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Ðthis€determination€is€insignificant€to€the€application€of€eitherÐ ´  Ðsection€in€this€case,€as€the€sections€differ€only€slightly.€Ð Š Ú ÐòòCompareóó€ðð€151.10€òòwithóó€ðð€151.11.€€As€we€have€previously€noted,€theÐ ` ° ÐParcel€is€adjacent€to€the€Settlement€Lands,€but€separated€from€themÐ 6 †  Ðby€a€town€road.€€òòÔ_ÔNarragansettÔ_Ô€Elec.€Co.óó,€89€F.3d€at€911. ùÝ ƒ„VÃ$ÝÔ€X'XXXÔÓ  ÓòòÚ  Ú1Ú  Úóó€€Ý  ÝÔ_ÔThe€parcel€is€known€as€Assessor's€Plat€117,€Lot€119€ofÐ ° ÐÔ_ÔCharlestownÔ_Ô,€Rhode€Island.(ÍO$——ÔÿÔòòóóÔÿÔ<\dÿÿ:documentbodyÔ‡ÛÛÛÔÔC‡ $‹VerdanaCÔÔ‡ôôôÔÔK‡<þ6X9`(‹Courier NewKÔ JÝ ƒ„VÃ$ÝÔ€X'XXXÔÓ  ÓòòÚ  Ú2Ú  Úóó€€Ý  ÝÔ_ÔThese€federal€funds€were€authorized€and€appropriated€in€1978€andÐ ° Ðthe€900€acres€of€land€was€subsequently€purchased.€€25€U.S.C.Ð †Ö Ððððð1702(d),€1703,€1704,€1707,€1710€(1978).$ÿÿ359=AEIMQ111111111 d(J2VÃ$¤¤Ý ƒîí!ÝÔ€X.bXXXÔÝ  ÝÓ  ÓòòÚ  Ú0Ú  Úóó€€Ý ƒîí!ÝÔ€X'XXXÔÝ  ÝÔ_ÔÔ€XðÞXXX'ÔÔ€°Vº°XXðÞÔÑ€ÑÑ8€'XXdÖdÈ8ÑÑ  ÑÙ*ƒ!Ùà@4 4 ìàUnited€States€Court€of€AppealsˆÐ ° ÐÔ€„LN„°°VºÔà@   ìàFor€the€First€CircuitˆÐ „Ô ÐÌÔ€„Å„„„LNÔÔ€X'X„„ÅÔßA€y) °°` dE<C ` AßÐ D ” ÐÌÌNo.€03„2647Ð ÿ O Ðà  àà ` àà ¸ àà  àà h àà À àà  àÌà@  ìàDONALD€L.€CARCIERI,€in€his€capacity€asˆÐ « û Ðà@  ìàGovernor€of€the€State€of€Rhode€Island,ˆÐ  Ñ  Ðà@ppìàSTATE€OF€RHODE€ISLAND€and€PROVIDENCE€PLANTATIONS,ˆÐ W§  Ðà@44ìàa€sovereign€state€of€the€United€States€of€America,ˆÐ -}  Ðà@  ìàand€TOWN€OF€CHARLESTOWN,€RHODE€ISLAND,ˆÐ S  ÐÌà@ˆˆìàPlaintiffs,€Appellants,ˆÐ ¯ÿ  ÐÌà@tt)ìàv.ˆÐ [« ÐÌà@Ø Ø ìàGALE€A€NORTON,€in€her€capacity€as€à@@œ œ ìàSecretaryˆÐ W Ðà@ô ô ìàof€the€Department€of€the€Interior,ˆÐ Ý- Ðà@œ œ ìàUnited€States€of€America,€and€FRANKLIN€KEEL,ˆÐ ³ Ðà@èèìàin€his€capacity€as€Eastern€Area€Director€of€theˆÐ ‰Ù Ðà@DDìàBureau€of€Indian€Affairs,€within€the€Department€of€theˆÐ _¯ Ðà@¸ ¸ ìàInterior,€United€States€of€America,ˆÐ 5… ÐÌà@ÄÄìàDefendants,€Appellees.ˆÐ á1 ÐÌÌßA€y) °°` d³E<b` AßÐ c³ ÐÌà@œ œ ìàAPPEAL€FROM€THE€UNITED€STATES€DISTRICT€COURTˆÐ H˜ Ðà@l l ìàFOR€THE€DISTRICT€OF€RHODE€ISLANDˆÐ n Ðà@Œ Œ ìà[Hon.€Mary€M.€Lisi,€òòU.S.€District€Judgeóó]ˆÐ ôD  ÐÌßA€y) °°` d³E<Ÿ!` AßÐ  !ð" ÐÌà@„„'ìàBeforeˆÐ …"Õ$ ÐÌà@ìàTorruella,€òòCircuit€Judgeóó,ˆÐ 1$& Ðà@ÄÄìàHoward,€òòCircuit€Judgeóó,ˆÐ %W ' Ðà@” ” ìàand€DiClerico,€Jr.,׃×Ý ƒÃÝòòÚ  Ú*Ú  ÚóóÝ  Ý×  ×€òòDistrict€Judgeóó.ˆÐ Ý%-!( ÐÌßA€y) °°` dE<ˆ'` AßÐ ‰'Ù"* ÐÌÓ  Óà  àòòJoseph€S.€Larisa,€Jr.óó,€Assistant€Solicitor€for€Indian€Affairs,€Ð n(¾#, Ðwas€on€brief,€for€appellant€Town€of€Charlestown.Ð D)”$- Ðà  àòòClaire€J.€Richardsóó,€Special€Counsel,€was€on€brief,€forÐ *j%. Ðappellant€Governor€Donald€L.€Carcieri.Ð ð*@&/ Ðà  àòòNeil€F.X.€Kellyóó,€Assistant€Attorney€General,€with€whom,Ð ° ÐòòPatrick€C.€Lynchóó,€Attorney€General,€were€on€brief,€for€appellantÐ †Ö ÐState€of€Rhode€Island.Ð \¬ Ðà  àòòThomas€L.€Sansonettióó,€Assistant€Attorney€General,€with€whomÐ 2‚ ÐòòJeffrey€Bossert€Clarkóó,€Deputy€Assistant€Attorney€General,€òòMary€AnneÐ X ÐKenworthyóó,€Office€of€the€Solicitor,€U.S.€Department€of€theÐ Þ. ÐInterior,€òòWilliam€B.€Lazarusóó,€òòJudith€Rabinowitzóó,€òòDavid€C.€ShiltonóóÐ ´  Ðand€òòElizabeth€Ann€Petersonóó,€Attorneys,€Environmental€and€NaturalÐ Š Ú ÐResources€Division,€U.S.€Department€of€Justice,€were€on€brief,€forÐ ` ° Ðthe€federal€appellees.Ð 6 †  Ðà  àòòRiyaz€A.€Kanjióó,€with€whom€òòKanji€&€Katzen,€PLLCóó,€òòTracy€Labinóó,Ð  \  ÐòòRichard€Guestóó,€of€the€Native€American€Rights€Fund,€òòIan€HeathÐ â 2  ÐGershengornóó,€òòSam€Hirschóó,€òòJenner€&€Block€LLPóó,€and€òòJohn€Dossettóó€ofÐ ¸  Ðthe€National€Congress€of€American€Indians,€were€on€brief,€for€theÐ ŽÞ  Ðamici€curiae€National€Congress€of€American€Indians,€IndividualÐ d´  ÐIndian€Tribes,€and€Tribal€Organizations.Ð :Š  Ðà  àòòLarry€Longóó,€Attorney€General€for€the€State€of€South€Dakota,Ð `  Ðwith€whom€òòJohn€P.€Guhinóó,€Deputy€Attorney€General,€òòRichardÐ æ6 ÐBlumenthalóó,€Attorney€General€for€the€State€of€Connecticut,€withÐ ¼  Ðwhom€òòSusan€Quinn€Cobbóó,€Assistant€Attorney€General,€òòMark€L.Ð ’â ÐShurtleffóó,€Attorney€General€for€the€State€of€Utah,€òòPhill€Klineóó,Ð h¸ ÐAttorney€General€for€the€State€of€Kansas,€òòLawrence€G.€Wasdenóó,Ð >Ž ÐAttorney€General€for€the€State€of€Idaho,€òòGregg€D.€Renkesóó,€AttorneyÐ d ÐGeneral€for€the€State€of€Alaska,€òòWilliam€H.€Pryor,€Jr.óó,€AttorneyÐ ê: ÐGeneral€for€the€State€of€Alabama,€òòJeremiah€W.€(Jay)€Nixonóó,€AttorneyÐ À ÐGeneral€for€the€State€of€Missouri,€òòWilliam€H.€Sorrellóó,€AttorneyÐ –æ ÐGeneral€for€the€State€of€Vermont,€òòWayne€Stenehjemóó,€Attorney€GeneralÐ l¼ Ðfor€the€State€of€North€Dakota,€were€on€brief,€for€the€amici€curiaeÐ B’ ÐStates€of€Alabama,€Alaska,€Connecticut,€Idaho,€Kansas,€Missouri,Ð h ÐNorth€Dakota,€South€Dakota,€Utah€and€Vermont.Ð î> Ðà  àòòStephen€P.€Colletteóó,€with€whom€òòStephen€P.€Collette€&€Assocs.óó,Ð Ä Ðwas€on€brief,€for€the€amicus€curiae€National€Coalition€AgainstÐ šê ÐGambling€Expansion.Ð pÀ  Ðà  àòòC.€Bryant€Rogersóó,€with€whom€òòRoth,€VanAmberg,€Rogers,€Ortiz€&Ð F –! ÐYepa,€LLPóó,€òòCharles€A.€Hobbsóó,€and€òòHobbs,€Straus,€Dean€&€Walker,€LLPóó,Ð !l" Ðwere€on€brief,€for€the€amicus€curiae€Mississippi€Band€of€ChoctawÐ ò!B# ÐIndians.Ð È"$ ÐÌÌßA€y) °°` dàE<I%` AßÐ J%š ' ÐÌÓ  ÓFebruary€9,€2005Ð /&!) ÐÓLÓÌßA€y) °°` d E<Ú'` AßÐ  Û'+#+ ÐÑ  ÑÓÓÙ*!ÙØØÑ8€'XXdÖXXdÖ8ÑÑ€ÑÓ*°,X°` ¨ ƒX°œX*Óà ` àò òTORRUELLA,€òòCircuit€Judgeóó.ó ó€€This€appeal€arises€from€anÐ ° Ðadministrative€decision€by€the€Secretary€of€the€Interior€to€takeÐ xÈ Ðinto€trust€a€31„acre€parcel€of€land€located€in€Charlestown,€RhodeÐ $t ÐIsland€("the€Parcel")׃X×Ý ƒÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€for€the€benefit€of€the€Narragansett€IndianÐ Ð  ÐTribe€of€Rhode€Island.€€Plaintiffs„appellants€Donald€L.€Carcieri,Ð | Ì ÐGovernor€of€Rhode€Island,€the€State€of€Rhode€Island,€and€the€TownÐ ( x  Ðof€Charlestown,€Rhode€Island€("the€State")€brought€suit€againstÐ Ô$  Ðdefendants„appellees€Gale€A.€Norton,€Secretary€of€the€United€StatesÐ €Ð  ÐDepartment€of€the€Interior,€and€Franklin€Keel,€Eastern€AreaÐ ,|  ÐDirector,€Bureau€of€Indian€Affairs,€U.S.€Department€of€the€InteriorÐ Ø( Ð("the€Secretary")€seeking€to€enjoin€the€decision€as€contrary€to€theÐ „Ô ÐIndian€Reorganization€Act,€25€U.S.C.€ðð€461€òòet€seq.óó,€the€RhodeÐ 0€ ÐIsland€Indian€Claims€Settlement€Act,€25ò ò€ó óU.S.C.€ðð€1701€òòet€seq.óó,€theÐ Ü, ÐAdministrative€Procedures€Act,€5€U.S.C.€ðð€706,€and€for€allegedÐ ¤ô Ðviolations€of€various€provisions€of€the€United€States€Constitution.€Ð P  ÐThe€parties€issued€cross„motions€for€summary€judgment€and€theÐ üL Ðdistrict€court€denied€the€State's€motion€and€granted€theÐ ¨ø  ÐSecretary's€motion.€€The€State€now€appeals€the€district€court'sÐ T!¤" Ðgrant€of€summary€judgment€in€favor€of€the€Secretary.Ð #P$ Ðà@¤¤#ìàò òI.€€Backgroundó óˆÐ ¬$ü& Ðà ` àThe€Narragansetts€were€aboriginal€inhabitants€of€what€isÐ t&Ä!( Ðnow€Rhode€Island.€€òòSeeóó€òòNarragansett€Indian€Tribeóó€v.€òòNat'l€IndianÐ  (p#* ÐGaming€Comm'nóó,€158€F.3d€1335,€1336€(D.C.€Cir.€1998)€(citingÐ ° ÐWilliamG.€McLoughlin,€òòRhode€Islandóó€4„5,€9„10€(1978)).€€In€1975,Ð \¬ Ðthe€Narragansetts€instituted€two€suits€against€the€State€of€RhodeÐ X ÐIsland,€the€Town€of€Charlestown€and€individual€landowners€toÐ ´  Ðrecover€3200€acres€of€land€in€Charlestown.€€òòNarragansett€Tribe€ofÐ ` ° ÐIndiansóó€v.€òòSouthern€R.I.€Land€Dev.€Corp.óó,€418€F.€Supp.€798€(D.R.I.Ð  \  Ð1976);€òòNarragansett€Tribe€of€Indiansóó€v.€òòMurphyóó,€426€F.€Supp.€132Ð ¸  Ð(D.R.I.€1976).€€The€Tribe€asserted€that€its€aboriginal€title€to€theÐ d´  Ðland€had€not€been€extinguished€because€each€of€the€defendantsÐ `  Ðtraced€his€title€back€to€an€unlawful€alienation€of€tribal€land€inÐ ¼  Ðviolation€of€the€Trade€and€Intercourse€Act€of€1790,€25€U.S.C.Ð h¸ Ððð177,€due€to€the€lack€of€congressional€approval€of€the€sale.€€òòSeeóóÐ d ÐòòS.€R.I.€Land€Dev.€Corp.óó,€418€F.€Supp.€at€802„3€(recounting€theÐ À Ðhistory€of€the€dispute).Ð l¼ Ðò òA.€€The€Settlement€Agreementó óÐ h Ðà ` àOn€February€28,€1978€the€parties€settled€the€lawsuits€byÐ à0 Ðentering€an€agreement,€the€terms€of€which€were€set€out€in€a€JointÐ ŒÜ  ÐMemorandum€of€Understanding€("JMOU")€signed€by€the€State,€theÐ 8!ˆ" ÐTribe,€the€Town€and€others.€€òòSeeóó€òòStateóó€v.€òòNarragansett€IndianÐ ä"4$ ÐTribeóó,€19€F.3d€685,€689€(1st€Cir.€1993);€H.R.€Rep.€No.€95„1453,€atÐ $à& Ð25€(1978),€òòreprinted€inóó€1978€U.S.C.C.A.N.€1948.€€In€the€JMOU€theÐ <&Œ!( ÐState€agreed€to€provide€900€acres€of€land€to€the€Narragansetts,€andÐ è'8#* Ðâ âthe€parties€agreed€that€the€federal€government€would€provide€$3.5Ð ”)ä$, Ðmillion€for€the€acquisition€of€an€additional€900€acres.׃]×Ý ƒÃÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×€€TheÐ ° Ðâ âresulting€1800€acres€were€to€be€held€in€trust€for€the€benefit€ofÐ \¬ Ðthe€tribe€by€a€state„chartered€entity,€the€Narragansett€Indian€LandÐ X ÐManagement€Corporation,€which€was€created€for€this€purpose.€€TheÐ ´  Ðparties€further€agreed€"[t]hat€Federal€legislation€shall€beÐ ` ° Ðobtained€that€eliminates€all€Indian€claims€of€any€kind,€whetherÐ  \  Ðpossessory,€monetary€or€otherwise,€involving€land€in€Rhode€Island,Ð ¸  Ðand€effectively€clears€the€titles€of€landowners€in€Rhode€Island€ofÐ d´  Ðany€such€claim."€€JMOU€para.€6;€H.R.€Rep.€No.€95„1453,€at€25,€26;€Ð `  Ðòòsee€alsoóó€25€U.S.C.€ðð€1708.€€In€addition,€the€parties€agreed€thatÐ ¼  Ð"except€as€otherwise€specified€in€this€Memorandum,€all€laws€of€theÐ h¸ Ðstate€of€Rhode€Island€shall€be€in€full€force€and€effect€on€theÐ d ÐSettlement€Lands,€including€but€not€limited€to€state€and€localÐ À Ðbuilding,€fire€and€safety€codes."€€JMOU€ðð€13;€H.R.€Rep.€No.€95„Ð l¼ Ð1453,€at€26;€òòsee€alsoóó€25€U.S.C.€ðð€1708.Ð h Ðà ` àSubsequently,€both€the€United€States€Congress€and€theÐ Ä ÐRhode€Island€General€Assembly€enacted€the€required€implementingÐ pÀ  Ðlegislation.€€Rhode€Island€Indian€Claims€Settlement€Act,€25€U.S.C.Ð !l" Ððð€1701€òòet€seq.óó€(2000)€(effective€September€30,€1978)€("theÐ È"$ ÐSettlement€Act");€R.I.€Gen.€Laws€ðððð€37„18„1€to€37„18„15€(1997)Ð t$Ä& Ðâ â(effective€1979).Ð  &p!( Ðà ` àAt€the€time€of€its€lawsuits,€the€Narragansett€communityÐ ° Ðâ âwas€not€a€federally€recognized€tribe;€rather,€it€was€incorporatedÐ \¬ Ðas€a€Rhode€Island€nonbusiness€corporation€known€as€the€NarragansettÐ X ÐTribe€of€Indians.€€In€1983,€the€Secretary€formally€acknowledged€theÐ ´  ÐNarragansett€Tribe€as€a€federally€recognized€tribe.€€FinalÐ ` ° ÐDetermination€for€Federal€Acknowledgment€of€Narragansett€IndianÐ  \  ÐTribe€of€Rhode€Island,€48€Fed.Reg.€6177€(Feb.€2,€1983).Ð ¸  Ðà ` àIn€1985,€the€State€transferred€the€Settlement€Lands€toÐ d´  Ðthe€Tribe,€and€the€state„chartered€Narragansett€Indian€LandÐ `  ÐManagement€Corporation€that€had€held€the€land€in€trust€on€behalf€ofÐ ¼  Ðthe€tribe€was€dissolved.€€6A€R.I.Gen.€Laws€37„18„12to18„14.€Ð h¸ ÐThen,€in€1988,€following€application€by€the€Tribe,€the€SettlementÐ d ÐLands€were€taken€into€trust€by€the€federal€government€pursuant€toÐ À Ðsection€5€of€the€Indian€Reorganization€Act€("IRA"),€€enactedÐ l¼ ÐJune18,€1934,€ch.€576,€ðð€5,€codified€as€25€U.S.C.€ðð€465€(2004).€Ð h ÐThe€deed€transferring€the€Settlement€Lands€to€the€Bureau€of€IndianÐ Ä ÐAffairs€("BIA")€expressly€recognized€that€this€transfer€into€trustÐ pÀ  Ð"does€not€alter€the€applicability€of€state€law€conferred€by€theÐ !l" ÐRhode€Island€Indian€LandClaims€Settlement€Act."€€In€addition,€thisÐ È"$ Ðcourt€has€held,€with€some€exceptions,€that€the€Settlement€ActÐ t$Ä& Ðallows€State€civil€and€criminal€jurisdiction€over€the€SettlementÐ  &p!( ÐLands,€although€the€Tribe€has€"concurrent€jurisdiction€over,€andÐ Ì'#* Ðexercise[s]€governmental€power€with€respect€to,€those€lands."€Ð x)È$, ÐòòNarragansett€Elec.€Co.óó,€89€F.3d€at€913€(quoting€òòRhode€Islandóó€v.Ð $+t&. ÐòòNarragansett€Indian€Tribeóó,€19€F.3d€685,€689€(1st€Cir.€1994)Ð ° Ð(holding€that€the€Indian€Gaming€Regulatory€Act,€25€U.S.C.€ðððð€2701„Ð \¬ Ð2721,€18€U.S.C.€ðððð€1166„1168,€applies€to€the€Settlement€Lands)).Ð X Ðò òB.€€The€Parceló óÐ ´  Ðà ` àThe€31„acre€Parcel€that€is€the€subject€of€this€disputeÐ | Ì Ðwas€part€of€the€3200€acres€that€were€claimed€by€the€Tribe€in€theÐ ( x  Ð1976€lawsuits,€but€the€Parcel€did€not€become€part€of€the€1800€acresÐ Ô$  Ðof€Settlement€Lands.€€òòCarcierióó€v.€òòNortonóó,€290€F.€Supp.€2d€167,€170Ð €Ð  Ð(D.R.I.€2003).€€The€Parcel€is€adjacent€to€the€Settlement€Lands,€butÐ ,|  Ðseparated€from€them€by€a€town€road.€€òòId.óó€(citing€òòNarragansettÐ Ø( ÐIndian€Tribe€of€R.I.óó€v.€òòNarragansett€Elec.€Co.óó,€89€F.3d€908,€911Ð „Ô Ð(1st€Cir.€1996)).€€In€1991,€the€Parcel€was€purchased€from€a€privateÐ 0€ Ðdeveloper€by€the€Narragansett€Indian€Wetuomuck€Housing€AuthorityÐ Ü, Ð(the€"WHA")€for€the€purpose€of€constructing€a€housing€complex.€€òòId.óó€Ð ˆØ ÐThe€United€States€Department€of€Housing€and€Urban€DevelopmentÐ 4„ Ð("HUD")€recognized€the€WHA€as€an€Indian€Housing€Authority€andÐ à0 Ðprovided€the€financing€for€the€purchase€of€the€Parcel€andÐ ŒÜ  Ðconstruction€of€approximately€fifty€housing€units€on€the€site.€€òòId.óó€Ð 8!ˆ" ÐThe€HUD€funds€were€provided€pursuant€to€the€Indian€Housing€Act€ofÐ ä"4$ Ð1988,€42€U.S.C.€ðððð€1437aa„ee,€which€was€subsequently€repealed€by€Ð $à& Ðthe€Native€American€Housing€Assistance€and€Self„Determination€ActÐ <&Œ!( Ðof€1996,€Pub.€L.€No.€104„330,€110€Stat.€4016€(codified€as€25€U.S.C.Ð è'8#* Ðâ âðððð€4101„4243€(2004)).Ð ”)ä$, Ðà ` àIn€1992,€the€WHA€transferred€the€Parcel€to€the€Tribe€withÐ ° Ðâ âa€deed€restriction€that€the€Parcel€be€placed€in€trust€with€theÐ \¬ Ðfederal€government€for€the€express€purpose€of€providing€housing€forÐ X Ðtribe€members.€€òòCarcierióó,€290€F.€Supp.€2d€at€171€(citingÐ ´  ÐòòNarragansett€Elec.€Co.óó,€89€F.3d€at€911).Ð ` ° Ðà ` àThe€Tribe€and€the€WHA€commenced€construction€of€theÐ  \  Ðhousing€project€without€obtaining€a€building€permit€from€the€townÐ ¸  Ðor€the€state's€approval€of€the€individual€sewage€disposal€systemsÐ d´  Ðserving€the€project.€€òòNarragansett€Elec.€Co.óó,€89€F.3d€at€912.€€AsÐ `  Ða€result,€the€State€of€Rhode€Island€and€Town€of€Charlestown€soughtÐ ¼  Ðinjunctive€relief€prohibiting€the€Narragansetts€and€the€WHA€fromÐ h¸ Ðconstructing€the€housing€complex€without€obtaining€the€properÐ d Ðpermits€and€approvals.€€òòNarragansett€Indian€Tribeóó€v.€òòNarragansettÐ À ÐElec.€Co.óó,€878€F.€Supp.€349€(D.R.I.€1995).€€The€District€CourtÐ l¼ Ðfound€the€proposed€housing€project€detrimental€to€coastal€andÐ h Ðgroundwater€resources,€but€also€held€that€the€Parcel€was€aÐ Ä Ð"dependent€Indian€community"€within€the€meaning€of€18€U.S.C.€ðð1151Ð pÀ  Ð(b)€and€therefore€denied€injunctive€relief.€€òòId.óó€at€355„57.€€OnÐ !l" Ðappeal€this€court€held€that€the€land€for€the€housing€project€wasÐ È"$ Ðnot€a€"dependent€Indian€community,"€because€it€lacked€federalÐ t$Ä& Ðownership€of€the€land€and€lacked€federal€action€to€"set€aside"€theÐ  &p!( Ðland.€€òòNarragansett€Elec.€Co.óó,€89€F.3d€at€914.€€Thus,€the€ParcelÐ Ì'#* Ðcould€not€be€considered€Indian€country€under€18€U.S.C.€ðð€1151,€andÐ x)È$, Ðtherefore€the€housing€project€being€constructed€on€the€site€was€notÐ $+t&. Ðexempt€from€state€and€local€building€and€zoning€restrictions.€Ð ° ÐAccordingly,€this€court€reversed€the€district€court€and€directedÐ \¬ Ðthe€district€court€to€enter€an€order€granting€the€injunction.€€òòId.óóÐ X Ðat€922.Ð ´  Ðò òC.€€The€Current€Disputeó óÐ ` ° Ðà ` àThe€Indian€Reorganization€Act€of€1934€authorizes€theÐ ( x  ÐSecretary€of€the€Interior€to€acquire€lands€in€trust€"for€theÐ Ô$  Ðpurpose€of€providing€land€for€Indians."€€25€U.S.C.€ðð€465.€€TheÐ €Ð  ÐTribe€initially€applied€to€have€the€United€States€take€the€31„acreÐ ,|  ÐParcel€into€trust€in€1993.€€However,€this€application€was€held€inÐ Ø( Ðabeyance€while€the€òòNarragansett€Elec.€Co.óó€litigation€was€pending.€Ð „Ô ÐIn€1997,€after€the€resolution€of€òòNarragansett€Elec.€Co.óó€by€thisÐ 0€ Ðcourt€in€1996,€the€Tribe€submitted€a€second,€updated€application€toÐ Ü, Ðthe€Eastern€Area€Office€of€the€BIA€requesting€trust€acquisition€ofÐ ˆØ Ðthe€Parcel.€€On€March€6,€1998,€the€BIA€informed€the€Tribe€of€itsÐ 4„ Ðdecision€to€approve€the€Tribeððs€application€for€trust€acquisitionÐ à0 Ðof€the€Parcel.€€Letter€from€Franklin€Keel,€Eastern€Area€Director,Ð ŒÜ  ÐBIA,€to€Matthew€Thomas,€Chief€Sachem,€Narragansett€Indian€TribeÐ 8!ˆ" Ð(Mar.€6,€1998).€€In€April€1998,€the€State€and€Town€each€appealedÐ ä"4$ Ðthe€decision€to€the€Interior€Board€of€Indian€Appeals€(the€"IBIA").€Ð $à& ÐOn€June€29,€2000,€the€IBIA€affirmed€the€BIA's€decision€to€take€theÐ <&Œ!( Ðland€into€trust.€€òòTown€of€Charlestownóó€v.€òòE.€Area€Dir.,€Bureau€ofÐ è'8#* Ðâ âIndian€Affairsóó,€IBIA€98„88„A€and€98„89„A,€35€IBIA€93€(2000).Ð ”)ä$, Ðà ` àAs€the€district€court€noted,€the€IBIA€rejected€theÐ ° Ðâ âState's€and€Town's€challenges€to€several€determinations€made€by€theÐ \¬ ÐBIA€in€accepting€the€Parcel€into€trust.Ð X ÐÓÓà8 ` àSpecifically,€the€board€concluded€that€theÐ ´  ÐSettlement€Act€did€not€prohibit€the€secretaryÐ Š Ú Ðfrom€acquiring€lands€other€than€the€settlementÐ ` ° Ðlands€into€trust€for€the€benefit€of€theÐ 6 †  ÐNarragansetts.€€35€IBIA€100„101.€€Also,€theÐ  \  Ðboard€rejected€plaintiffs'€argument€that€theÐ â 2  ÐBIA,€either€in€all€trust€acquisitionÐ ¸  Ðproceedings,€or€in€view€of€the€specificÐ ŽÞ  Ðcircumstances€surrounding€the€tribe's€trustÐ d´  Ðapplication,€was€required€to€consider€theÐ :Š  Ðpossible€use€of€the€parcel€for€gaming€purposesÐ `  Ðunder€the€Indian€Gaming€Regulatory€Act€("theÐ æ6 ÐIGRA"),€25€U.S.C.€ðð€2701€òòet.€seq.óó,€and€toÐ ¼  Ðimpose€a€restriction€precluding€such€use.€€35Ð ’â ÐIBIA€at€101„103.Ðh¸` x` x ÐÌÓÓòòCarcierióó,€290€F.€Supp.€2d€at€172.€€The€IBIA€further€concluded€thatÐ d Ðthe€BIA€was€not€required€to€prepare€a€federal€consistencyÐ À Ðdetermination€for€the€proposed€housing€project€as€a€prerequisite€toÐ l¼ Ðtrust€acquisition€of€the€Parcel,€and€therefore€the€BIA€did€notÐ h Ðviolate€the€Coastal€Zone€Management€Act,€16€U.S.C.€ðððð€1451€òòet€seq.óó€Ð Ä Ð35€IBIA€at€104„105.Ð pÀ  Ðà ` àThe€State€then€filed€an€action€against€the€SecretaryÐ !l" Ðseeking€reversal€of€the€Secretary's€decision€and€declaratory€andÐ È"$ Ðinjunctive€relief.€€In€a€detailed€opinion,€the€district€courtÐ t$Ä& Ðgranted€summary€judgment€on€behalf€of€the€Secretary,€upholding€theÐ  &p!( Ðdecision€to€take€the€Parcel€into€trust.Ð Ì'#* Ðà ` àThe€State€now€appeals€to€this€court.€€The€State€allegesÐ x)È$, Ðthat€(1)€the€Secretary€did€not€have€the€authority€under€the€IRA€toÐ $+t&. Ðacquire€the€land€in€trust€for€the€benefit€of€the€Narragansetts;€(2)Ð ° Ðthe€IRA€constitutes€an€unlawful€delegation€of€congressionalÐ \¬ Ðauthority€and€offends€the€Enclave€Clause,€the€Admissions€Clause,Ð X Ðand€the€Tenth€Amendment€of€the€Constitution;€(3)€the€Rhode€IslandÐ ´  ÐIndian€Land€Claims€Settlement€Act€of€1978€prohibits€the€creation€ofÐ ` ° Ðsovereign€territory€for€the€Narragansetts€in€Rhode€Island;€and€(4)Ð  \  Ðthe€Secretary's€acceptance€of€the€Parcel€into€trust€was€arbitrary,Ð ¸  Ðcapricious,€and€an€abuse€of€discretion€in€violation€of€the€APAÐ d´  Ðand/or€otherwise€not€in€accordance€with€the€law.Ð `  Ðà@àà$ìàò òII.€€Analysisó óˆÐ ¼  Ðà ` àA€grant€of€summary€judgment€is€appropriate€when€theÐ „Ô Ðevidence€before€the€court€shows€that€"that€there€is€no€genuineÐ 0€ Ðissue€as€to€any€material€fact€and€that€the€moving€party€is€entitledÐ Ü, Ðto€a€judgment€as€a€matter€of€law.€€Fed.€R.€Civ.€P.€56(c)."€Ð ˆØ ÐòòSeaboard€Surety€Co.óó€v.€òòGreenfield€Middle€Sch.€Bldg.€Comm.óó,€370€F.3dÐ 4„ Ð215,€218€(1st€Cir.€2004).€€In€ruling€on€a€motion€of€summaryÐ à0 Ðjudgment,€a€court€must€view€"the€facts€in€the€light€most€favorableÐ ŒÜ  Ðto€the€non„moving€party,€drawing€all€reasonable€inferences€in€thatÐ 8!ˆ" Ðparty's€favor."€€òòBarbouróó€v.€òòDynamics€Research€Corp.óó,€63€F.3d€32,€36Ð ä"4$ Ð(1st€Cir.€1995)€(citation€omitted).€€An€issue€is€"genuine"€forÐ $à& Ðpurposes€of€summary€judgment€if€"the€evidence€is€such€that€aÐ <&Œ!( Ðreasonable€jury€could€return€a€verdict€for€the€nonmoving€party,"Ð è'8#* Ðand€a€"material€fact"€is€one€which€"might€affect€the€outcome€of€theÐ ”)ä$, Ðsuit€under€the€governing€law."€€òòHayesóó€v.€òòDouglas€Dynamics,€Inc.óó,€8Ð @+&. ÐF.3d€88,€90€(1st€Cir.€1993)€(quoting€òòAndersonóó€v.€òòLiberty€Lobby,Ð ° ÐInc.óó,€447€U.S.€242,€248€(1986)).€€The€standards€are€the€same€where,Ð \¬ Ðas€here,€both€parties€have€moved€for€summary€judgment.€€òòBientkowskióóÐ X Ðv.€òòNortheastern€Univ.óó,€285€F.3d€138,€140€(1st€Cir.€2002)€(citingÐ ´  ÐCharles€Alan€Wright,€òòet€al.óó,€òòFederal€Practice€and€Procedureóó€ðð€2720,Ð ` ° Ðat€335„36€(3d€ed.€1998)).Ð  \  Ðà ` àWe€review€the€district€court's€grant€of€summary€judgmentÐ ¸  Ðòòdeóó€òònovoóó,€and€we€may€affirm€the€district€court's€decision€on€anyÐ d´  Ðsufficient€ground€supported€by€the€record.€€òòRodrguezóó€v.€òòSmithklineÐ `  ÐBeechamóó,€224€F.3d€1,€5€(1st€Cir.€2000).Ð ¼  Ðà ` àOur€review€of€the€Secretary's€decision€to€take€the€ParcelÐ h¸ Ðinto€trust€is€governed€by€ðð€706(2)€of€the€Administrative€ProceduresÐ d ÐAct,€which€provides€that€the€reviewing€court€shall:Ð À ÐÓÓà8 ` àhold€unlawful€and€set€aside€agency€action,Ð l¼ Ðfindings,€and€conclusions€found€to€beð!ð„ÐB’` x` x Ðà8 ` à(A)€arbitrary,€capricious,€an€abuse€ofÐ h Ðdiscretion,€or€otherwise€not€in€accordanceÐ î> Ðwith€law;ÐÄ` x` x Ðà8 ` à(B)€contrary€to€constitutional€right,€power,Ð šê Ðprivilege,€or€immunity;ÐpÀ ` x` x Ðà8 ` à(C)€in€excess€of€statutory€jurisdiction,Ð F –! Ðauthority,€or€limitations,€or€short€ofÐ !l" Ðstatutory€right;Ðò!B#` x` x Ðà8 ` à(D)€without€observance€of€procedure€requiredÐ È"$ Ðby€law;О#î%` x` x Ðà8 ` à(E)€unsupported€by€substantial€evidence€in€aÐ t$Ä& Ðcase€subject€to€sections€556€and€557€of€thisÐ J%š ' Ðtitle€or€otherwise€reviewed€on€the€record€ofÐ  &p!( Ðan€agency€hearing€provided€by€statute;€orÐö&F")` x` x Ðà8 ` à(F)€unwarranted€by€the€facts€to€the€extentÐ Ì'#* Ðthat€the€facts€are€subject€to€trial€de€novo€byÐ ¢(ò#+ Ðthe€reviewing€court.Ðx)È$,` x` x Ðà8 ` àIn€making€the€foregoing€determinations,€theÐ N*ž%- Ðcourt€shall€review€the€whole€record€or€thoseÐ $+t&. Ðparts€of€it€cited€by€a€party,€and€due€accountÐ ú+J'/ Ðshall€be€taken€of€the€rule€of€prejudicialÐ ° Ðerror.ІÖ` x` x ÐÌÓÓ5€U.S.C.€ðð€706(2).Ð 2‚ Ðò òA.€€The€Secretary's€Authority€to€accept€the€Parcel€into€trustó óÐ Þ. Ðà ` àThe€State€asserts€that€the€Secretary€lacked€statutoryÐ ¦ ö Ðauthority€to€take€the€Parcel€into€trust€under€the€IRA,€25€U.S.C.Ð R ¢  Ððð465,€because€the€Narragansett€Indian€Tribe€is€not€entitled€to€theÐ þ N  ÐIRA's€benefits.€€Under€the€IRA,€"[t]he€Secretary€of€the€Interior€isÐ ªú  Ðauthorized,€in€his€discretion,€to€acquire€.€.€.€any€interest€inÐ V¦  Ðlands,€.€.€.€including€trust€or€otherwise€restricted€allotmentsÐ R Ð...€for€the€purpose€of€providing€land€for€Indians."€€25€U.S.C.Ð ®þ Ððð465.€€The€IRA€defines€the€term€"Indian"€as:Ð Zª ÐÓÓà8 ` àall€persons€of€Indian€descent€who€are€membersÐ V Ðof€òòany€recognized€Indian€tribe€now€underÐ Ü, ÐFederal€jurisdictionóó,€and€all€persons€who€areÐ ² Ðdescendants€of€such€members€who€were,€onÐ ˆØ ÐJune1,€1934,€residing€within€the€presentÐ ^® Ðboundaries€of€any€Indian€reservation,€andÐ 4„ Ðshall€further€include€all€other€persons€ofÐ  Z Ðone„half€or€more€Indian€blood€.€.€.€.Ðà0` x` x ÐÌÓÓ25€U.S.C.€ðð€479€(emphasis€added).€€The€State€argues€that€the€termÐ ŒÜ  Ð"now"€in€ðð€479€should€be€read€as€meaning€"June€1934"€and€notÐ 8!ˆ" Ð"today."€€Thus,€the€state€suggests€that€a€two„prong€test€must€beÐ ä"4$ Ðmet€for€a€tribe€to€be€entitled€to€the€benefits€of€ðð€465€of€the€IRA:€Ð $à& Ðunless€the€tribe€was€both€(1)€òòrecognizedóó€and€(2)€òòunder€federalÐ <&Œ!( Ðjurisdictionóó€in€1934,€the€State€would€have€us€find€that€theÐ è'8#* ÐSecretary€is€not€allowed€to€take€the€State€land€into€trust€for€theÐ ”)ä$, Ðbenefit€of€the€tribe.€€Since€the€Narragansett€Tribe€was€neitherÐ @+&. Ðfederally€recognized,€nor€under€federal€jurisdiction€in€June€ofÐ ° Ð1934€when€the€IRA€was€enacted,€the€State€argues€that€the€Tribe€isÐ \¬ Ðnot€entitled€to€the€benefits€of€the€IRA.€€We€disagree,€and€findÐ X Ðthat€the€Secretary's€authority€under€the€IRA€extends€to€theÐ ´  ÐNarragansett€Tribe,€regardless€of€the€status€of€its€acknowledgmentÐ ` ° Ðin€1934.Ð  \  Ðà ` àThe€Narragansett€Indian€Tribe€was€acknowledged€by€theÐ ¸  ÐDepartment€of€the€Interior€in€1983.€€In€acknowledging€theÐ d´  ÐNarragansett€Tribe,€the€Department€stated€that€"the€NarragansettÐ `  Ðcommunity€and€its€predecessors€have€existed€autonomously€sinceÐ ¼  Ðfirst€contact,€despite€undergoing€many€modifications."€€FinalÐ h¸ ÐDetermination€for€Federal€Acknowledgment€of€Narragansett€IndianÐ d ÐTribe€of€Rhode€Island,€48€Fed.€Reg.€6177,€6178€(Feb.€10,€1983).€Ð À ÐIndeed,€the€government's€formal€acknowledgment€noted€that€"[t]heÐ l¼ Ðtribe€has€a€documented€history€dating€from€1614."€€òòId.óóÐ h Ðà ` àWe€find€that€the€Department€of€the€Interior'sÐ Ä Ðlongstanding€interpretation€of€the€term€"now"€in€the€statute€shouldÐ pÀ  Ðbe€accorded€particular€deference.€€òòSeeóó€òòNorth€Haven€Bd.€of€Ed.óó€v.Ð !l" ÐòòBellóó,€456€U.S.€512,€522,€n.12€(1982)€("In€construing€a€statute,Ð È"$ Ðthis€Court€normally€accords€great€deference€to€the€interpretation,Ð t$Ä& Ðparticularly€when€it€is€longstanding,€of€the€agency€charged€withÐ  &p!( Ðthe€statute's€administration.");€òòNLRBóó€v.òòBell€Aerospace€Co.óó,€416Ð Ì'#* ÐU.S.€267,€274„75€(1974)€("a€court€may€accord€great€weight€to€theÐ x)È$, Ðlongstanding€interpretation€placed€on€a€statute€by€an€agencyÐ $+t&. Ðcharged€with€its€administration");€òòRed€Lion€Broadcasting€Co.óó€v.Ð ° ÐòòFCCóó,€395€U.S.€367,€381€(1969)€("the€construction€of€a€statute€byÐ \¬ Ðthose€charged€with€its€execution€should€be€followed€unless€thereÐ X Ðare€compelling€indications€that€it€is€wrong.").€€For€seventy€yearsÐ ´  Ðthe€Department€of€the€Interior€has€read€"now"€in€Section€479€asÐ ` ° Ðmeaning€"today"€rather€than€"1934."€€Thus,€to€change€this€readingÐ  \  Ðof€the€statute€here€would€impact€scores€of€trusts€created€for€theÐ ¸  Ðbenefit€of€Indians€over€the€last€70€years.Ð d´  Ðà ` àThe€State€relies€on€two€cases€involving€the€uniqueÐ `  Ðcircumstances€of€the€Mississippi€Choctaw€Indians€to€support€itsÐ ¼  Ðreading€of€the€IRA,€òòUnited€Statesóó€v.€òòJohnóó,€437€U.S.€634,€650Ð h¸ Ð(1978);€òòUnited€Statesóó€v.€òòState€Tax€Comm'nóó,€505€F.2d€633,€642€(5thÐ d ÐCir.€1974).€€Neither€of€these€cases€sufficiently€supports€theÐ À ÐState's€conclusion.Ð l¼ Ðà ` àThe€Mississippi€Choctaws'€tribal€status€was€extinguishedÐ h Ðin€1831€by€the€United€States€Senate's€ratification€of€the€Treaty€ofÐ Ä ÐDancing€Rabbit€Creek.€€òòCarcierióó€290€F.€Supp.€2d€at€180€(citingÐ pÀ  ÐòòState€Tax€Comm'nóó,€505€F.2d€at€640„43).€€After€that€time,€theÐ !l" ÐChoctaws€did€not€maintain€a€tribal€organization€or€manner€ofÐ È"$ Ðliving.€€Thus,€in€1934,€when€the€IRA€was€enacted,€"the€band€was€notÐ t$Ä& Ða€tribe€as€defined€by€the€IRA."€€òòId.óó€€The€Fifth€Circuit€thereforeÐ  &p!( Ðfound€that€the€IRA€of€1934€did€not€include€the€MississippiÐ Ì'#* ÐChoctaws,€and€that€even€a€1944€Proclamation€by€the€Department€ofÐ x)È$, ÐInterior€which€"purported€to€recognize€the€tribal€organization€ofÐ $+t&. Ðthe€Mississippi€Band€of€Choctaw€Indians,"€could€not€cure€the€Act'sÐ ° Ðomission.€€òòState€Tax€Comm'nóó,€505€F.2d€at€642„43.Ð \¬ Ðà ` àHowever,€just€two€years€later,€the€Supreme€CourtÐ X Ðdisagreed€with€the€Fifth€Circuit€and€held€in€òòUnited€Statesóó€v.€òòJohnóó€Ð ´  Ðthat€the€IRA€of€1934€does€apply€to€the€Mississippi€Choctaws.€€TheÐ ` ° ÐSupreme€Court's€reasoning€was€as€follows:Ð  \  ÐÓÓà8 ` àThe€Court€of€Appeals€and€the€MississippiÐ ¸  ÐSupreme€Court€held,€and€the€State€now€argues,Ð ŽÞ  Ðthat€the€1944€proclamation€had€no€effectÐ d´  Ðbecause€the€Indian€Reorganization€Act€of€1934Ð :Š  Ðwas€not€intended€to€apply€to€the€MississippiÐ `  ÐChoctaws.€Assuming€for€the€moment€thatÐ æ6 Ðauthority€for€the€proclamation€can€be€foundÐ ¼  Ðonly€in€the€1934€Act,€we€find€this€argumentÐ ’â Ðunpersuasive.€The€1934€Act€defined€"Indians"Ð h¸ Ðnot€only€as€"all€persons€of€Indian€descent€whoÐ >Ž Ðare€members€of€any€recognized€[in€1934]€tribeÐ d Ðnow€under€Federal€jurisdiction,"€and€theirÐ ê: Ðdescendants€who€then€were€residing€on€anyÐ À ÐIndian€reservation,€but€also€as€"all€otherÐ –æ Ðpersons€of€one„half€or€more€Indian€blood."€48Ð l¼ ÐStat.€988,€25€U.S.C.€ðð€479€(1976€ed.).€€ThereÐ B’ Ðis€no€doubt€that€persons€of€this€descriptionÐ h Ðlived€in€Mississippi,€and€were€recognized€asÐ î> Ðsuch€by€Congress€and€by€the€Department€of€theÐ Ä ÐInterior,€at€the€time€the€Act€wasÐ šê Ðpassed....€The€references€to€theÐ pÀ  ÐMississippi€Choctaws€in€the€legislativeÐ F –! Ðhistory€of€the€Act€.€.€.€confirm€our€view€thatÐ !l" Ðthe€Mississippi€Choctaws€were€not€to€beÐ ò!B# Ðexcepted€from€the€general€operation€of€theÐ È"$ Ð1934€Act.О#î%` x` x ÐÌÓÓòòJohnóó,€437€U.S.€at€649„50€(parenthetical€in€original).Ð J%š ' Ðà ` àThus,€as€early€as€1976,€the€Supreme€Court€had€disagreedÐ ö&F") Ðwith€the€State's€proffered€two„part€test€for€IRA€applicability.€€InÐ ¢(ò#+ ÐòòJohnóó,€the€Supreme€Court€concluded€that€the€IRA€may€be€invoked€forÐ N*ž%- Ðthe€benefit€of€groups€of€Indians€that€were€òònotóó€recognized€as€tribesÐ ú+J'/ Ðin€1934.€€The€Court€focused€on€the€fact€that,€while€the€ChoctawsÐ ° Ðwere€not€a€federally€recognized€tribe€in€Mississippi€at€the€timeÐ \¬ Ðthe€IRA€was€enacted,€there€were€individual€"persons€of€one„half€orÐ X Ðmore€Indian€blood"€living€in€Mississippi€at€the€time,€and€both€theÐ ´  Ðstate€and€federal€government€recognized€that€the€Indians€wereÐ ` ° Ðthere.€€òòId.óó€at€650.€€This€is€distinctly€different€from€the€State'sÐ  \  Ðtwo„part€test,€which€would€require€that€an€Indian€òòtribeóó€be€both€(1)Ð ¸  Ðrecognized€and€(2)€under€federal€jurisdiction€at€the€time€of€theÐ d´  ÐAct's€passage.Ð `  Ðà ` àWhile€the€parenthetical€"[in€1934]"€lends€support€to€theÐ ¼  ÐState's€assertion€that€"now"€should€be€read€as€"in€1934,"€we€agreeÐ h¸ Ðwith€the€district€court€that€it€does€not€appear€that€the€reading€ofÐ d Ðthis€particular€term€in€the€IRA€was€before€the€Supreme€Court€forÐ À Ðconsideration,€and€the€Court€did€not€give€further€explanation€forÐ l¼ Ðthe€inclusion€of€the€parenthetical.Ð h Ðà ` àNotwithstanding€the€potential€support€found€for€theÐ Ä ÐState's€assertion€in€the€Supreme€Court's€inclusion€of€"[in€1934]"Ð pÀ  Ðin€òòJohnóó,€we€find€that€Congress's€recent€clarification€of€the€IndianÐ !l" ÐReorganization€Act€makes€clear€that€the€Secretary€has€the€authorityÐ È"$ Ðto€extend€IRA€benefits€to€all€federally€recognized€tribes,Ð t$Ä& Ðregardless€of€their€acknowledgment€status€on€the€date€of€the€IRA'sÐ  &p!( Ðenactment.€€In€1994,€Congress€enacted€the€Federally€RecognizedÐ Ì'#* ÐIndian€Tribe€List€Act€("List€Act"),€Pub.L.€No.€103„454,€108€Stat.Ð x)È$, Ð4791€(1994),€which€requires€the€Secretary€of€the€Interior€to€keepÐ $+t&. Ða€list€of€all€federally€recognized€tribes,€which€"should€reflectÐ ° Ðall€of€the€federally€recognized€Indian€tribes€in€the€United€StatesÐ \¬ Ðwhich€are€eligible€for€the€special€programs€and€services€providedÐ X Ðby€the€United€States€to€Indians€because€of€their€status€asÐ ´  ÐIndians."€€Pub.L.€No.€103„454,€ðð€103.€€That€statute,€codified€asÐ ` ° Ð25€U.S.C.€ðð€479a,€defines€the€term€"tribe"€as€"any€Indian€or€AlaskaÐ  \  ÐNative€tribe,€band,€nation,€pueblo,€village€or€community€that€theÐ ¸  ÐSecretary€of€the€Interior€acknowledges€to€exist€as€an€IndianÐ d´  Ðtribe."€€25€U.S.C.€ðð€479a(2).€€The€House€Report€accompanying€theÐ `  ÐList€Act€explains€that€federal€recognition€"establishes€tribalÐ ¼  Ðstatus€for€all€federal€purposes."€€H.R.€Rep.€No.€103„781,€at€3Ð h¸ Ð(1994).€€Earlier€the€same€year,€Congress€amended€the€IRA,€Pub.€L.Ð d ÐNo.€103„263,€108€Stat.€707,€to€clarify€that:Ð À ÐÓÓà8 ` à[d]epartments€or€agencies€of€the€United€StatesÐ l¼ Ðshall€not€promulgate€any€regulation€or€makeÐ B’ Ðany€decision€or€determination€pursuant€to€theÐ h ÐAct€of€June€18,€1934€.€.€.€with€respect€to€aÐ î> Ðfederally€recognized€Indian€tribe€thatÐ Ä Ðclassifies,€enhances,€or€diminishes€theÐ šê Ðprivileges€and€immunities€available€to€theÐ pÀ  ÐIndian€tribe€relative€to€other€federallyÐ F –! Ðrecognized€tribes€by€virtue€of€their€status€asÐ !l" ÐIndian€tribes.Ðò!B#` x` x ÐÌÓÓ25€U.S.C.€ðð€476(f),€and€that€any€such€determination€by€a€federalÐ ž#î% Ðagency€that€would€have€the€effect€of€discriminating€amongÐ J%š ' Ðrecognized€tribes,€"shall€have€no€force€or€effect."€25€U.S.C.€ðð476Ð ö&F") Ð(g).Ð ¢(ò#+ Ðà ` àThe€federal€acknowledgment€regulations€pursuant€to€whichÐ N*ž%- Ðthe€Narragansett€Tribe€attained€federal€recognition€echo€theseÐ ú+J'/ Ðenactments.€€The€regulations€provide€that€"[t]he€newly€acknowledgedÐ ° Ðtribe€shall€be€considered€a€historic€tribe€and€shall€be€entitled€toÐ \¬ Ðthe€privileges€and€immunities€available€to€other€federallyÐ X Ðrecognized€historic€tribes€by€virtue€of€their€government„to„Ð ´  Ðgovernment€relationship€with€the€United€States."€25€C.F.R.€83.12(a)Ð ` ° Ð(2004).Ð  \  Ðà ` àThese€statutory€and€regulatory€provisions€make€clear€thatÐ ¸  Ðthe€Secretary's€IRA€authority€extends€to€the€Narragansett€IndianÐ d´  ÐTribe€regardless€of€the€status€of€its€acknowledgment€in€1934.€Ð `  ÐIndeed,€these€provisions€preclude€the€Secretary€from€making€theÐ ¼  Ðdetermination€sought€by€the€State,€that€the€tribe€is€ineligible€forÐ h¸ Ðthe€benefits€of€ðð€465€of€the€IRA€because€it€was€acknowledged€afterÐ d Ðthe€enactment€of€the€IRA.€€Such€a€determination€would€diminish€theÐ À ÐTribe's€privileges€in€relation€to€other€federally€recognizedÐ l¼ Ðtribes,€contrary€to€the€amended€IRA's€plain€language.€€25€U.S.C.Ð h Ððð476(f).Ð Ä Ðò òB.€€Constitutional€Challenges€to€25€U.S.C.€ðð€465ó óÐ pÀ  Ðà ` àThe€State€raises€multiple€challenges€to€theÐ 8!ˆ" Ðconstitutionality€of€the€IRA,€including€a€charge€that€the€authorityÐ ä"4$ Ðgranted€to€the€Secretary€to€take€land€into€trust€is€anÐ $à& Ðunconstitutional€delegation€of€congressional€powers€and€that€takingÐ <&Œ!( ÐState€land€into€trust€pursuant€to€the€IRA€diminishes€stateÐ è'8#* Ðâ âsovereignty€in€violation€of€the€Tenth€Amendment,€the€EnclaveÐ ”)ä$, ÐClause,€and€the€Admissions€Clause,€and€exceeds€Congress's€authorityÐ ° Ðunder€the€Indian€Commerce€Clause€of€the€Constitution.Ð \¬ Ðâ âà ` àò ò1.€€The€Nondelegation€Doctrineó óÐ X Ðà ` àThe€State€contends€that€ðð€465€of€the€IRA€is€anÐ Ð  Ðunconstitutional€delegation€of€legislative€power€to€the€SecretaryÐ | Ì Ðof€the€Interior€because€the€only€limitation€it€places€on€theÐ ( x  ÐSecretary's€trust„taking€authority€is€that€the€trust€acquisitionÐ Ô$  Ðmust€be€"for€the€purpose€of€providing€land€for€Indians."€€25€U.S.C.Ð €Ð  Ððð€465.€€Thus,€the€State€argues,€Congress€failed€to€articulateÐ ,|  Ðsufficient€standards€to€guide€the€Secretary's€trust€determinations.Ð Ø( Ðà ` àArticle€I,€Section€I,€of€the€Constitution€provides€thatÐ „Ô Ð"[a]ll€legislative€Powers€herein€granted€shall€be€vested€in€aÐ 0€ ÐCongress€of€the€United€States,€which€shall€consist€of€a€Senate€andÐ Ü, ÐHouse€of€Representatives."€€The€Supreme€Court€has€repeatedly€saidÐ ˆØ Ðthat€"when€Congress€confers€decisionmaking€authority€upon€agenciesÐ 4„ ÐòòCongressóó€must€'lay€down€by€legislative€act€an€intelligibleÐ à0 Ðprinciple€to€which€the€person€or€body€authorized€to€[act]€isÐ ŒÜ  Ðdirected€to€conform.'"€€òòWhitmanóó€v.€òòAm.€Trucking€Ass'ns,€Inc.óó,€531Ð 8!ˆ" ÐU.S.€457,€472€(2001)€(quoting€òòJ.W.€Hampton,€Jr.€&€Co.óó€v.€òòUnitedÐ ä"4$ ÐStatesóó,€276€U.S.€394,€409€(1928)).€€The€State€contends€that€ðð€465Ð $à& Ðlacks€the€required€"intelligible€principle."Ð <&Œ!( Ðà ` àThe€statute€provides€that:Ð è'8#* ÐÓÓà8 ` àThe€Secretary€of€the€Interior€is€authorized,Ð ”)ä$, Ðin€his€discretion,€to€acquire,€throughÐ j*º%- Ðpurchase,€relinquishment,€gift,€exchange,€orÐ @+&. Ðassignment,€any€interest€in€lands,€waterÐ ,f'/ Ðrights,€or€surface€rights€to€lands,€within€orÐ ° Ðwithout€existing€reservations,€including€trustÐ †Ö Ðor€otherwise€restricted€allotments,€whetherÐ \¬ Ðthe€allottee€be€living€or€deceased,€for€theÐ 2‚ Ðpurpose€of€providing€land€for€Indians.ÐX` x` x ÐÌà8 ` àFor€the€acquisition€of€such€lands€.€.€.,€thereÐ ´  Ðis€authorized€to€be€appropriated,€.€.€.€a€sumÐ Š Ú Ðnot€to€exceed€$2,000,000€in€any€one€fiscalÐ ` ° Ðyear:€òòProvidedóó,€That€no€part€of€such€fundsÐ 6 †  Ðshall€be€used€to€acquire€additional€landÐ  \  Ðoutside€of€the€exterior€boundaries€of€NavajoÐ â 2  ÐIndian€Reservation€for€the€Navajo€Indians€inÐ ¸  ÐArizona,€nor€in€New€Mexico,€in€the€event€thatÐ ŽÞ  Ðlegislation€to€define€the€exterior€boundariesÐ d´  Ðof€the€Navajo€Indian€Reservation€in€New€MexicoÐ :Š  Ð.€.€.€becomes€law.Ð` ` x` x Ðà8 ` à.€.€.€Ðæ6` x` x Ðà8 ` àTitle€to€any€lands€or€rights€acquired€pursuantÐ ¼  Ðto€this€Act€or€the€Act€of€July€28,€1955€(69Ð ’â ÐStat.€392),€as€amended€(25€U.S.C.€608€et€seq.)Ð h¸ ÐShall€be€taken€in€the€name€of€the€UnitedÐ >Ž ÐStates€in€trust€for€the€Indian€tribe€orÐ d Ðindividual€Indian€for€which€the€land€isÐ ê: Ðacquired,€and€such€lands€or€rights€shall€beÐ À Ðexempt€from€State€and€local€taxation.Жæ` x` x ÐÌÓs«Ó25€U.S.C.€ðð€465.Ð B’ Ðà ` àTo€support€its€nondelegation€doctrine€argument,€the€StateÐ î> Ðrelies€on€an€Eighth€Circuit€decision,€ultimately€vacated€by€theÐ šê ÐSupreme€Court,€that€found€ðð€465€to€be€a€standardless€delegationÐ F –! Ðwith€so€few€"boundaries,"€or€"intelligible€principles,"€that€"itÐ ò!B# Ðwould€permit€the€Secretary€to€purchase€the€Empire€State€Building€inÐ ž#î% Ðtrust€for€a€tribal€chieftain€as€a€wedding€present."€€òòSouth€DakotaóóÐ J%š ' Ðv.€òòUnited€States€Dept.€of€Interioróó,€69€F.3d€878,€882€(8th€Cir.Ð ö&F") Ð1995),€òòvacated€byóó€519€U.S.€919€(1996).€€As€the€district€courtÐ ¢(ò#+ Ðnoted,€the€Supreme€Court€chose€not€to€publish€an€opinion€explainingÐ N*ž%- Ðthe€majority's€reasoning€for€vacating€the€Eighth€Circuit€opinion.€Ð ú+J'/ ÐTherefore€the€vacated€decision€has€no€precedential€value€and€weÐ ° Ðwill€not€rely€on€it€here.Ð \¬ Ðà ` àThe€Tenth€Circuit€addressed€the€validity€of€Congress'Ð X Ðdelegation€of€trust€acquisition€authority€under€ðð€465€in€òòUnitedÐ ´  ÐStatesóó€v.€òòRobertsóó,€185€F.3d€1125€(10th€Cir.€1999).€€In€òòRobertsóó,€theÐ ` ° ÐTenth€Circuit€held€that€Congress€properly€delegated€authority€toÐ  \  Ðthe€Secretary€of€the€Interior€to€acquire€land€in€trust€for€Indians.€Ð ¸  ÐòòId.óó€at€1137.€€The€Tenth€Circuit€found€that€the€statute€itselfÐ d´  Ðprovides€standards€for€the€Secretary's€exercise€of€discretion€andÐ `  Ðnoted€that€it€had€previously€acknowledged€that€the€statute€placesÐ ¼  Ðlimits€on€the€Secretary's€discretion.€€òòSeeóó€òòMcAlpineóó€v.€òòUnitedÐ h¸ ÐStatesóó,€112€F.3d€1429,€1432€n.3€(10th€Cir.€1997)(citing€òòSouthÐ d ÐDakotaóó,€69€F.3d€at€887„88€(Murphy,€J.€dissenting)).€€For€example,Ð À Ð"the€statute€provides€any€land€must€be€acquired€for€Indians€asÐ l¼ Ðdefined€in€25€U.S.C.€ðð€479€and€funds€appropriated€for€theÐ h Ðacquisitions€may€not€be€used€to€provide€land€for€Navajos€outsideÐ Ä Ðtheir€reservation€boundaries."€€òòRobertsóó,€185€F.3d€at€1137Ð pÀ  Ð(citations€omitted).€€In€addition,€"the€legislative€historyÐ !l" Ðidentifies€goals€of€'rehabilitating€the€Indian's€economic€life'€andÐ È"$ Ð'developing€the€initiative€destroyed€by€.€.€.€oppression€andÐ t$Ä& Ðpaternalism,'€of€the€prior€allotment€policy€and€indicates€theÐ  &p!( ÐSecretary€must€assure€continued€'beneficial€use€by€the€IndianÐ Ì'#* Ðoccupant€and€his€heirs.'"€€òòId.óó€(Citations€omitted).€€We€agree€withÐ x)È$, Ðthe€district€court's€conclusion€that€the€reasoning€in€òòRobertsóó€isÐ $+t&. Ðpersuasive,€and€we€find,€for€the€same€reasons€articulated€inÐ ° ÐòòRobertsóó,€that€ðð€465€is€not€an€unconstitutional€delegation€ofÐ \¬ Ðlegislative€power.€€òòId.óóÐ X Ðà ` àò ò2.€€The€Tenth€Amendment€and€the€Indian€Commerce€Clauseó óÐ ´  Ðà ` àThe€State€contends€that€ðð€465€of€the€IRA€offends€theÐ | Ì ÐTenth€Amendment€by€generally€encroaching€on€state€sovereignty€andÐ ( x  Ðthat€Congress's€Article€I€Indian€Commerce€Clause€authority€does€notÐ Ô$  Ðextend€to€the€abrogation€of€state€sovereignty.€€We€agree€with€theÐ €Ð  Ðconclusion€of€the€district€court€that€this€argument€fails.Ð ,|  Ðà ` àCongress'€authority€to€regulate€Indian€affairs€is€clearlyÐ Ø( Ðwithin€the€enumerated€powers€of€the€federal€government.€€òòSeeóó€U.S.Ð „Ô ÐConst.€art.€I.,€ðð€8,€cl.€3€(conferring€upon€Congress€the€powerÐ 0€ Ð"[t]o€regulate€commerce€.€.€.€with€the€Indian€tribes.");€òòsee€alsoóóÐ Ü, ÐòòMortonóó€v.€òòMancarióó,€417€U.S.€535,€551€(1974)€(noting€that€CongressÐ ˆØ Ðhas€plenary€power€"to€deal€with€the€special€problems€of€Indians,"Ð 4„ Ðincluding€the€power€to€legislate).€€The€Tenth€Amendment€reserves€toÐ à0 Ðthe€States,€or€the€People,€those€powers€not€delegated€to€the€UnitedÐ ŒÜ  ÐStates€by€the€Constitution.€€The€Supreme€Court€has€interpreted€theÐ 8!ˆ" ÐTenth€Amendment€to€be€a€mirror€of€the€enumerated€powers€embodied€inÐ ä"4$ ÐArticle€I.€€òòNew€Yorkóó€v.€òòUnited€Statesóó,€505€U.S.€144,€156€(1992)Ð $à& Ð("If€a€power€is€delegated€to€Congress€in€the€Constitution,€theÐ <&Œ!( ÐTenth€Amendment€expressly€disclaims€any€reservation€of€that€powerÐ è'8#* Ðâ âto€the€States").€€Therefore,€because€the€power€to€regulate€IndianÐ ”)ä$, Ðaffairs€is€conferred€on€Congress,€its€exercise€does€not€offend€theÐ ° ÐTenth€Amendment.Ð \¬ Ðâ âò òà ` à3.€€The€Enclave€Clauseó óÐ X Ðà ` àThe€State€claims€that€the€Federal€government€may€notÐ Ð  Ðacquire€lands€to€be€held€in€trust€for€the€benefit€of€an€IndianÐ | Ì Ðtribe€unless€it€has€secured€the€consent€of€the€State€pursuant€toÐ ( x  Ðthe€Enclave€Clause€of€the€Constitution.€€U.S.€Const.€art.€I,€ðð€8,Ð Ô$  Ðcl.€17.€€The€Enclave€Clause€provides€Congress€with€the€power€toÐ €Ð  Ðexercise€"exclusive€legislative"€authority€"over€all€PlacesÐ ,|  Ðpurchased€by€the€Consent€of€the€Legislature€of€the€State€in€whichÐ Ø( Ðthe€Same€shall€be,€for€the€Erection€of€Forts,€Magazines,€Arsenals,Ð „Ô Ðdock„Yards,€and€other€needful€Buildings."€€òòId.óó€€This€was€intendedÐ 0€ Ðto€ensure€that€the€"places€on€which€the€security€of€the€entireÐ Ü, ÐUnion€may€depend"€would€not€"be€in€any€degree€dependent€on€aÐ ˆØ Ðparticular€member€of€it."€€òòFort€Leavenworth€R.R.€Co.óó€v.€òòLoweóó,€114Ð 4„ ÐU.S.€525,€530€(1885).Ð à0 Ðà ` àIndian€reservations,€however,€are€not€federal€enclaves,Ð ŒÜ  Ðand€instead€represent€land€owned€by€the€United€States€for€publicÐ 8!ˆ" Ðpurposes.€€"Such€ownership€and€use€without€more€do€not€withdraw€theÐ ä"4$ Ðlands€from€the€jurisdiction€of€the€state,"€òòSurplus€Trading€Co.óó€v.Ð $à& ÐòòCookóó,€281€U.S.€647,€650€(1930),€and€State€consent€is€therefore€notÐ <&Œ!( Ðrequired.€€The€Supreme€Court€recently€confirmed€that€lands€held€inÐ è'8#* Ðtrust€for€the€benefit€of€tribes€are€not€subject€to€the€exclusiveÐ ”)ä$, Ðjurisdiction€of€the€United€States:Ð @+&. ÐÓÓà8 ` àOur€cases€make€clear€that€the€Indians'€rightÐ ° Ðto€make€their€own€laws€and€be€governed€by€themÐ †Ö Ðdoes€not€exclude€all€state€regulatoryÐ \¬ Ðauthority€on€the€reservation.€StateÐ 2‚ Ðsovereignty€does€not€end€at€a€reservation'sÐ X Ðborder.€Though€tribes€are€often€referred€to€asÐ Þ. Ð"sovereign"€entities,€it€was€"long€ago"€thatÐ ´  Ð"the€Court€departed€from€Chief€JusticeÐ Š Ú ÐMarshall's€view€that€'the€laws€of€[a€State]Ð ` ° Ðcan€have€no€force'€within€reservationÐ 6 †  Ðboundaries.Ð \ ` x` x ÐÌÓÓòòNevadaóó€v.€òòHicksóó,€533€U.S.€353,€361€(2001)€(quoting€òòWorcesteróó€v.Ð ¸  ÐòòGeorgiaóó,€31€U.S.€(6€Pet.)€515,€561€(1832));€òòsee€alsoóó€òòSurplusÐ d´  ÐTrading€Co.óó,€281€U.S.€at€651€(holding€the€Indian€reservation€out€asÐ `  Ðan€example€of€land€owned€by€the€United€States€that€does€notÐ ¼  Ðconstitute€a€federal€enclave€because€the€civil€and€criminal€lawsÐ h¸ Ðstill€have€partial€application€therein).€€Therefore,€we€find€thatÐ d Ðthe€Secretary's€acquisition€of€the€Parcel€into€trust€does€notÐ À Ðviolate€the€Enclave€Clause.Ð l¼ Ðà ` àò ò4.€€The€Admissions€Clauseó óÐ h Ðà ` àThe€State€also€contends€that€the€trust€acquisition€of€theÐ à0 ÐParcel€offends€the€Admissions€Clause€of€the€Constitution.€€U.S.Ð ŒÜ  ÐConst.€art.€IV,€ðð€3,€cl.€1.€€The€Admissions€Clause€provides:€"NewÐ 8!ˆ" ÐStates€may€be€admitted€by€the€Congress€into€this€Union;€but€no€newÐ ä"4$ ÐState€shall€be€formed€or€erected€within€the€Jurisdiction€of€anyÐ $à& Ðother€State;€.€.€.€or€Parts€of€States,€without€the€Consent€of€theÐ <&Œ!( ÐLegislatures€of€the€States€concerned€as€well€as€of€the€Congress."€Ð è'8#* Ðâ âòòId.óóÐ ”)ä$, Ðà ` àThe€trust€acquisition,€however,€does€not€amount€to€theÐ ° Ðâ âestablishment€of€a€new€state€within€the€meaning€of€the€AdmissionsÐ \¬ ÐClause.€€For€purposes€of€the€Admissions€Clause,€"state"€refers€toÐ X Ða€body€equal€in€power€to€the€existing€states.€€òòCoyleóó€v.€òòSmithóó,€221Ð ´  ÐU.S.€559,€566„67€(1911)€(quoting€U.S.€Const.€art.€IV,€ðð€3,€cl.€1.).€Ð ` ° ÐThe€Supreme€Court,€in€òòCoyleóó€interpreted€that€"'[t]his€Union'€wasÐ  \  Ðand€is€a€union€of€States,€equal€in€power,€dignity,€and€authority,"Ð ¸  ÐòòCoyleóó,€221€U.S.€at€567,€and€that€Congress€does€not€have€the€"powerÐ d´  Ðto€admit€a€new€state€which€shall€be€any€less€a€state€than€thoseÐ `  Ðwhich€compose€the€Union."€€òòId.óó€at€568.€€Since€the€trust€acquisitionÐ ¼  Ðdoes€not€confer€statehood€status,€it€does€not€offend€the€AdmissionsÐ h¸ ÐClause.Ð d Ðò òC.€€The€Rhode€Island€Indian€Claims€Settlement€Actó óÐ À Ðà ` àWe€now€turn€to€the€State's€alternative€argument€that€theÐ ˆØ ÐRhode€Island€Indian€Claims€Settlement€Act€prohibits€the€SecretaryÐ 4„ Ðfrom€converting€the€Parcel€into€an€unrestricted€federal€trust.׃×Ý ƒÃÝòòÚ  Ú3Ú  ÚóóÝ  Ý×  ׀Рà0 ÐThe€State€offers€several€arguments€in€support€of€its€position.€Ð ŒÜ  ÐFirst,€the€State€argues€that€allowing€the€Secretary€to€take€non„Ð 8!ˆ" ÐSettlement€lands€into€trust€for€the€Tribe€disrupts€the€specialÐ ä"4$ Ðbalance€of€rights€and€allocation€of€powers€between€the€State,€theÐ ° ÐFederal€government,€and€the€Tribe€that€were€negotiated€by€theÐ \¬ Ðparties,€laid€out€in€the€JMOU€and€then€implemented€through€theÐ X ÐSettlement€Act.€€Thus,€the€State€asserts€that€the€Settlement€ActÐ ´  Ðprecludes€the€Tribe,€and€any€"successor€in€interest"€ð!ð„€hereÐ ` ° Ðmeaning€the€Secretary€„„€from€disrupting€this€allocation€byÐ  \  Ðacquiring€additional,€non„settlement€lands€into€trust€and€therebyÐ ¸  Ðremoving€them€from€the€jurisdiction€and€laws€of€the€State.€€Second,Ð d´  Ðthe€State€contends€that€ðð€1707(c),€as€well€as€portions€of€ðð1705Ð `  Ð(a)(3)€and€ðð€1712(a)(3)€of€the€Settlement€Act,€eliminate€theÐ ¼  Ðfederal€government's€ability€to€divest€state€sovereignty€byÐ h¸ Ðacquiring€land€into€trust€for€the€Tribe.€€Third,€the€State€arguesÐ d Ðthat€the€1976€lawsuits€settled€the€State's€jurisdiction€over€theÐ À Ð3200€acres€at€issue€in€those€suits,€and€thus€the€31„acre€Parcel,Ð l¼ Ðwhich€was€a€part€of€the€3200€acres€of€contested€lands,€may€not€beÐ h Ðaccepted€into€trust€by€the€Secretary.€€Finally,€the€State€arguesÐ Ä Ðthat,€notwithstanding€whether€the€Parcel€may€be€taken€into€trust,Ð pÀ  Ðthe€Settlement€Act€prohibits€the€Tribe€and€the€Federal€governmentÐ !l" Ðfrom€making€a€claim€that€the€Tribe's€laws,€rather€than€the€criminalÐ È"$ Ðand€civil€laws€of€the€State€of€Rhode€Island,€should€apply€on€TribalÐ t$Ä& Ðland.Ð  &p!( Ðà ` àThe€Secretary€responds€that€the€Settlement€Act€does€notÐ Ì'#* Ðprohibit€the€Settlement€Lands€from€being€acquired€into€trust,€andÐ x)È$, Ðargues€that€the€Act€addresses€the€extinguishment€of€IndianÐ $+t&. Ðaboriginal€land€claims€in€Rhode€Island€without€prohibiting€futureÐ ° Ðland€transactions.€€We€agree€that€the€Settlement€Act€does€notÐ \¬ Ðprohibit€the€Parcel€from€being€taken€into€trust€by€the€Secretary,Ð X Ðand€we€do€not€decide€the€issue€of€whether€the€Settlement€ActÐ ´  Ðprohibits€the€land€taken€into€trust€from€being€removed€from€theÐ ` ° Ðcriminal€and€civil€jurisdiction€of€the€State.Ð  \  Ðà ` àThe€issue€here€is€primarily€one€of€statutoryÐ ¸  Ðconstruction.€€Does€the€Settlement€Act€preclude€the€Secretary€fromÐ d´  Ðtaking€land,€in€addition€to€the€Settlement€Lands,€into€trust€onÐ `  Ðbehalf€of€the€Tribe?€€Does€the€Settlement€Act€prohibit€theÐ ¼  ÐSecretary€from€removing€lands€not€included€in€the€Settlement€LandsÐ h¸ Ðfrom€under€the€laws€and€jurisdiction€of€the€State€of€Rhode€Island?€Ð d ÐThe€Supreme€Court€has€said€that€"statutes€are€to€be€construed€beÐ À Ðconstrued€liberally€in€favor€of€the€Indians€with€ambiguousÐ l¼ Ðprovisions€interpreted€to€their€benefit."€€òòChickasaw€Nationóó€v.Ð h ÐòòUnited€Statesóó,€534€U.S.€84,€93„94€(2001).Ð Ä Ðà ` àThe€Rhode€Island€Indian€Claims€Settlement€Act,€inÐ pÀ  Ðprovisions€pertinent€to€these€questions€„„€including€25€U.S.C.Ð !l" Ððð1705€(Publication€of€findings),€25€U.S.C.€ðð€1712€(Approval€ofÐ È"$ Ðprior€transfers€and€extinguishment€of€claims€and€aboriginal€titleÐ t$Ä& Ðoutside€town€of€Charlestown),€and€25€U.S.C.€ðð€1707€(Purchase€andÐ  &p!( Ðtransfer€of€private€Settlement€Lands)€„„€provides€for€theÐ Ì'#* Ðratification€of€various€transfers€of€land€and€natural€resources,Ð x)È$, Ðextinguishment€of€aboriginal€title,€state€jurisdiction€over€theÐ $+t&. ÐSettlement€Lands,€and€a€limit€on€the€duties€and€liabilities€of€theÐ ° Ðfederal€government€with€respect€to€the€settlement.€€Specifically,Ð \¬ Ðthe€Settlement€Act€ratified€any€transfer€of€land€or€naturalÐ X Ðresources€located€anywhere€in€the€United€States€made€by,€or€onÐ ´  Ðbehalf,€of€the€Narragansetts,€their€predecessors,€or€theirÐ ` ° Ðsuccessors€as€congressionally€approved€as€of€the€date€of€theÐ  \  Ðtransfer.€€25€U.S.C.€ðð€1705(a)(1).€€The€Act€also€provided€forÐ ¸  Ðratification€of€any€transfers€of€land€or€resources€located€withinÐ d´  Ðthe€town€of€Charlestown,€òòid.óó,€as€well€as€anywhere€else€within€theÐ `  ÐState€of€Rhode€Island,€25€U.S.C.€ðð€1712(a)(1),€that€were€made€byÐ ¼  Ðany€Indian,€Indian€nation,€or€Indian€tribe.€€The€Act€extinguishedÐ h¸ Ðany€Indian€claims€of€aboriginal€title€to€all€such€property€as€ofÐ d Ðthe€date€of€the€transfer.€€25€U.S.C.€ðððð€1705(a)(2),€1712(a)(2).Ð À Ðà ` àThe€Settlement€Act€also€provided€that:Ð l¼ ÐÓÓà8 ` àby€virtue€of€the€approval€of€a€transfer€ofÐ h Ðland€or€natural€resources€effected€by€thisÐ î> Ðsection,€or€an€extinguishment€of€aboriginalÐ Ä Ðtitle€effected€thereby,€all€claims€against€theÐ šê ÐUnited€States,€any€State€or€subdivisionÐ pÀ  Ðthereof,€or€any€other€person€or€entity,€by€theÐ F –! ÐIndian€Corporation€or€any€other€entityÐ !l" Ðpresently€or€at€any€time€in€the€past€known€asÐ ò!B# Ðthe€Narragansett€Tribe€of€Indians,€or€anyÐ È"$ Ðpredecessor€or€successor€in€interest,€memberÐ ž#î% Ðor€stockholder€thereof,€or€any€other€Indian,Ð t$Ä& ÐIndian€nation,€or€tribe€of€Indians,€arisingÐ J%š ' Ðsubsequent€to€the€transfer€and€based€upon€anyÐ  &p!( Ðinterest€in€or€right€involving€such€land€orÐ ö&F") Ðnatural€resources€(including€but€not€limitedÐ Ì'#* Ðto€claims€for€trespass€damages€or€claims€forÐ ¢(ò#+ Ðuse€and€occupancy)€shall€be€regarded€asÐ x)È$, Ðâ âextinguished€as€of€the€date€of€the€transfer.ÐN*ž%-` x` x ÐÓÓ25€U.S.C.€ðð€1705(a)(3).€€In€ðð€1712(a)(3),€the€Act€effected€the€sameÐ ° Ðâ âextinguishment€for€all€claims€by€any€other€tribe€of€Indians€basedÐ \¬ Ðupon€any€interest€in,€or€rights€involving,€land€or€resourcesÐ X Ðtransferred€anywhere€within€Rhode€Island.Ð ´  ÐÓÓò òà0 ` à1.€€Whether€the€Settlement€Act€precludes€trust€€€€€€€€Ð` °` (#` (# Ðà ` à€€€€acquisitionó óÐ D ”  ÐÌÓåöÓà ` àThe€State€argues€that€ðð€1705€and€ðð€1712€of€the€SettlementÐ þ N  ÐAct€provide€a€comprehensive€extinguishment€on€the€ability€of€anyÐ ªú  Ðtribe,€including€the€Narragansetts,€to€claim€territorialÐ V¦  Ðsovereignty€anywhere€in€the€State€of€Rhode€Island€through€a€two„Ð R Ðpronged€approach€of€first,€terminating€all€aboriginal€titleÐ ®þ Ðthroughout€Rhode€Island,€25€U.S.C.€ðððð€1705(a)(2),€1712(a)(2),€and,Ð Zª Ðsecond,€extinguishing€any€claims€by€any€tribe,€or€successor€inÐ V Ðinterest,€against€the€State€based€upon€"any€interest€in€or€rightÐ ² Ðinvolving€land"€in€Rhode€Island,€25€U.S.C.€ðððð€1705(a)(3),Ð ^® Ð1712(a)(3).€€The€State€also€contends€that€the€extinguishment€of€theÐ  Z Ðright€of€"any€successor€in€interest"€in€ðð€1705(a)(3)€and€ðð1712(a)Ð ¶ Ð(3)€precludes€the€Secretary€from€making€the€same€claim€on€theÐ b ²! ÐTribe's€behalf.€€These€provisions,€the€State€asserts,€are€theÐ "^# Ðresult€of€the€careful€balance€that€was€negotiated€in€the€settlementÐ º# % Ðof€the€1976€lawsuits.€€Whereas€the€Narragansetts€received€an€1800„Ð f%¶ ' Ðacre€land€base€and€locus€for€the€exercise€of€the€its€retainedÐ 'b") Ðsovereignty€over€its€members€and€internal€tribal€matters,€òòseeóó€òòRhodeÐ ¾($+ ÐIslandóó€v.€òòNarragansett€Indian€Tribeóó,€19€F.3d€685,€701€(1st€Cir.Ð j*º%- Ð1994),€the€State€obtained€the€continued€application€of€its€laws€andÐ ,f'/ Ðjurisdiction€on€the€Settlement€Lands.€€25€U.S.C.€ðð€1708(a)€("ExceptÐ ° Ðas€otherwise€provided€in€this€subchapter,€the€Settlement€LandsÐ \¬ Ðshall€be€subject€to€the€civil€and€criminal€laws€and€jurisdiction€ofÐ X Ðthe€State€of€Rhode€Island.").€€The€State€argues€that€theÐ ´  ÐSecretary's€action€of€taking€the€Parcel€into€trust,€therebyÐ ` ° Ðremoving€it€from€the€jurisdiction€of€the€State's€criminal€and€civilÐ  \  Ðlaws,€upsets€this€negotiated€and€agreed„upon€balance,€asÐ ¸  Ðimplemented€by€the€Settlement€Act.Ð d´  Ðà ` àThese€sections€of€the€Settlement€Act€show€that€CongressÐ `  Ðintended€to€enact€a€wide„reaching€resolution€of€any€and€allÐ ¼  Ðcontested€transfers€of€land€by€Indians€òòquaóó€Indians€in€Rhode€Island.€Ð h¸ ÐThe€JMOU€and€Settlement€Act€clearly€resolve€all€prior€contestedÐ d Ðland€transfers€and€related€claims€involving€Indian€tribes,Ð À Ðincluding€the€extinguishment€of€aboriginal€title€in€Rhode€Island.Ð l¼ Ðà ` àIt€is€not€clear,€however,€that€Congress€intended€toÐ h Ðpreclude€the€Narragansetts€from€ever€expanding€from€the€SettlementÐ Ä ÐLands€if€the€Tribe€became€federally€recognized.€€Neither€the€JMOUÐ pÀ  Ðnor€the€Settlement€Act€provides€that€lands€outside€the€SettlementÐ !l" ÐLands€may€not€be€acquired€or€held€in€trust.€€In€fact,€the€JMOU€andÐ È"$ ÐSettlement€Act€do€not€make€direct€reference€to€the€IRA€at€all.€€TheÐ t$Ä& Ðomission€of€an€explicit€prohibition€on€trust€acquisition€andÐ  &p!( Ðfederal€superintendence€of€non„Settlement€lands€is€significant,Ð Ì'#* Ðbecause€settlement€acts€resolving€Indian€claims€in€other€states€didÐ x)È$, Ðexplicitly€prohibit€future€trust€acquisitions.€€òòSeeóó,€òòe.g.óó,€25Ð $+t&. ÐU.S.C.€1724(e)€(precluding€application€of€ðð€465€of€the€IRA€in€theÐ ° ÐMaine€Settlement€Act);€òòConnecticut€ex€rel.€Blumenthalóó,€228€F.3d€atÐ \¬ Ð90€(finding€that€the€absence€of€a€provision€analogous€to€theÐ X Ðprohibition€of€ðð€465€of€the€IRA€in€the€Maine€Settlement€ActÐ ´  Ðconfirmed€"that€the€Settlement€Act€was€not€meant€to€eliminate€theÐ ` ° ÐSecretary's€power€under€the€IRA€to€take€land€purchased€withoutÐ  \  Ðsettlement€funds€into€trust€for€the€benefit€of€the€Tribe").Ð ¸  Ðà ` àThe€Settlement€Act€explicitly€anticipated€that€theÐ d´  ÐNarragansetts€might€eventually€be€federally€acknowledged,€25€U.S.C.Ð `  Ððð€1707(c),€and€the€JMOU€provided€that€the€Narragansett€Tribe€wouldÐ ¼  Ð"have€the€same€right€to€petition€for€[federal]€recognition€andÐ h¸ Ðservices€as€other€groups."€€JMOU€para.€15;€H.R.€Rep.€No.€95„1453,Ð d Ðat€27.€€As€we€noted,€one€of€the€benefits€of€federal€recognition€isÐ À Ðthe€right€to€apply€to€have€land€taken€into€trust€by€the€federalÐ l¼ Ðgovernment€for€the€benefit€of€the€tribe,€pursuant€to€Section€5€ofÐ h Ðthe€IRA.Ð Ä Ðà ` àAt€the€time€the€JMOU€was€negotiated€and€the€SettlementÐ pÀ  ÐAct€was€enacted,€the€Narragansetts€had€not€yet€been€acknowledged€asÐ !l" Ða€federally€recognized€tribe.€€Thus,€they€were€ineligible€at€thatÐ È"$ Ðtime€to€apply€for€the€benefits€of€the€IRA,€including€theÐ t$Ä& Ðacquisition€of€land€into€trust€by€the€Secretary€of€the€Interior€forÐ  &p!( Ðtheir€use.€€As€we€noted€above,€trust€acquisition€typically€resultsÐ Ì'#* Ðin€the€removal€of€the€land€from€State€jurisdiction€in€favor€ofÐ x)È$, Ðtribal€jurisdiction€with€federal€superintendence.€€Therefore,€theÐ $+t&. Ðimmediate€result€of€ðð€1708€was€indeed€that€the€laws€andÐ ° Ðjurisdiction€of€the€State€would€remain€in€force€throughout€theÐ \¬ Ðstate€at€the€time€of€the€JMOU€and€enactment€of€the€Settlement€Act.€Ð X ÐOnce€the€tribe€received€federal€recognition€in€1983,€however,€itÐ ´  Ðgained€the€same€benefits€as€other€tribes,€including€the€right€toÐ ` ° Ðapply€to€have€land€taken€into€trust€pursuant€to€ðð€465€of€the€IRA.Ð  \  ÐÓÓò òà0 ` à2.€€€The€Secretary's€duties€and€liabilities€under€the€€€Ð ¸  Ѐ€€€€Settlement€Actó óМì ` (#` (# ÐÌÓ»Óà ` àThe€Settlement€Act€provides€that€"[u]pon€the€discharge€ofÐ V¦  Ðthe€Secretary's€duties€under€ðððð€1704„1706,€and€1707€of€this€title,Ð R Ðthe€United€States€shall€have€no€further€duties€or€liabilities€underÐ ®þ Ðthis€subchapter€with€respect€to€the€Indian€Corporation€or€itsÐ Zª Ðsuccessor,€the€State€Corporation,€or€the€settlement€lands€.€.€.€."€Ð V Ð25€U.S.C.€ðð€1707(c).€€The€State€contends€that€this€passageÐ ² Ðprohibits€the€federal€government€from€divesting€the€State€ofÐ ^® Ðsovereignty€over€the€Parcel€by€putting€the€land€into€trust€for€theÐ  Z ÐTribe.Ð ¶ Ðà ` àHowever,€ðð€1707(c)€does€not€preclude€the€Secretary€fromÐ b ²! Ðacquiring€additional€lands€in€trust€for€the€benefit€of€theÐ "^# ÐNarragansetts.€€Again,€we€point€out€that€the€Narragansetts€did€notÐ º# % Ðobtain€federal€acknowledgment€of€their€tribal€status€until€1983.€Ð f%¶ ' ÐDespite€the€fact€that€the€JMOU€and€Settlement€Act€both€contemplatedÐ 'b") Ðthe€future€acknowledgment€of€the€Narragansett€tribe€by€the€federalÐ ¾($+ Ðgovernment,€no€explicit€limitation€was€placed€on€the€Secretary'sÐ j*º%- Ðauthority€to€accept€additional€land€into€trust€for€theÐ ,f'/ ÐNarragansetts'€benefit.€€òòCf.óó€€Maine€Indian€Claims€Settlement€Act,Ð ° Ð25€U.S.C.€ðð€1724€(e)€("Except€for€the€provisions€of€thisÐ \¬ Ðsubchapter,€the€United€States€shall€have€no€other€authority€toÐ X Ðacquire€lands€or€natural€resources€in€trust€for€the€benefit€ofÐ ´  ÐIndians€.€.€.€in€the€State€of€Maine.").€€We€therefore€agree€withÐ ` ° Ðthe€district€court€that€such€a€restriction€cannot€reasonably€beÐ  \  Ðinferred.€€òòCarcierióó,€290€F.€Supp.€2d€at€184.Ð ¸  Ðà ` àò ò3.€€Settlement€of€the€1976€Lawsuitsó óÐ d´  Ðà ` àThe€State€argues€that€the€trust€acquisition€of€the€ParcelÐ ,|  Ðis€precluded€by€the€doctrine€of€res€judicata€because€the€Parcel€wasÐ Ø( Ðamong€the€3200€acres€at€issue€in€the€1976€lawsuits€that€wereÐ „Ô Ðultimately€settled€by€the€JMOU€and€implementation€of€the€SettlementÐ 0€ ÐAct.€€The€Parcel€was€part€of€the€1400€acres€that€remained€with€theÐ Ü, Ðdefendant€property€owners€pursuant€to€the€settlement.€€Thus,€theÐ ˆØ ÐState€contends€the€Tribe€relinquished€its€claimed€interest€in€theÐ 4„ Ðexercise€of€sovereignty€over€the€1400€acres,€including€the€31„acreÐ à0 ÐParcel.Ð ŒÜ  Ðà ` àThis€argument€is€without€merit.€€As€the€district€courtÐ 8!ˆ" Ðnoted,€"the€doctrine€of€res€judicata€operates€to€bar€theÐ ä"4$ Ðrelitigation€of€issues€that€were€or€could€have€been€raised€in€anÐ $à& Ðearlier€action€between€the€same€parties€prescinding€from€the€sameÐ <&Œ!( Ðset€of€operative€facts."€€òòId.óó€at€186€(quoting€òòIn€re€Carvalhoóó,€335Ð è'8#* ÐF.3d€45,€49€(1st€Cir.€2003))€(citations€omitted).€€Since€theÐ ”)ä$, Ðfederal€government€was€not€a€party€to€the€1976€lawsuits€or€theÐ @+&. ÐJMOU,€the€principles€of€res€judicata€do€not€apply.€€The€StateÐ ° Ðattempts€to€salvage€the€argument€on€appeal€by€contending€that€theÐ \¬ ÐUnited€States€maintains€a€special€relationship€with€the€Tribe€suchÐ X Ðthat€they€may€be€considered€a€legal€unity.€€This€argument€isÐ ´  Ðultimately€insufficient€because€the€fee„to„trust€acquisition€of€theÐ ` ° ÐParcel€by€the€Secretary,€and€the€consequences€thereof,€areÐ  \  Ðdifferent€issues€than€the€claims€of€aboriginal€right€which€wereÐ ¸  Ðlitigated€in€the€1976€lawsuits€and€resolved€by€the€JMOU€andÐ d´  ÐSettlement€Act.€€Accordingly,€even€if€there€were€a€substantialÐ `  Ðidentity€of€the€parties€in€the€1976€and€the€instant€litigation,Ð ¼  Ðthere€would€be€no€identity€of€claims,€and€thus,€the€trustÐ h¸ Ðacquisition€is€not€barred€by€res€judicata.Ð d Ðà ` àò ò4.€€The€Trust€must€preserve€State€laws€and€jurisdictionó óÐ À Ðà ` àFinally,€the€State€argues€that€even€if€the€Settlement€ActÐ ˆØ Ðcan€be€read€to€allow€the€Secretary€to€take€the€Parcel€into€trustÐ 4„ Ðfor€the€Narragansetts,€the€trust€must€remain€subject€to€the€State'sÐ à0 Ðcivil€and€criminal€jurisdiction€in€order€to€comply€with€theÐ ŒÜ  ÐSettlement€Act,€which€extinguished€aboriginal€title€throughoutÐ 8!ˆ" ÐRhode€Island,€25€U.S.C.€ðððð€1705(a)(2),€1712(a)(2),€as€well€asÐ ä"4$ ÐIndian€claims€against€the€State€based€upon€"any€interest€in€orÐ $à& Ðright€involving"€land€in€Rhode€Island,€òòid.óó€ðððð€1705(a)(3),Ð <&Œ!( Ð1712(a)(3).€€The€State€claims€that€to€do€otherwise€would€render€theÐ è'8#* Ðâ âlatter€provision€mere€surplusage.Ð ”)ä$, Ðà ` àThis€issue€does€not€appear€to€have€been€sufficientlyÐ ° Ðâ âraised€before€the€trial€court€for€us€to€now€consider€it€preservedÐ \¬ Ðon€appeal.€€The€general€rule€is€that€issues€not€raised€in€districtÐ X Ðcourt€cannot€be€raised€for€the€first€time€on€appeal€as€a€matter€ofÐ ´  Ðright.€€òòFajardo€Shopping€Center,€S.E.óó€v.€òòSun€Alliance€Ins.óó,€167€F.Ð ` ° Ð3d€1,€6€(1st€Cir.€1999).€€"This€limitation€has€been€applied€both€toÐ  \  Ðissues€that€are€wholly€'alien€to€the€record,'€òòUnited€Statesóó€v.Ð ¸  ÐòòKobroskyóó,€711€F.2d€449,€457€(1st€Cir.€1983),€and€to€those€that€areÐ d´  Ðmerely€mentioned€in€the€pleadings€but€not€seriously€developed€inÐ `  Ðthe€record€thereafter,€òòseeóó€òòVioletteóó€[v.€òòSmith€&€Nephew€Dyonics,Ð ¼  ÐInc.óó,€62€F.3d€8,€11€(1st€Cir.€1995)]."€€òòAmcel€Corp.óó€v.€òòInt'lÐ h¸ ÐExecutive€Sales,€Inc.óó,€170€F.3d€32,€35€(1st€Cir.€1999).€€This€issueÐ d Ðwas€not€raised€in€the€complaint€and€appears€to€have€been€presentedÐ À Ðto€the€district€court€only€in€a€footnote€on€page€7€of€theÐ l¼ ÐPlaintiffs'€Joint€Memorandum€of€Law€in€Support€of€Plaintiffs'€JointÐ h ÐMotion€for€Summary€Judgment.€€The€district€court's€comprehensiveÐ Ä Ðopinion€did€not€mention€the€issue.€€Moreover,€on€appeal,€the€StateÐ pÀ  Ðpresents€the€argument€in€only€the€most€cursory€fashion,€withoutÐ !l" Ðcitation€or€developed€analysis,€on€page€57€of€their€opening€brief.Ð È"$ Ðà ` àGiven€the€inadequacy€of€the€State's€presentation€of€this€Ð t$Ä& Ðissue€before€the€district€court€and€on€appeal,€we€will€not€decide€Ð  &p!( Ðthe€question€of€whether€the€trust€lands€must€remain€subject€to€theÐ Ì'#* ÐState's€civil€and€criminal€jurisdiction.€€We€leave€this€issue€to€beÐ x)È$, Ðdecided€another€day,€when€there€is€a€more€fully€developed€record.Ð $+t&. Ðò òÓÓD.€€Whether€the€Secretary's€acceptance€of€the€Parcel€in€trustÐ ° Ѐ€€€violates€the€APAó óÐ ”ä ÐÌÓ_-Óà ` àIn€addition€to€the€constitutional€and€other€statutoryÐ Nž Ðchallenges€to€the€Secretary's€decision€to€take€the€Parcel€intoÐ úJ Ðtrust,€the€State€claims€that€the€Secretary's€action€was€an€abuse€ofÐ ¦ ö Ðdiscretion€under€the€Administrative€Procedures€Act.€€Our€review€ofÐ R ¢  Ðthe€Secretary's€decision€is€governed€by€ðð€706(2)(A)€of€the€APA,Ð þ N  Ðwhich€provides€that€a€court€may€set€aside€agency€action€only€whereÐ ªú  Ðit€finds€the€action€"arbitrary,€capricious,€an€abuse€of€discretion,Ð V¦  Ðor€otherwise€not€in€accordance€with€the€law."€€5€U.S.C.€ðð706(2)Ð R Ð(A).€€An€agency's€determination€is€arbitrary€and€capricious€if€theÐ ®þ Ðagency€lacks€a€rational€basis€for€making€the€determination€or€ifÐ Zª Ðthe€decision€was€not€based€on€consideration€of€the€relevantÐ V Ðfactors.€€òòSeeóó€òòMotor€Vehicle€Mfrs.€Ass'nóó€v.€òòState€Farm€Mut.€Ins.Ð ² ÐCo.óó,€463€U.S.€29,€43€(1983);€òòAssociated€Fisheries€of€Maine,€Inc.óó€v.Ð ^® ÐòòDaleyóó,€127€F.3d€104,€109€(1st€Cir.€1997).€€The€Court's€review€underÐ  Z Ððð€706(2)(A)€is€highly€deferential,€and€the€Secretary's€action€isÐ ¶ Ðpresumed€to€be€valid.€€òòSeeóó€òòConservation€Law€Found.€of€New€England,Ð b ²! ÐInc.óó€v.€òòSec'y€of€Interioróó,€864€F.2d€954,€957„58€(1st€Cir.€1989).€Ð "^# ÐA€reviewing€court€cannot€substitute€its€own€judgment€for€that€ofÐ º# % Ðthe€agency.€€òòCitizens€to€Preserve€Overton€Parkóó€v.€òòVolpeóó,€401€U.S.Ð f%¶ ' Ð402,€416€(1971);€òòAssociated€Fisheriesóó,€127€F.3d€at€109.€€We€willÐ 'b") Ðapply€the€same€legal€standards€that€governed€the€district€court'sÐ ¾($+ Ðreview,€without€affording€special€deference€to€that€court'sÐ j*º%- Ðdecision.Ð ,f'/ Ðà ` àThe€State€makes€five€arguments€as€to€why€the€Secretary'sÐ ° Ðdecision€was€unlawful€under€ðð€706(2)(A),€including€that€(1)€the€BIAÐ \¬ Ðrelied€on€the€Tribe's€findings,€rather€than€conducting€anÐ X Ðindependent€evaluation€of€the€Tribe's€application,€(2)€the€BIAÐ ´  Ðmisapplied€the€factors€enumerated€in€25€C.F.R.€ðð€151.10€forÐ ` ° Ðevaluating€a€fee„to„trust€transfer,€(3)€the€Native€American€HousingÐ  \  Ðand€Self€Determination€Act€("NAHASDA")€cooperation€agreement€waiverÐ ¸  Ðviolated€due€process,€(4)€the€BIA€failed€to€consider€environmentalÐ d´  Ðimpacts€of€the€housing€project€planned€for€the€Parcel,€and€(5)€theÐ `  ÐBIA€failed€to€consider€noncompliance€with€the€Coastal€ZoneÐ ¼  ÐManagement€Act€("CZMA")€and€the€Indian€Gaming€Regulatory€ActÐ h¸ Ð("IGRA").€€We€disagree€with€the€State,€and€for€essentially€the€sameÐ d Ðreasons€as€set€forth€in€the€district€court's€decision,€we€find€thatÐ À Ðthe€Secretary's€decision€to€accept€the€Parcel€into€trust€did€notÐ l¼ Ðviolate€the€APA.Ð h Ðà ` àÓÓò ò1.€€Whether€the€BIA€failed€to€conduct€an€independentÐ Ä Ðà ` à€€€€evaluation€of€the€Tribe's€trust€applicationó óÐ ¨ø ÐÌÓÓà ` àThe€State€points€to€substantial€passages€in€theÐ b ²! ÐSecretary's€decision,€which€contain€verbatim€restatements€ofÐ "^# Ðinformation€provided€by€the€Narragansett€Tribe€in€support€of€theirÐ º# % Ð1993€trust€application,€as€evidence€that€the€BIA€failed€to€conductÐ f%¶ ' Ðan€independent€evaluation€of€the€Tribe's€1997€application.€€TheÐ 'b") ÐState€claims€that€the€BIA€relied€exclusively€on€the€Tribe'sÐ ¾($+ Ðassertions€and€failed€to€consider€other€important€facts€thatÐ j*º%- Ðoccurred€between€1993€and€1997.€€Thus,€the€State€asserts€that€theÐ ,f'/ ÐBIA€made€an€arbitrary€and€capricious€decision€and€abused€itsÐ ° Ðdiscretion.Ð \¬ Ðà ` àHowever,€there€is€ample€evidence€in€the€administrativeÐ X Ðrecord€that€the€BIA€conducted€its€own,€independent€evaluation€ofÐ ´  Ðthe€Tribe's€application€and€that€it€considered€the€events€followingÐ ` ° Ðthe€Tribe's€1993€application.€€For€example,€between€1993€and€1997,Ð  \  Ðthe€BIA€required€the€Tribe€to€supplement€its€initial€EnvironmentalÐ ¸  ÐAssessment;€conducted€an€environmental€hazard€survey€of€the€subjectÐ d´  Ð31„acre€Parcel€(Supp.App.€99);€required€confirmation€ofÐ `  Ðconsistency€with€the€Stateððs€Coastal€Resources€Management€PlanÐ ¼  Ð(Supp.App.€102„03);€was€well€aware€of€the€òòNarragansett€ElectricóóÐ h¸ Ðlitigation€(Supp.App.€10„12,€13„93);€was€apprised€of,€and€offeredÐ d Ðto€facilitate,€negotiations€between€the€Tribe,€the€Town,€and€theÐ À ÐState€concerning€both€environmental€and€jurisdictional€issuesÐ l¼ Ðattendant€to€the€Tribe's€development€of€the€Parcel€(Supp.App.1);Ð h Ðand€specifically€requested€that€the€Regional€Solicitor€addressÐ Ä Ðseveral€legal€and€jurisdictional€issues€raised€by€the€State€in€itsÐ pÀ  Ðcomments€to€the€BIA€on€the€Tribe's€trust€applicationÐ !l" Ð(Supp.App.101).€€This€shows€that€the€BIA€did€not€rely€solely€onÐ È"$ Ðthe€findings€of€the€Tribe€and€did€conduct€its€own€evaluation.€€WeÐ t$Ä& Ðagree€with€the€district€court's€finding€that€the€BIA'sÐ  &p!( Ðdetermination€was€the€result€of€its€own,€independent€evaluation€ofÐ Ì'#* Ðthe€1997€application.Ð x)È$, ÐÐ  $+t&. Ðà ` àÓÓò ò2.€€Whether€the€BIA€properly€applied€the€25€C.F.R.Ð ° Ðà ` à€€€€ðð€151.10€factorsó óÐ ”ä ÐÌÓÓà ` àThe€State€claims€that€the€BIA€failed€to€apply€the€properÐ Nž Ðcriteria€when€it€evaluated€the€Tribe's€application€for€trustÐ úJ Ðacquisition.€€The€regulations€governing€the€BIA's€evaluation€ofÐ ¦ ö Ðapplications€to€have€land€taken€in€trust€are€laid€out€at€25€C.F.R.Ð R ¢  Ððð€151.€€The€factors€to€be€considered€for€an€"on„reservation"Ð þ N  Ðacquisition€are€found€in€ðð€151.10€and€the€factors€for€an€"off„Ð ªú  Ðreservation"€acquisition€are€in€ðð€151.11.€€In€making€the€decisionÐ V¦  Ðto€accept€the€Parcel€into€trust,€the€BIA€considered€the€on„Ð R Ðreservation€factors€in€ðð€151.10,׃V×Ý ƒÃÝòòÚ  Ú4Ú  ÚóóÝ  Ý×  ×€which€include:Ð ®þ ÐÓÓà8 ` à(a)€The€existence€of€statutory€authority€forÐ Zª Ðthe€acquisition€and€any€limitations€containedÐ 0€ Ðin€such€authority;ÐV` x` x Ðà8 ` à(b)€The€need€of€the€individual€Indian€or€theÐ Ü, Ðtribe€for€additional€land;в` x` x Ðà8 ` à(c)€The€purposes€for€which€the€land€will€beÐ ˆØ Ðused;Ð^®` x` x Ðà8 ` à.€.€.€Ð4„` x` x Ðà8 ` à(e)€If€the€land€to€be€acquired€is€inÐ  Z Ðunrestricted€fee€status,€the€impact€on€theÐ à0 ÐState€and€its€political€subdivisions€resultingÐ ¶ Ðfrom€the€removal€of€the€land€from€the€taxÐ ŒÜ  Ðâ ârolls;Ðb ²!` x` x Ðà8 ` à(f)€Jurisdictional€problems€and€potentialÐ ° Ðâ âconflicts€of€land€use€which€may€arise;€andІÖ` x` x Ðà8 ` à(g)€If€the€land€to€be€acquired€is€in€feeÐ \¬ Ðstatus,€whether€the€Bureau€of€Indian€AffairsÐ 2‚ Ðis€equipped€to€discharge€the€additionalÐ X Ðresponsibilities€resulting€from€theÐ Þ. Ðacquisition€of€the€land€in€trust€status.д ` x` x Ðà8 ` à.€.€.Њ Ú` x` x ÐÌÓÓ25€C.F.R.€ðð€151.10.Ð 6 †  Ðà ` àThe€State€claims€that€the€BIA€failed€to€consider€"theÐ â 2  Ðneed€of€.€.€.€the€tribe€for€additional€land,"€ðð€151.10(b).€€TheÐ ŽÞ  ÐState€also€questions€whether€the€BIA€sufficiently€scrutinized€"theÐ :Š  Ðtribe's€justification€of€anticipated€benefits€from€the€acquisition"Ð æ6 Ðas€required€by€ðð€151.11(b).€€The€criteria€required€pursuant€toÐ ’â Ððð151.11(b)€are€as€follows:Ð >Ž ÐÓÓà8 ` àThe€location€of€the€land€relative€to€stateÐ ê: Ðboundaries,€and€its€distance€from€theÐ À Ðboundaries€of€the€tribe's€reservation,€shallÐ –æ Ðbe€considered€as€follows:€as€the€distanceÐ l¼ Ðbetween€the€tribe's€reservation€and€the€landÐ B’ Ðto€be€acquired€increases,€the€Secretary€shallÐ h Ðgive€greater€scrutiny€to€the€tribe'sÐ î> Ðjustification€of€anticipated€benefits€from€theÐ Ä Ðacquisition.€.€.€.Кê` x` x ÐÌÓÓ25€C.F.R.€ðð€151.11(b).Ð F –! Ðà ` àAs€we€have€noted,€a€reviewing€court€will€determine€onlyÐ ò!B# Ð"whether€the€[BIA's]€decision€was€based€on€a€consideration€of€theÐ ž#î% Ðrelevant€factors€and€whether€there€has€been€a€clear€error€ofÐ J%š ' Ðjudgment."€òòSeeóó€òòCitizens€to€Preserve€Overton€Parkóó,€401€U.S.€at€416.€Ð ö&F") ÐThe€fact€that€the€BIA€found€the€Parcel,€which€is€across€a€town€roadÐ ¢(ò#+ Ðfrom€the€Settlement€Lands,€to€be€"contiguous"€to€the€SettlementÐ N*ž%- ÐLands€that€are€currently€in€trust,€and€thus€determined€that€itÐ ú+J'/ Ðshould€consider€the€"on„reservation"€factors€enumerated€in€25Ð ° ÐC.F.R.€ðð€151.10,€is€certainly€not€clear€error€and€is€within€theÐ \¬ ÐSecretary's€discretion.€€It€was€not€necessary€for€the€BIA€toÐ X Ðconsider€the€factors€under€ðð€151.11,€since€it€found€ðð€151.10€to€beÐ ´  Ðapplicable€for€this€trust€determination.€€While€the€Secretary€needÐ ` ° Ðnot€consider€ðð€151.11(b),€we€note€that€the€close€proximity€betweenÐ  \  Ðthe€Tribe's€Settlement€Lands€and€the€Parcel€would€€not€haveÐ ¸  Ðrequired€the€Secretary€to€give€the€greatest€scrutiny€to€theÐ d´  Ð"tribe's€justification€of€anticipated€benefits€from€theÐ `  Ðacquisition."€€25€C.F.R.€ðð€151.11(b).€€In€sum,€the€record€showsÐ ¼  Ðthat€the€BIA€complied€with€ðð€151.10,€including€evaluating€theÐ h¸ ÐTribe's€need€for€the€additional€land,€and€we€do€not€find€that€theÐ d ÐSecretary€has€made€a€clear€error€of€judgment.Ð À Ðà ` àò ò3.€€The€NAHASDA€Cooperation€Agreementó óÐ l¼ Ðà ` àAt€the€time€of€the€BIA's€decision€to€acquire€the€ParcelÐ 4„ Ðinto€trust,€HUD€was€precluded€from€releasing€funds€pursuant€to€theÐ à0 ÐNative€American€Housing€Assistance€and€Self„Determination€ActÐ ŒÜ  Ð("NAHASDA")€for€any€tribe's€housing€development€unless€an€agreementÐ 8!ˆ" Ðfor€local€cooperation€on€issues€such€as€taxes€and€jurisdiction€hadÐ ä"4$ Ðbeen€entered€into€by€the€tribe€and€the€local€government€where€theÐ $à& Ðhousing€was€located.€€25€U.S.C.€ðð€4111(c).€€In€the€instant€case,Ð <&Œ!( Ðthe€Narragansett€Tribe€did€not€obtain€such€an€agreement€with€theÐ è'8#* ÐTown.€€However,€ðð€4111(c)€has€now€been€amended€to€permit€HUD€toÐ ”)ä$, Ðwaive€the€cooperation€agreement€requirement,€25€U.S.C.€ðð€4111(c),Ð @+&. Ðas€amended,€Pub.€L.€106„569,€Dec.€27,€2000,€and€the€Tribe€obtainedÐ ° Ðsuch€a€waiver.Ð \¬ Ðà ` àThe€State€argues€that€this€waiver€was€invalid€because€theÐ X ÐState€apparently€did€not€receive€notice€of€the€Tribe's€applicationÐ ´  Ðfor€a€waiver€until€after€it€was€granted.€€On€appeal,€the€StateÐ ` ° Ðcontends€that€if€the€BIA€accepted€the€waiver,€the€BIA€has€inheritedÐ  \  Ðthe€legal€error€and€acted€in€an€arbitrary€and€capricious€manner.€Ð ¸  ÐAs€the€district€court€noted,€"25€U.S.C.€ðð€4111(c)€establishes€aÐ d´  Ðprerequisite€to€HUD's€award€of€housing€grants.€€It€does€not€pertainÐ `  Ðto€the€BIA's€trust€acquisition€authority."€€òòCarcierióó,€290€F.€Supp.Ð ¼  Ð2d€at€179.€€The€BIA€is€obligated€to€consider€the€appropriateÐ h¸ Ðfactors€enumerated€in€25€C.F.R.€ðð€151,€which€includes€a€requirementÐ d Ðthat€the€Secretary€consider€the€"need€of€the€individual€Indian€orÐ À Ðthe€tribe€for€the€additional€land,"€and€"[t]he€purposes€for€whichÐ l¼ Ðthe€land€will€be€used."€€25€C.F.R.€ðð€151.10(b)„(c).€€It€is€clearÐ h Ðfrom€the€record€that€the€BIA€has€properly€considered€the€Tribe'sÐ Ä Ðneed€for€additional€housing€as€well€as€the€fact€that€the€funding€toÐ pÀ  Ðpurchase€the€Parcel€was€provided€to€the€Tribe's€Housing€AuthorityÐ !l" Ðwith€the€understanding€that€the€lands€would€be€used€for€housing.€Ð È"$ ÐHowever,€nothing€in€the€ðð€151.10€factors€requires€the€BIA€to€ensureÐ t$Ä& Ðthat€a€local€cooperation€agreement€is€in€place€for€an€IndianÐ  &p!( ÐHousing€project.Ð  Ì'#* Ðà ` àò ò4.€€Environmental€Considerationsó óÐ ° Ðà ` àThe€National€Environmental€Policy€Act€("NEPA")€and€itsÐ xÈ Ðsupporting€regulations€promulgated€by€the€Council€on€EnvironmentalÐ $t ÐQuality€("CEQ")€direct€federal€agencies€to€consider€theÐ Ð  Ðenvironmental€impacts€of€agency€decisions.€€42€U.S.C.€ðððð€4321„Ð | Ì Ð4370(e);€40€C.F.R.€ðð€1500„1518€(2004).€€The€State€claims€that€theÐ ( x  ÐSecretary€and€BIA€failed€to€consider€environmental€impacts€inÐ Ô$  Ðreaching€the€decision€to€accept€the€Parcel€into€trust€because€noÐ €Ð  ÐEnvironmental€Impact€Statement€("EIS")€was€prepared.€€The€StateÐ ,|  Ðalso€argues€that€the€BIA€failed€to€conduct€its€own€evaluation€ofÐ Ø( Ðthe€environmental€impacts€and€instead€improperly€relied€on€anÐ „Ô Ðenvironmental€assessment€("EA")€submitted€by€the€NarragansettÐ 0€ ÐTribe.€€We€disagree.Ð Ü, Ðà ` àFederal€agencies€are€required€to€prepare€an€EIS€for€anyÐ ˆØ Ðaction€that€could€significantly€affect€the€quality€of€the€humanÐ 4„ Ðenvironment.€€42€U.S.C.€ðð€4332(2)(c);€40€C.F.R.€ðð€1508.27.€€NEPAÐ à0 Ðprovides€that€"to€the€fullest€extent€possible€.€.€.€(2)€allÐ ŒÜ  Ðagencies€of€the€Federal€Government€shall€.€.€.€(c)€include€in€everyÐ 8!ˆ" Ðrecommendation€or€report€on€proposals€for€.€.€.€major€FederalÐ ä"4$ Ðactions€significantly€affecting€the€quality€of€the€humanÐ $à& Ðenvironment,€a€detailed€statement€by€the€responsible€official€onÐ <&Œ!( Ð...€(i)€the€environmental€impact€of€the€proposed€action."€42Ð è'8#* ÐU.S.C.€ðð€4332(2)(c).€€However,€in€the€absence€of€a€finding€that€theÐ ”)ä$, Ðproposed€action€would€significantly€affect€the€quality€of€the€humanÐ @+&. Ðenvironment,€the€BIA€was€not€required€to€prepare€an€EIS.€€òòSeeóó,Ð ° Ðòòe.g.óó,€òòLondonderry€Neighborhood€Coalitionóó€v.€òòFed.€Energy€RegulatoryÐ \¬ ÐComm'nóó,€273€F.3d€416,€419€(1st€Cir.€2001)€(quoting€òòWyoming€OutdoorÐ X ÐCouncilóó€v.€òòU.S.€Forest€Serv.óó,€165€F.3d€43,€49€(D.C.€Cir.€1999)).Ð ´  Ðà ` àThe€CEQ€has€issued€guidance€for€whether€to€prepare€anÐ ` ° ÐEIS,€which€provides€that€"if€the€agency€determines€on€the€basis€ofÐ  \  Ðthe€environmental€assessment€not€to€prepare€a€statement,"€then€theÐ ¸  Ðagency€should€"[p]repare€a€finding€of€no€significant€impact"Ð d´  Ðpursuant€to€ðð€1508.13.€€40€C.F.R.€ðð€1501.4(e).€€The€applicant€mayÐ `  Ðprepare€the€EA€provided€that€the€agency€"make[s]€its€own€evaluationÐ ¼  Ðof€the€environmental€issues€and€take[s]€responsibility€for€theÐ h¸ Ðscope€and€content€of€the€environmental€assessment."€€40€C.F.R.Ð d Ððð1506.5(b).€€In€this€case,€the€BIA€followed€its€standard€operatingÐ À Ðprocedure€for€externally€initiated€proposals€by€obtaining€an€EAÐ l¼ Ðfrom€the€Tribe€and€considering€it€along€with€supplementalÐ h Ðinformation€the€BIA€requested€from€the€Tribe€and€informationÐ Ä Ðgathered€independently€by€the€BIA.€€òòSeeóó€òòExternally€InitiatedÐ pÀ  ÐProposalsóó,€NEPA€Handbook€4.2€B€("When€the€proposed€Bureau€action€isÐ !l" Ða€response€to€an€externally€initiated€proposal€.€.€.€the€applicantÐ È"$ Ðwill€normally€be€required€to€prepare€the€EA,€if€one€is€required,Ð t$Ä& Ðand€to€provide€supporting€information€and€analyses€asÐ  &p!( Ðappropriate.)"€€After€reviewing€the€EA€and€the€requisiteÐ Ì'#* Ðsupplemental€information,€the€BIA€completed€its€environmentalÐ x)È$, Ðanalysis€and€issued€a€Finding€of€No€Significant€Impact€("FONSI").€Ð $+t&. ÐThe€BIA's€issuance€of€a€FONSI€thus€satisfied€its€responsibilitiesÐ ° Ðunder€NEPA.€€òòSeeóó€40€C.F.R.€ðð€1501.4(e).Ð \¬ Ðà ` àSeparately,€the€State€contends€that€the€BIA€should€haveÐ X Ðobtained€a€federal€consistency€review€in€accordance€with€the€CostalÐ ´  ÐZone€Management€Act€("CZMA")€before€making€its€trust€determination.€Ð ` ° Ð16€U.S.C.€ðð€1451„1465.€€The€CZMA€requires€state€consultation€onÐ  \  Ðfederally€permitted€coastal€development€activities.€€Specifically,Ð ¸  Ððð€1456€of€the€CZMA€states€that:Ð d´  Ðà8 ` àÓÓ(1)(A)€Each€Federal€agency€activity€within€orÐ `  Ðoutside€the€coastal€zone€that€affects€any€landÐ æ6 Ðor€water€use€or€natural€resource€of€theÐ ¼  Ðcoastal€zone€shall€be€carried€out€in€a€mannerÐ ’â Ðwhich€is€consistent€to€the€maximum€extentÐ h¸ Ðpracticable€with€the€enforceable€policies€ofÐ >Ž Ðapproved€State€management€programs.€A€FederalÐ d Ðagency€activity€shall€be€subject€to€thisÐ ê: Ðparagraph€unless€it€is€subject€to€paragraphÐ À Ð(2)€or€(3).Жæ` x` x Ðà ` à.€.€.€Ð l¼ Ðà8 ` à(C)€Each€Federal€agency€carrying€out€anÐ B’ Ðactivity€subject€to€paragraphÐh` x` x Ðà8 ` à(1)€shall€provide€a€consistency€determinationÐ î> Ðto€the€relevant€State€agency€.€.€.€ÐÄ` x` x Ðà8 ` à(2)€Any€Federal€agency€which€shall€undertakeÐ šê Ðany€development€project€in€the€coastal€zone€ofÐ pÀ  Ða€state€shall€insure€that€the€project€is,€toÐ F –! Ðthe€maximum€extent€practicable,€consistentÐ !l" Ðwith€the€enforceable€policies€of€approvedÐ ò!B# ÐState€management€programs.ÐÈ"$` x` x ÐÌÓÓ16€U.S.C.€ðð€1456.€€The€State€asserts€that€the€BIA's€failure€to€takeÐ t$Ä& Ðdirect€action€to€ensure€the€housing€project€was€consistent€with€theÐ  &p!( ÐRhode€Island€Coastal€Zone€Management€Program€("RICZMP")€beforeÐ Ì'#* Ðmaking€its€trust€determination€was€a€violation€of€the€CZMA.€€WeÐ x)È$, Ðdisagree.Ð $+t&. Ðà ` àThe€State€has€failed€to€demonstrate€that€a€consistencyÐ ° Ðreview€of€the€Tribe's€housing€development€was€necessary€at€theÐ \¬ Ðtrust€acquisition€stage.€€The€development€of€the€Parcel€is€aÐ X Ðproject€that€was€commenced€by€the€Tribe,€in€conjunction€with€HUD,Ð ´  Ðprior€to€the€Tribe's€application€for€trust€acquisition.€€The€CRMCÐ ` ° Ðcorrectly€recognized€that€the€development€of€the€Parcel€was€aÐ  \  Ðseparate€matter€which€required€its€own€federal€consistencyÐ ¸  Ðdetermination,€and€properly€found€that€the€Tribe's€application€forÐ d´  Ðtrust€status€was€consistent€with€the€RICZMP.€€òòId.óó;€App.€Tab€5€atÐ `  ÐEx.€11.Ð ¼  Ðà ` àò ò5.€€The€IGRAó óÐ h¸ Ðà ` àFinally,€the€State€contends€that€the€true€purpose€of€theÐ 0€ ÐTribe's€application€for€trust€acquisition€is€the€development€ofÐ Ü, Ðgambling€facilities€on€the€Parcel€ð!ð„€rather€than€development€ofÐ ˆØ Ðtribal€housing€as€the€BIA€found€in€its€evaluation€pursuant€to€25Ð 4„ ÐC.F.R.€ðð€151.10(c)€„„€and€that€the€BIA's€failure€to€consider€theÐ à0 ÐIndian€Gaming€Regulatory€Act€("IGRA"),€25€U.S.C.€ðððð€2710„2721,€inÐ ŒÜ  Ðits€decision€was€an€abuse€of€discretion.€€The€State€argues€that€theÐ 8!ˆ" ÐSecretary's€decision€to€acquire€the€Parcel€in€trust€should€beÐ ä"4$ Ðreversed€and€that€further€inquiry€into€whether€the€Parcel€would€beÐ $à& Ðused€for€gaming€purposes€is€required.€€We€disagree.Ð <&Œ!( Ðà ` àThere€is€no€evidence€that€the€Tribe€intended€to€use€theÐ è'8#* ÐParcel€for€anything€other€than€tribal€housing,€as€determined€by€theÐ ”)ä$, ÐBIA.€€"In€fact,€after€the€plaintiffs€expressed€concern€over€theÐ @+&. Ðpotential€for€development€of€a€gaming€facility€on€the€parcel,€theÐ ° Ðtribe€reaffirmed€that€it€intended€to€use€the€parcel€for€a€housingÐ \¬ Ðdevelopment€and€stated€that€it€had€'no€immediate€plans€for€anyÐ X Ðfurther€future€development.'€€Admin.€Rec.,€Vol.€II,€Tab€N."€Ð ´  ÐòòCarcierióó,€290€F.€Supp.€2d€at€178.Ð ` ° Ðà ` àAs€support€for€its€position,€the€State€points€to€an€IBIAÐ  \  Ðdecision€that€reversed€a€trust€acquisition€decision€due€to€theÐ ¸  ÐBIA's€failure€to€consider€the€impact€of€a€potential€casino,€evenÐ d´  Ðthough€the€applicants€denied€any€intention€of€using€the€propertyÐ `  Ðfor€a€casino.€€òòVillage€of€Ruidoso,€New€Mexicoóó€v.€òòAlbuquerque€AreaÐ ¼  ÐDir.€Bureau€of€Indian€Affairsóó,€32€IBIA€130€(1998).€€However,€inòòÐ h¸ ÐVillage€of€Ruidosoóó,€although€the€Tribe€denied€that€the€applicationÐ d Ðfor€trust€acquisition€was€for€gaming€purposes,€the€IBIA€determinedÐ À Ðthat€it€was€clear€from€the€planned€gaming„related€uses€of€theÐ l¼ Ðproperty,€and€the€fact€that€the€property€was€given€to€the€Tribe€byÐ h Ða€company€that€the€BIA€"apparently€understood€to€have€some€gamingÐ Ä Ðconnection€with€the€Tribe,"€that€the€application€was€for€gamingÐ pÀ  Ðpurposes€and€that€the€BIA's€determination€should€have€been€madeÐ !l" Ðunder€the€guidelines€applicable€to€gaming.€€32€IBIA€at€136,€138.Ð È"$ Ðà ` àWe€agree€with€the€district€court€that€"[a]lthough€theÐ t$Ä& Ðpossibility€that€the€parcel€might€be€used€for€gaming€activities€wasÐ  &p!( Ðraised€before€the€BIA,€the€bureau's€determination€that€the€parcelÐ Ì'#* Ðwould€be€used€to€provide€housing€was€amply€supported€by€the€record.€Ð x)È$, ÐIn€view€of€the€deferential€standard€of€review€afforded€to€agencyÐ $+t&. Ðdecisions€under€the€APA,€the€bureau's€determination€in€this€regardÐ ° Ðmust€be€sustained."€€òòCarcierióó,€290€F.€Supp.€2d€at€178.Ð \¬ Ðà@,,"ìàò òIII.€€Conclusionó óˆÐ X Ðà ` àFor€the€reasons€stated€above,€we€affirm€the€districtÐ Ð  Ðcourt's€grant€of€summary€judgment€to€the€Secretary€with€respect€toÐ | Ì Ðthe€trust€acquisition€of€the€Parcel€for€the€benefit€of€theÐ ( x  ÐNarragansett€Indian€Tribe.€€However,€this€judgment€should€not€beÐ Ô$  Ðread€to€make€any€determination€regarding€the€applicability€of€theÐ €Ð  ÐState's€civil€and€criminal€laws€and€jurisdiction€on€the€new€trustÐ ,|  Ðland.Ð Ø( Ðà ` àòòò òAffirmedóó.ó óÐ „Ô Ð