely into the future – in order to make up for even-handed treatment of all Hawaiian citizens, regardless of race, in the past" (32). Nor may a compelling interest be inferred from the necessity for the State to uphold its "trust" relationship with the natives, for the Supreme Court "has never held that a legislatively declared 'trust' relationship suffices to justify racial discrimination in voting" (31). Furthermore, the use of Morton v. Mancari to illustrate the nature of that implied "special relationship" has no bearing on Hawaii. For one thing, in recognizing that the Constitution's Indian Commerce and Treaty Clauses denotes such a relationship for Indian Tribes, Morton v. Mancari's outcome "was expressly predicated on the fact that the challenged preference involved a tribal, rather than racial, classification" (39). More importantly, native Hawaiians do not constitute a federally recognized Indian Tribe. The Petitioner notes that the 1867 treaty which ceded Alaska included a clause by which all inhabitants would be given U.S. citizenship "with the exception of the uncivilized native tribes." By contrast, the Organic Act of 1900, which granted territorial status to Hawaii, provided citizenship to "all persons who were citizens of the Republic of Hawaii" in 1898. This, of course, included native Hawaiians; the Petitioner then points out that, in fact, these Native Hawaiians "were the dominant political group in Hawaii for several decades after annexation, and were well represented in all forms of public office" (43). Thus the "special relationship" or "trust" based on tribal sovereignty no bearing on the situation in Hawaii.

Respondent's argument edit

Naturally, the Respondent did not agree. After reiterating that the voting qualifications are political rather than racial, and that the elections qualify for "limited purpose" and "disproportionate effect" exceptions, the Respondent turns quickly to the heart of the matter: the "special relationship." Though native Hawaiians are not formally recognized as an Indian tribe, Congress and the Court have "recognized a special obligation to America's first inhabitants and their descendants ... and have recognized that Congress is empowered to honor that obligation as it sees fit" (Res. Br. 2). Because Congress has explicitly noted that such an obligation pertains to Alaskan Natives, despite their distinction from traditional Indian tribes of the lower 48 states, it naturally follows that this distinction extends to Hawaiian natives as well. For the Petitioner to rely on the literal wording of treaties signed at the turn of the 20th century misses the point entirely. Indeed, by 1898, "the era of treaty-making with the indigenous people of the American continent had come to an end," and this is why there is no mention of such a distinction in the Annexation Act (6). Yet, with the creation of the HHCA in 1921, "Congress has recognized that it has a special relationship with indigenous Hawaiians, and has sought to enable them to benefit in some measure from their homelands" (6). The Respondent goes on to quote Congress' contemporary assertion that the HHCA "affirm[ed] the trust relationship between the United States and the Native Hawaiians" (42 U.S.C. § 11701 (13)) as well as the statement that "In recognition of the special relationship which exists between the United States and the Native Hawaiian people, [it] has extended to Native Hawaiians the same rights and privileges accorded to American Indian, Alaska Native, Eskimo, and Aleut communities" (20 U.S.C. § 7902(13)) (both as quoted in Respondent's Brief, 8–9).

Special attention is given to the 1993 Joint Resolution of Congress known as the "Apology Resolution," which expressed regret for the role of the United States in the 1893 coup and "the deprivation of the rights of Native Hawaiians to self-determination." The Respondent further notes that "The [apology resolution] specifically acknowledged that 'the health and well-being of the Native Hawaiian people is intrinsically tied to ... the land', that land was taken from Hawaiians without their consent or compensation, and that indigenous Hawaiians have 'never directly relinquished their claims ... over their national lands'." (8). The Respondent cites numerous other Congressional utterances that refer to "special" or "trust" relationships, or which refer to Native Hawaiians as "distinct" or "unique" indigenous peoples. In creating the OHA and the voting requirements thereof, Hawaii was simply "reaffirming the 'solemn trust obligation and responsibility to native Hawaiians'." (Res. Br. 9). The fact that Congress has consistently recognized and appropriated funds to the OHA implicitly affirms its legitimacy. So does the recognition that the "constitution and statutes of the State of Hawaii ... acknowledge the distinct land rights of the Native Hawaiian people as beneficiaries of the public lands trust ... [and] reaffirm and protect the unique right of the Native Hawaiian people to practice and perpetuate their cultural and religious customs, beliefs, practices, and language" (42 U.S.C. § 11701 (3) as quoted in Res. Br. 11). In addition, the Hawaiian Constitution was amended in 1978 to include the OHA after an affirmative vote open to all citizens of the State.

Finally, given the active role that the U.S. Legislature has taken in affirming the "special relationship," and the plenary power given to Congress in acknowledging tribal status (explicitly delegated, in this instance, to the State of Hawaii), it is not appropriate for the Court to deny its existence of that status, or to determine its terms. "Classifications based on Congress' decision to assume a special trust relationship with an indigenous people are not based on race, but rather the unique legal and political status that such a relationship entails," and, furthermore, "the Framers of the Constitution drew no distinctions among different groups of indigenous people in conferring [such] power ... on Congress, and the Framers of the Civil War Amendments never envisioned that those amendments would restrict the ability of Congress to exercise that power" (Res. Br. 14). In other words, by relying on a literal interpretation of said amendments or tribal classifications, the Petitioner was, again, missing the point.

Opinion of the Court edit

The Supreme Court sided with the Petitioner. In a 7–2 decision based entirely on the 15th Amendment, they reversed the judgment of the Court of Appeals for the 9th Circuit, with Justices Stevens and Ginsburg dissenting. Justice Kennedy wrote the opinion for the Court, which was joined by Chief Justice Rehnquist, and Justices O'Connor, Scalia and Thomas. They note that the 15th Amendment is certainly not bound by the language or circumstances surrounding its enactment, and that it is "quite sufficient to invalidate a scheme which did not mention race but instead used ancestry in an attempt to confine and restrict the voting franchise" (16). After all, "ancestry can be a proxy for race. It is that proxy here" (18). The structure of the OHA elections is "neither subtle nor indirect. It is specific in granting the vote to persons of defined ancestry and to no others" (17). The Respondent's argument that "descendants ... of [the] aboriginal peoples" does not mean the same thing as "descendants ... of the races" is "undermined by its express racial purpose and by its actual effects" (20). As for Morton v. Mancari, were Hawaii's voting restrictions to be sustained under that authority, "we would be required to accept some beginning premises not yet established in our case law" (22). Regardless: "Even were we to take the substantial step of finding authority in Congress, delegated to the State, to treat Hawaiians or native Hawaiians as tribes, Congress may not authorize a State to create a voting scheme of this sort" — that is, one that uses race as an eligibility requirement (22). The 15th Amendment is absolute even under such conditions, for the election of OHA trustees is still a State election, to which the Amendment clearly applies. Nor is the restriction based on beneficiary status rather than race, for "although the bulk of the funds for which OHA is responsible appears to be earmarked for the benefit of 'native Hawaiians', the State permits both 'native Hawaiians' and 'Hawaiians' to vote" — that is, both those who qualify with a 50% blood quantum and those who qualify as descendants of residents in 1778 — and "[this] classification thus appears to create, not eliminate, a differential alignment between the identity of OHA trustees and what the State calls beneficiaries" (27). Yet, again, such details are irrelevant to the Court, for "Hawaii's argument fails on more essential grounds ... [i.e.] the demeaning premise that citizens of a particular race are somehow more qualified than others to vote on certain matters. That reasoning attacks the central meaning of the Fifteenth Amendment" (27). The Court's opinion ends with a brief lecture to the State of Hawaii, concluding with the observation that Hawaii must "seek the political consensus that begins with a sense of shared purpose. One of the necessary beginning points is this principle: The Constitution of the United States, too, has become the heritage of all the citizens of Hawaii" (28).

Breyer's concurrence edit

Justice Breyer, in a concurring opinion joined by Justice Souter, elaborates on the problematic analogy between the OHA and a trust for the benefit of an Indian tribe. For Breyer, such a trust does not exist for native Hawaiians under the circumstances, mainly because the OHA electorate "does not sufficiently resemble an Indian tribe" (2). The OHA's hereditary requirement of an ancestor living in Hawaii in 1778 might include persons with "1 possible ancestor out of 500, thereby creating a vast and unknowable body of potential members" (4). This, Breyer believes, goes well beyond any "reasonable" definition of tribal status.

Dissents edit

Justice Stevens' dissent, joined in part by Justice Ginsburg, takes a much more charitable view of the "special relationship" between Hawaii and the United States, believing that "two centuries of Indian law precedent" alone justifies the OHA's voting laws under the Constitution, for "there is simply no invidious discrimination present in this effort to see that indigenous peoples are compensated for past wrongs" (3). He agrees with the Respondent that under Morton v. Mancari preferential treatment is justified if such treatment "can be tied rationally to the fulfillment of Congress' unique obligation towards the Indians" (5). Such obligations, Stevens believes, are implicit in the Apology Resolution of 1993, in addition to the more than 150 "varied laws passed by Congress ... [which] expressly include native Hawaiians as part of the class of Native Americans benefited" (7). Like the Respondent, Stevens believes that to reject the State's claims because native Hawaiians are not technically a "tribe" is to miss the point. There is a "compelling similarity, fully supported by our precedent, between the once subjugated, indigenous peoples of the continental United States and the peoples of the Hawaiian Islands" (8). In addition, Stevens points out that tribal membership alone was not the "decisive factor" when the Court upheld preferential treatment in Morton v. Mancari. In that case, the preference "not only extended to non-tribal member Indians, it also required for eligibility ... a certain quantum of Indian blood" (9). Thus, there is no tribal limitation concerning the Federal Government's authority over considerations for native peoples. "In light of this precedent,” Stevens continues, "it is a painful irony indeed to conclude that native Hawaiians are not entitled to special benefits designed to restore a measure of native self-governance because they currently lack any vestigial native government – a possibility of which history and the actions of this Nation have deprived them." As for Breyer's concurring opinion, Stevens succinctly dismisses the objection that the OHA's definition of native is not "reasonable" by noting simply that "this suggestion does not identify a constitutional defect" (9).

References edit

  1. ^ Rice v. Cayetano, 528 U.S. 495 (2000).   This article incorporates public domain material from this U.S government document.
  2. ^ Rice v. Cayetano, 146 F.3d 1075 (9th Cir. 1998).

External links edit

  • Text of Rice v. Cayetano, 528 U.S. 495 (2000) is available from: Cornell  CourtListener  Findlaw  Google Scholar  Justia  Library of Congress  Oyez (oral argument audio) 

rice, cayetano, this, article, multiple, issues, please, help, improve, discuss, these, issues, talk, page, learn, when, remove, these, template, messages, this, article, relies, excessively, references, primary, sources, please, improve, this, article, adding. This article has multiple issues Please help improve it or discuss these issues on the talk page Learn how and when to remove these template messages This article relies excessively on references to primary sources Please improve this article by adding secondary or tertiary sources Find sources Rice v Cayetano news newspapers books scholar JSTOR November 2019 Learn how and when to remove this template message This article may need to be rewritten to comply with Wikipedia s quality standards You can help The talk page may contain suggestions July 2023 This article is written like a personal reflection personal essay or argumentative essay that states a Wikipedia editor s personal feelings or presents an original argument about a topic Please help improve it by rewriting it in an encyclopedic style July 2023 Learn how and when to remove this template message Learn how and when to remove this template message Rice v Cayetano 528 U S 495 2000 was a case filed in 1996 by Big Island rancher Harold Freddy Rice against the state of Hawaii and argued before the United States Supreme Court In 2000 the Court ruled that the state could not restrict eligibility to vote in elections for the Board of Trustees of the Office of Hawaiian Affairs to persons of Native Hawaiian descent 1 Rice v CayetanoSupreme Court of the United StatesArgued October 6 1999Decided February 23 2000Full case nameHarold F Rice Petitioner v Benjamin J Cayetano Governor of HawaiiCitations528 U S 495 more 120 S Ct 1044 145 L Ed 2d 1007 2000 U S LEXIS 1538 68 U S L W 4138 2000 Cal Daily Op Service 1341 2000 Daily Journal DAR 1881 2000 Colo J C A R 898 13 Fla L Weekly Fed S 105Case historyPriorInjunction denied 941 F Supp 1529 D Haw 1996 summary judgment granted for defendant 963 F Supp 1547 D Haw 1997 affirmed 146 F 3d 1075 9th Cir 1998 cert granted 526 U S 1016 1999 SubsequentRemanded 208 F 3d 1102 9th Cir 2000 HoldingHawaii s denial of the right to vote in OHA trustee elections based on ancestry violates the Fifteenth Amendment Court membershipChief Justice William Rehnquist Associate Justices John P Stevens Sandra Day O ConnorAntonin Scalia Anthony KennedyDavid Souter Clarence ThomasRuth Bader Ginsburg Stephen BreyerCase opinionsMajorityKennedy joined by Rehnquist O Connor Scalia ThomasConcurrenceBreyer in result joined by SouterDissentStevens joined by Ginsburg Part II DissentGinsburgLaws appliedU S Const amend XVRice was represented by attorney John Goemans John Roberts who would later become the Chief Justice of the United States argued for Ben Cayetano the governor of Hawaii at the time The February 2000 court ruling in Rice v Cayetano encouraged Hawaiian sovereignty opponents to file a similar lawsuit Arakaki v State of Hawai i months later As the Rice case resulted in non Hawaiians being allowed to vote in OHA elections the Arakaki case resulted in non Hawaiians being allowed to stand as candidates in OHA elections Contents 1 Background 1 1 Petitioner s argument 1 2 Respondent s argument 2 Opinion of the Court 2 1 Breyer s concurrence 2 2 Dissents 3 References 4 External linksBackground editBeginning in 1978 Hawaii held statewide elections for the trustees of the Office of Hawaiian Affairs OHA an agency charged with disbursing particular funds and benefits to those who may be classified as Native Hawaiians any descendant of not less than one half part of the races inhabiting the Hawaiian Islands previous to 1778 or those who may be classified simply as Hawaiian any descendant s of the aboriginal peoples inhabiting the Hawaiian islands in 1778 and which peoples thereafter have continued to reside in Hawaii By law only Native Hawaiians or Hawaiians could vote for or be elected to this Board of Trustees Harold F Rice was a rancher of European descent whose family had resided in Hawaii since the mid 19th century In March 1996 he attempted to register to vote for the OHA trustees Where that application asked for confirmation that I am also Hawaiian and desire to register to vote in OHA elections Rice scratched out the words am also Hawaiian and and checked Yes Denied eligibility because he was not Hawaiian Rice sued under the 14th and 15th Amendments to the U S Constitution The District Court for the State of Hawaii ruled against Rice due to its conclusion as summarized by the 9th Circuit Court of Appeals that the method of electing OHA trustees meets constitutional standards for the essential reason that the restriction on the right to vote is not based on race but upon recognition of the unique status of native Hawaiians that bears a rational connection to Hawaii s trust obligations The District Court held that the OHA does not sufficiently resemble a typical government bureau with governmental powers and that it is carefully constrained by its overall purpose to work for the betterment of Hawaiians The 9th Circuit Court of Appeals also denied Rice s claim 2 For one thing Rice contended that the legal status of an eligible voter is contingent solely upon race and that Hawaii s contention that such status is a political designation rather than a racial one is an obvious effort to circumvent the Constitution with semantics The Court of Appeals agreed that it might indeed be the case that the political designation is a racial designation under the state s statute yet the constitutionality of the racial classification that underlies the trusts and OHA is not challenged in this case This means that we must accept the trust and their administrative structure as we find them and assume that both are lawful Because Rice had not challenged the OHA s very existence which is predicated on a racial classification the Court could assume that the state may rationally conclude that Hawaiians being the group to whom trust obligations run and to whom OHA trustees owe a duty of loyalty should be the group to decide who the trustees ought to be Thus despite an apparent racial classification for eligibility to vote within the context of the OHA s creation and mandate the classification is actually not primarily racial but legal or political Furthermore the Court of Appeals decided that the OHA trustee election was a special purpose election such as that upheld in Salyer Land Co v Tulare Water District 1973 In that case the election for directors of a certain special purpose water district was limited to landowners in that district The weight of a landowners vote was proportional to the amount of land that was owned and thus seemed to contradict the 14th Amendment s Equal Protection clause The Court held that because these landowners were disproportionately affected by the policies of the water district directors and that such directors existed for a limited purpose and exhibited a lack of normal governmental authority the districts did not violate the Constitution when they denied a vote to those who did not own land in the district and granted votes proportionally to the amount of land owned The elections for the OHA Board of Trustees is similar to that of the water district directors in that the vote is for the limited purpose of electing trustees who have no governmental powers and perform no governmental purposes Also because Hawaiians as defined by statute are those disproportionately affected by the OHA the vote for its trustees may be limited to them Thus this exception to the 14th Amendment was used to justify the Hawaiian voting scheme under objections based on the 15th Amendment Finally the Court of Appeals concluded that the voting restriction for trustees is rooted in historical concern for the Hawaiian race carried through statehood when Hawaii acknowledged a trust obligation toward native Hawaiians and on to 1993 when Congress passed a Joint Resolution apologiz ing to Native Hawaiians on behalf of the people of the United States for the overthrow of the Kingdom of Hawaii and the deprivation of the rights of Native Hawaiians to self determination Thus the 9th circuit held that native Hawaiians were entitled to special treatment much like the special treatment accorded Native American Indians in Morton v Mancari where preferential treatment that is grounded in the government s unique obligation toward Indians is a political rather than a racial classification even though racial criteria may be used in defining eligibility Rice appealed to the Supreme Court There he would argue that the eligibility requirements subverted the original intended purpose of the public lands as written in the Annexation and Organic Acts both of which granted subsequent benefits to all inhabitants of Hawaii regardless of race Therefore he claimed the elections dp not qualify as special purpose under Salyer nor does the eligibility requirement denote a political rather than racial classification Finally he claimed that the protection under Morton v Mancari was inappropriate The Petitioner would deny that there is any special relationship at all for there is no former sovereign or historical relationship clause in the Constitution and the analogy with Indian tribes thus has no legal standing The State of Hawaii disagreed They claimed that native Hawaiian people have a special relationship with the United States indeed a sort of semi sovereign status analogous to that of native Indian tribes which affords them a large measure of self determination They would seek to demonstrate that this status had been legitimized repeatedly by Congress though it had never been made explicit by treaty or codified in the U S Constitution In order to understand this extraordinary defense some background is necessary The Kingdom of Hawaii was an independent sovereign nation from 1810 until 1893 Throughout this period the increasing economic interests of American businessmen began to clash with the interests of the Hawaiian government In 1887 under the threat of violence the Kingdom s Prime Minister was compelled to resign and a new Constitution was implemented This heavily curtailed the administrative power of the monarchy When Queen Lili uokalani took steps in 1893 to counter this imposition she was overthrown in a coup d etat by the Committee of Safety which was composed of white businessmen missionaries and colonists both Hawaiian citizens and foreign nationals The Committee set up a provisional government led by themselves and the next year declared the existence of the Republic of Hawaii In 1898 the Republic accepted annexation by the United States and when President McKinley signed the Annexation and Organic Acts soon thereafter Hawaii became a U S Territory At this time 1 800 000 acres 7 300 km2 of land formerly overseen by the crown were ceded to the United States The Annexation Act stipulated that all revenues and proceeds from the use of this public land would be used solely for the benefit of the inhabitants of the Hawaiian Islands for educational and other purposes The Organic Act similarly held that all funds arising from the sale or lease or other disposal shall be applied such uses and purposes for the benefit of the inhabitants of the Territory of Hawaii Seeing the subsequent cultural and economic decline of Hawaii s native population in 1920 the U S Congress passed the Hawaiian Homes Commission Act HHCA which placed 200 000 of those acres under the authority of said Commission such that they could be leased by Native Hawaiians for token sums A Native Hawaiian was defined as any descendant of not less than one half part of the blood of the races inhabiting the Hawaiian Islands previous to 1778 That date 1778 is the year in which Captain Cook discovered the islands and thus the date of the first known Western presence When Hawaii became a state in 1959 it was agreed that the state would include the HHCA in its own Constitution including the specific definition of Native Hawaiian In 1978 the state Constitution was amended to provide for the Office of Hawaiian Affairs OHA which would hold the lease on those lands not already under the purview of the HHCA The OHA lands would be similarly held in a trust managed for the benefit of Native Hawaiians Petitioner s argument edit For the Petitioner the relevant history of Hawaii begins with the Annexation Resolution not in the previous era of sovereignty Claims of sovereignty based upon the status or political standing of Natives prior to the 1893 coup are both mistaken and irrelevant The Petitioner s Brief notes that at the time of their transfer these public lands were held by the Republic of Hawaii free and clear of any encumbrances or trust obligations None of the former citizens of the Hawaiian kingdom held any cognizable interest in these lands 3 To support this claim the Petitioner notes that only the Monarch enjoyed title to Crown lands When these lands were ceded by the Republic of Hawaii to the United States the Resolution stipulated that these lands would be used solely for the benefit of the inhabitants of the Hawaiian Islands for educational and other public purposes Emphasis added by Petitioner The Petitioner would use population statistics up through the turn of the 20th century to show that the Kingdom of Hawaii had been consciously multiracial and thus the term inhabitants referred to numerous races including Westerners Furthermore the date of 1778 had obviously been chosen for the eligibility requirements because it marks the last days of what might be characterized as the era of relative racial purity in the Hawaiian Islands 25 Any claim of a connection between that date and sovereignty status for native Hawaiians is bogus for the Kingdom of Hawaii did not exist until 1810 Also during the era of the Hawaiian kingdom many who would not qualify as Hawaiian under the OHA statute were in fact full citizens of the Kingdom In particularly strong terms the OHA is denounced for using a blood quantum to define eligibility status a requirement that is disturbingly reminiscent of the Blood Protection and Citizenship laws adopted as part of the infamous Nuremberg Laws The Petitioner also denies that Salyer with its special limited purpose exception to the 14th Amendment s Equal Protection clause is appropriate in this case First because Salyer dealt with land ownership and not race it does not apply to begin with The 9th Circuit Court thus made a grievous error when it determined that this case was not the sort of election that has previously triggered Fifteenth Amendment analysis Pet Br 18 Such a determination would create an infinitely elastic loophole in which anyone could circumvent the 15th amendment by simply claiming that the purposes of any such election was limited The Petitioner quotes Terry v Adams 1953 which held that the 15th Amendment s prohibition of race based election laws included any election in which public issues are decided or public officials selected 19 Furthermore Salyer is an inappropriate defense under the 15th Amendment because it was decided as an exception to the 14th Amendment due to that amendment s one man one vote rule Thus it cannot be applied to the 15th Amendment s explicit ban on race based qualifications The Petitioner quotes from Gomillion v Lightfoot 1960 to illustrate that the 15th Amendment is absolute no matter how carefully constructed the means to a racially discriminatory end That case concerned a district in Alabama that had been drafted such that it excluded all potential non white voters Though race was mentioned nowhere in the statute it had been struck down due to the clearly racially discriminatory result Quoting Lane v Wilson 1939 as well the Petitioner notes that the 15th Amendment nullifies sophisticated as well as simple minded modes of discrimination and goes on to say that In contrast to the purportedly race neutral grandfather clauses white primaries and gerrymanders invalidated in the foregoing cases the OHA voting restriction is startlingly simple minded Hawaii closes its election booth to anyone who fails its racial test 16 The OHA cannot be justified on the grounds that enfranchisement is limited to those who are the interested parties for the same logic could have been applied to the Gomillion gerrymander case Both constitute attempts to achieve a racially pure voting bloc justified on the ground that the right to vote has merely been limited to those primarily affected by the decisions of the elected officials Besides the entire concept of an exception under Salyer is inapplicable in the first place even if it did constitute an exception to the 15th as well as the 14th amendment This is because the disproportionate effect prong requires at a minimum that the costs of those activities be borne disproportionately by those granted the right to vote the Salyer exception therefore cannot be applied to the OHA a state agency that expends substantial funds drawn from taxes paid by all citizens of Hawaii without regard to race 20 Because those state officials chosen in OHA elections manage and spend both legislative appropriations and public lands proceeds it is axiomatic that all Hawaiian citizens have a legitimate interest in the proper management of those funds 20 21 Furthermore the comparative wealth of those funds and the sweeping authority with which the OHA manages them along with the numerous and government like programs that it administers render the comparison between a small water storage district and the OHA untenable More controversially the Petitioner discounts the idea that there is a compelling state interest in limiting the OHA elections based on the history the State s relationship with native Hawaiians i e in order to protect against current discrimination or offset the effects of past discrimination Nothing in the record demonstrates the existence of any past or present discrimination against racial Hawaiians 31 The Petitioner sarcastically notes that The Respondent now takes the position that the State of Hawaii has a compelling interest in engaging in blatant discrimination today and indefinitely into the future in order to make up for even handed treatment of all Hawaiian citizens regardless of race in the past 32 Nor may a compelling interest be inferred from the necessity for the State to uphold its trust relationship with the natives for the Supreme Court has never held that a legislatively declared trust relationship suffices to justify racial discrimination in voting 31 Furthermore the use of Morton v Mancari to illustrate the nature of that implied special relationship has no bearing on Hawaii For one thing in recognizing that the Constitution s Indian Commerce and Treaty Clauses denotes such a relationship for Indian Tribes Morton v Mancari s outcome was expressly predicated on the fact that the challenged preference involved a tribal rather than racial classification 39 More importantly native Hawaiians do not constitute a federally recognized Indian Tribe The Petitioner notes that the 1867 treaty which ceded Alaska included a clause by which all inhabitants would be given U S citizenship with the exception of the uncivilized native tribes By contrast the Organic Act of 1900 which granted territorial status to Hawaii provided citizenship to all persons who were citizens of the Republic of Hawaii in 1898 This of course included native Hawaiians the Petitioner then points out that in fact these Native Hawaiians were the dominant political group in Hawaii for several decades after annexation and were well represented in all forms of public office 43 Thus the special relationship or trust based on tribal sovereignty no bearing on the situation in Hawaii Respondent s argument edit Naturally the Respondent did not agree After reiterating that the voting qualifications are political rather than racial and that the elections qualify for limited purpose and disproportionate effect exceptions the Respondent turns quickly to the heart of the matter the special relationship Though native Hawaiians are not formally recognized as an Indian tribe Congress and the Court have recognized a special obligation to America s first inhabitants and their descendants and have recognized that Congress is empowered to honor that obligation as it sees fit Res Br 2 Because Congress has explicitly noted that such an obligation pertains to Alaskan Natives despite their distinction from traditional Indian tribes of the lower 48 states it naturally follows that this distinction extends to Hawaiian natives as well For the Petitioner to rely on the literal wording of treaties signed at the turn of the 20th century misses the point entirely Indeed by 1898 the era of treaty making with the indigenous people of the American continent had come to an end and this is why there is no mention of such a distinction in the Annexation Act 6 Yet with the creation of the HHCA in 1921 Congress has recognized that it has a special relationship with indigenous Hawaiians and has sought to enable them to benefit in some measure from their homelands 6 The Respondent goes on to quote Congress contemporary assertion that the HHCA affirm ed the trust relationship between the United States and the Native Hawaiians 42 U S C 11701 13 as well as the statement that In recognition of the special relationship which exists between the United States and the Native Hawaiian people it has extended to Native Hawaiians the same rights and privileges accorded to American Indian Alaska Native Eskimo and Aleut communities 20 U S C 7902 13 both as quoted in Respondent s Brief 8 9 Special attention is given to the 1993 Joint Resolution of Congress known as the Apology Resolution which expressed regret for the role of the United States in the 1893 coup and the deprivation of the rights of Native Hawaiians to self determination The Respondent further notes that The apology resolution specifically acknowledged that the health and well being of the Native Hawaiian people is intrinsically tied to the land that land was taken from Hawaiians without their consent or compensation and that indigenous Hawaiians have never directly relinquished their claims over their national lands 8 The Respondent cites numerous other Congressional utterances that refer to special or trust relationships or which refer to Native Hawaiians as distinct or unique indigenous peoples In creating the OHA and the voting requirements thereof Hawaii was simply reaffirming the solemn trust obligation and responsibility to native Hawaiians Res Br 9 The fact that Congress has consistently recognized and appropriated funds to the OHA implicitly affirms its legitimacy So does the recognition that the constitution and statutes of the State of Hawaii acknowledge the distinct land rights of the Native Hawaiian people as beneficiaries of the public lands trust and reaffirm and protect the unique right of the Native Hawaiian people to practice and perpetuate their cultural and religious customs beliefs practices and language 42 U S C 11701 3 as quoted in Res Br 11 In addition the Hawaiian Constitution was amended in 1978 to include the OHA after an affirmative vote open to all citizens of the State Finally given the active role that the U S Legislature has taken in affirming the special relationship and the plenary power given to Congress in acknowledging tribal status explicitly delegated in this instance to the State of Hawaii it is not appropriate for the Court to deny its existence of that status or to determine its terms Classifications based on Congress decision to assume a special trust relationship with an indigenous people are not based on race but rather the unique legal and political status that such a relationship entails and furthermore the Framers of the Constitution drew no distinctions among different groups of indigenous people in conferring such power on Congress and the Framers of the Civil War Amendments never envisioned that those amendments would restrict the ability of Congress to exercise that power Res Br 14 In other words by relying on a literal interpretation of said amendments or tribal classifications the Petitioner was again missing the point Opinion of the Court editThe Supreme Court sided with the Petitioner In a 7 2 decision based entirely on the 15th Amendment they reversed the judgment of the Court of Appeals for the 9th Circuit with Justices Stevens and Ginsburg dissenting Justice Kennedy wrote the opinion for the Court which was joined by Chief Justice Rehnquist and Justices O Connor Scalia and Thomas They note that the 15th Amendment is certainly not bound by the language or circumstances surrounding its enactment and that it is quite sufficient to invalidate a scheme which did not mention race but instead used ancestry in an attempt to confine and restrict the voting franchise 16 After all ancestry can be a proxy for race It is that proxy here 18 The structure of the OHA elections is neither subtle nor indirect It is specific in granting the vote to persons of defined ancestry and to no others 17 The Respondent s argument that descendants of the aboriginal peoples does not mean the same thing as descendants of the races is undermined by its express racial purpose and by its actual effects 20 As for Morton v Mancari were Hawaii s voting restrictions to be sustained under that authority we would be required to accept some beginning premises not yet established in our case law 22 Regardless Even were we to take the substantial step of finding authority in Congress delegated to the State to treat Hawaiians or native Hawaiians as tribes Congress may not authorize a State to create a voting scheme of this sort that is one that uses race as an eligibility requirement 22 The 15th Amendment is absolute even under such conditions for the election of OHA trustees is still a State election to which the Amendment clearly applies Nor is the restriction based on beneficiary status rather than race for although the bulk of the funds for which OHA is responsible appears to be earmarked for the benefit of native Hawaiians the State permits both native Hawaiians and Hawaiians to vote that is both those who qualify with a 50 blood quantum and those who qualify as descendants of residents in 1778 and this classification thus appears to create not eliminate a differential alignment between the identity of OHA trustees and what the State calls beneficiaries 27 Yet again such details are irrelevant to the Court for Hawaii s argument fails on more essential grounds i e the demeaning premise that citizens of a particular race are somehow more qualified than others to vote on certain matters That reasoning attacks the central meaning of the Fifteenth Amendment 27 The Court s opinion ends with a brief lecture to the State of Hawaii concluding with the observation that Hawaii must seek the political consensus that begins with a sense of shared purpose One of the necessary beginning points is this principle The Constitution of the United States too has become the heritage of all the citizens of Hawaii 28 Breyer s concurrence edit Justice Breyer in a concurring opinion joined by Justice Souter elaborates on the problematic analogy between the OHA and a trust for the benefit of an Indian tribe For Breyer such a trust does not exist for native Hawaiians under the circumstances mainly because the OHA electorate does not sufficiently resemble an Indian tribe 2 The OHA s hereditary requirement of an ancestor living in Hawaii in 1778 might include persons with 1 possible ancestor out of 500 thereby creating a vast and unknowable body of potential members 4 This Breyer believes goes well beyond any reasonable definition of tribal status Dissents edit Justice Stevens dissent joined in part by Justice Ginsburg takes a much more charitable view of the special relationship between Hawaii and the United States believing that two centuries of Indian law precedent alone justifies the OHA s voting laws under the Constitution for there is simply no invidious discrimination present in this effort to see that indigenous peoples are compensated for past wrongs 3 He agrees with the Respondent that under Morton v Mancari preferential treatment is justified if such treatment can be tied rationally to the fulfillment of Congress unique obligation towards the Indians 5 Such obligations Stevens believes are implicit in the Apology Resolution of 1993 in addition to the more than 150 varied laws passed by Congress which expressly include native Hawaiians as part of the class of Native Americans benefited 7 Like the Respondent Stevens believes that to reject the State s claims because native Hawaiians are not technically a tribe is to miss the point There is a compelling similarity fully supported by our precedent between the once subjugated indigenous peoples of the continental United States and the peoples of the Hawaiian Islands 8 In addition Stevens points out that tribal membership alone was not the decisive factor when the Court upheld preferential treatment in Morton v Mancari In that case the preference not only extended to non tribal member Indians it also required for eligibility a certain quantum of Indian blood 9 Thus there is no tribal limitation concerning the Federal Government s authority over considerations for native peoples In light of this precedent Stevens continues it is a painful irony indeed to conclude that native Hawaiians are not entitled to special benefits designed to restore a measure of native self governance because they currently lack any vestigial native government a possibility of which history and the actions of this Nation have deprived them As for Breyer s concurring opinion Stevens succinctly dismisses the objection that the OHA s definition of native is not reasonable by noting simply that this suggestion does not identify a constitutional defect 9 References edit Rice v Cayetano 528 U S 495 2000 nbsp This article incorporates public domain material from this U S government document Rice v Cayetano 146 F 3d 1075 9th Cir 1998 External links editText of Rice v Cayetano 528 U S 495 2000 is available from Cornell CourtListener Findlaw Google Scholar Justia Library of Congress Oyez oral argument audio Retrieved from https en wikipedia org w index php title Rice v Cayetano amp oldid 1197080341, wikipedia, wiki, book, books, library,

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