The Squaxin Island Tribe will begin construction of the Sally Selvedge Memorial Health Center in April of 1995. The 8,000 square foot facility will house the programs of Primary Care, Dental, Mental Health, CHS, and Community Health. It will serve a population of 1,500 Community members. The current health programs are scattered over four locations with the Clinic comprising less than 800 square feet. The space situation was so bad that patients had to exit the side door of the Clinic and use the Natural Resources department’s restroom for urine analysis. The new facility will be used to consolidate health programs into one facility and to greatly expand new services not available due to lack of space.

The Squaxin Island Tribe decided to use Self-Governance to fund the construction. They secured a $500,000 long-term, low-interest loan from the FHA. The Tribe also contributed close to $300,000 of their own. They used carry-over and Self-Governance Tribal shares for the Tribal portion of the construction and have dedicated $35,000 a year to pay off the FHA loan debt. In other words, they leveraged $35,000 into $500,000. In the past, IHS would wait until they had full funding before construction could take place. Because of Self-Governance we are able to leverage our funds and begin construction now instead of several years down the road.

Self-Governance and the ability to the use and leverage funds as we see fit, has allowed the Squaxin Island Tribe to construct a Health Center which will serve as the focal point for the promotion of the mental and physical well-being of Community members.

In April, the William P. Mankiller Health Center, a 37,374 square foot state-of-the-art outpatient clinic in Adair County, Oklahoma, became the most recent addition to the Cherokee Rural Health Network facilities, and was dedicated in honor of Chief Mankiller’s leadership. Respect for traditional cultural wisdom, strong leadership and the empowerment of management teams has been the hallmark of success for the Mankiller administration, and has been the framework of construction for the tribe’s healthcare delivery system.

The Cherokee Rural Health Network provides services to Indian people who are members of any federally recognized tribe residing in the 14-county jurisdictional service area in Oklahoma which comprises the Cherokee Nation. Additionally, because non-Indians living in Jay and Salina, Oklahoma, had no other source of primary health care available in their communities, the Cherokee Nation Tribal Council has approved services from those two clinic sites for non-Indians on a fee-for-service basis.

The Network has been built through a cooperative relationship between the Cherokee Nation and the United States with the Indian Health Service as a vehicle for its evolution. Presently, it is the resources allocated to both the Tribe and the IHS which combine to fund the "benefit package" of the Cherokee Rural Health Network, with an increasing emphasis on the billing of third-party resources to augment the healthcare monies.

The trust obligation of the United States to provide for Indian healthcare has been the only constant throughout the development of the CRHN.

While tribal leaders have always been concerned with the services available to our people, it has been through the implementation of self-governance that we have been afforded a real voice in determining and developing those services.

Many challenges have been a part of integrating resource management with the IHS, but because of the advanced development of our infrastructure and administrative base at the time the IHS adopted self-governance as a demonstration project, Cherokee Nation has been a leader in maximizing the opportunities of self-governance in health care delivery. Also, we had already begun administering a wide variety of Department of Interior programs under self-governance.

Cherokees are experienced at negotiation and integration. We are posessed of a diverse culture which is the legacy of a tribal heritage rooted in the value of individuals in community. We have paid dearly for our progress, and we have learned that it is the relationship between people which facilitates the relationship between institutions and that successful relationships are based upon respect for the contributions of all concerned parties.

We’re the most isolated reservation in the lower United States, said Edith Manning, Self-Governance Coordinator for the Shoshone/Paiute Tribe. "But with Self-Governance, we are finding that it is possible to continue some things, such as health programs, which would have otherwise shut down. Enforcement, tribal courts, water protection, and so on. Self-Governance is now a big part of many of our important operations...and when the Tribal Council sits down, as a government body, to really consider the proposals of program managers...it is exciting to see."

The Duckwater Tribe, located in east central Nevada, consists of about 300 members on a reservation of about 4,000 acres. "Self-Governance is a positive step forward," said Millet. "We make our own decisions, and our available annual budget has been increased by about $80,000...due to Self-Governance. We just negotiated our second year, and it looks like our available income increase so far will amount to $150,000. It’s benefiting our law enforcement program, our judicial services, road maintenance, social services and housing improvements. We’re also working to bring our education programs under Self-Governance. "Self-Governance is a positive step forward.

Coeur d' Alene

Before 1990 Members of the Coeur d'Alene Tribe in Northern Idaho had two options for medical care: drive 20 miles east down a winding road to St. Maries, or drive 34 north on U.S. Highway 95 to Coeur d'Alene. Limited on-site facilities could not do lab work, and specialists did not visit the reservation.

In addition, Tribal members had to through the Indian Health Service's office in Lapwai to get approval for medical treatment. This meant long-distance calls and sometimes as long as two years before paperwork was processed. As a result, individuals ran up large unpaid medical bills which were often sent to collection agencies.

"We decided it was time to address the health needs of the reservation ourselves," says Tribal Chairman Ernie Stensgar. This sentiment lead Stensgar and other Tribal Leaders to build Benewah Medical Center--touted as one of the most successful rural health clinics in the country.

Completed in June 1990, the clinic serves the Coeur d'Alene Tribe's 1,300 members, 700 of whom live on the reservation. The clinic is also open to the general public. "Non-Indians had the same health care problems as us, so we worked together," says Stensgar. "Community involvement was critical."

Funding to build the clinic came from a variety of sources including the Bureau of Indian Affairs, the Department of Housing and Urban Development and a grant obtained by the City of Plummer. Construction was made possible by bringing together these disparate funding sources.

Multiple Sources also account for the clinic’s operating funds. IHS funding comprises 85% of the clinic’s budget, with other monies coming from insurance payments, reimbursements from Medicaid and Medicare and private dollars.

Tribal Leaders decided early on that the clinic would handle making IHS payments to specialists and hospitals, so patients would not have to deal with the tiresome and protracted process. Today a clerk handles paperwork, and clinic patients see their medical bills paid promptly.

It is an approach that works for the Coeur d’Alene Tribe and the surrounding non-Indian community. Many Indian families travel hundreds of miles to avoid the bureaucracy of the IHS, with the clinic gaining an average of 50 to 100 new patients each month overall.

In February of 1994, a $1.4 million expansion of the health and dental clinic was completed. Capacity had been stretched, and the Tribe did not want to limit their ability to serve non-Indians. Cindy LaDeaux, Clinic Administrator says that with the expansion the clinic now provides "one stop shopping for medical care needs." The Tribe hopes the expansion will meet the needs of the community well into the future.

Although not originally a Self-Governance Project, the Tribe negotiated a contract for the clinic this June, with the compact starting October 1. Stensgar says, "We are going the Self-Governance route because we were doing it anyway. We have a state of the art facility. We don’t want to jump through all the bureaucratic hoops." The Tribe is also in the process of compacting its social services, roads and police.

Meanwhile the medical center has become a national model for rural health care. The IHS frequently holds the clinic up as a model for Tribes across the country--this year giving it three awards.

"Twenty-three years ago in LOOK magazine, June 1970, Cocopah was listed as one of the ten poorest Tribes in the U.S. Now it is a Tribe providing for their people and just a step away from Self-Governance," said Bob Kennerly, Self-Governance Coordinator/Planner for the Cocopah Tribe.

Kennerly said their experience of planning for Self-Governance has been good. "The Self-Governance Tribes have been very helpful to the new Self-Governance Tribes. They are carrying the banner." The Cocopah Tribe sat in on the negotiations with their Area office observing Duck Valley; Duck Water and Ely Shoshone. "It was helpful to us in knowing what to do when our time comes for negotiations." Kennerly added this is an example of Inter-Tribal cooperation.

Kennerly said they will be planning negotiations, submitting a proposal for their Compact --- the Annual Funding Agreement.

"What is key in Self-Governance is the Tribal Council will have the authority to budget and spend funds without restrictions; then, you have to be accountable for those funds. This is a new responsibility and part of the independence of being a government" said Kennerly.

"This is a great opportunity for the Tribes to be finally recognized as a government and be able to function as a true government," he said.

"Self-Governance will be another step for Tribes in deciding their own destiny," concluded Kennerly.

The Cocopah Tribe is located in Somerton, Arizona, consisting of 750 Tribal members, including three reservations.

The Cocopah Indian Reservation was established through Executive Order No. 2711 by President Woodrow Wilson on September 27, 1917. This Executive Order established the West and East Reservation with approximately 1,772 acres.

On April 18, 1985, President Reagan signed the Cocopah Land Acquisition law which increased the Cocopah Reservation by nearly 41,237 acres, including the establishment of a third separate reservation of 600 acres.

The community is governed by a Cocopah Tribal Chairman; Vice-Chairman; and three Council members.

The Tribal economy traditionally relies on agriculture including mainstay grain and vegetable crops. Since agriculture is very important to the Cocopah economy, with about l,600 acres of irrigated land on the reservation. Approximately 900 acres of land are farmed through land leases to non-Indians.

With the acquisition of 4,000 acres of land in 1985, the Tribe started several new businesses and developments. In 1987, a convenience store, gas station, smoke shop and the Cocopah Bingo Hall were opened in joint ventures with private developers. Job opportunities were created for Tribal members, along with a goal in mind...self-sufficiency for the Cocopah Tribe.

The Tribe operates a bingo hall and casino directly under a gaming compact with the State of Arizona. The 40,000 square foot facility offers slot machines and a 500 seated capacity bingo hall.

The Cocopah Bend Recreational Vehicle Resort is four miles from downtown Yuma, Arizona. The resort has full hook-ups, on-site management, and a full-time activity director. Amenities include an 18-hole golf course, olympic-size swimming pool, tennis courts, community building and dance hall. Initially under contracted management, this will soon be a Tribal operated facility.

If there is an example of the strength of Self-Governance and of the ability of the system to continue to work in the face of overwhelming problems, that example is the Absentee-Shawnee. During the period of the initial years under Self-Governance. The Tribal Leadership of the Absentee-Shawnee changed and the Tribe was faced with conflict, including armed partisans. The conflict was internally resolved and the Self-Governance provisions and programs continued to operate effectively and efficiently through the transition from one government to the next.

The Absentee-Shawnee Tribe has made significant advances under Self-Governance in budgeting, planning and services. These have included expansion to the education department and the police department. Tribal accounting has been streamlined, and there is significant more Tribal involvement by members in setting priorities.

"The Tribe attributes the increased involvement reflected by greater attendance at their General Council Meetings to the chance for participation in priority setting allowed under Self-Governance and the Tribe believes that the Self-Governance Demonstration Project has significantly improved the lives of individual Shawnees and greatly increase the effectiveness of the dollars expended.

The Self-Governance Demonstration Project can offer an excellent opportunity to experiment with better ways to deliver improved and expanded health care to Indian people. At the Hoopa Tribe, we have already undertaken two years of planning and design and are ready to implement these solutions. Providing flexibility within the Indian Health Care Improvement Act amendments with an authorization for Tribes to implement the Self-Governance Demonstration Project with the Indian Health Service will create the model.

Project Overview

Rural health care programs today, like the Hoopa, face problems of recruitment a retention of quality medical staff, poor facilities, inadequate equipment and financial limited resources. Health care delivery systems throughout the nation are undergoing dramatic changes with improvements in technology, communications, and networking with other existing health systems.

Hoopa Hospital Project is designed to place our outdated and obsolete systems new and innovative methods for providing health care services, including preventative medicine. Two years of research and analysis have resulted in the development of "Alternative Rural Hospital Model" (ARH which provides health care to the people and adjacent to the Hoopa Reservation. The model is designed to coordinate health care activities with all the area's health organizations and agencies through a cooperative networking system.

The Hoopa Valley Indian Reservation was established by Executive Order in 1964 as a result of negotiations for a Peace and Friendship Treaty Between the Hoopa's and their allies and the United States. Upon creation of the Reservation, the Federal Government placed a physician for Hoopa at the Indian medical dispensary which later became a hospital at Fort Gaston, the Reservation's military out post. In 1916, a permanent 15 bed hospital was built, and in 1937, it was enlarged to 29 beds.

In 1955, the Bureau of Indian Affairs transferred control of the Hoopa hospital to the U.S. Public Health Service, Indian Division. During this same period the Federal government began implementing the national termination policy. Part of the termination plan was to eliminate all Indian hospitals, including the Hoopa hospital. In response to the threatened total elimination of the Reservation's health services, a group of local residents in 1953 formed the Community Health Association (CHA). After several failed attempts to transfer the Indian hospital to the CHA, the Public Health Service began preparing to close the Hoopa Indian Hospital.

In 1958, negotiations were initiated to build a new Hoopa hospital to be operated by the CHA, and in 1950, the present Hoopa hospital was constructed. In 1972, with CHA facing sentencing continuing revenue losses the local County government assumed operations of the hospital. In 1978, because of a California State-wide initiative to reduce government spending, the County began to reduce its financial assistance to the health facilities. In attempts to relieve themselves of the expense of the Hoopa hospital, the County began a series of transfers of the Hoopa hospital operations to various private health care providers.

Five different providers operated the Hoopa hospital since its construction in 1960. In early 1987, West World Inc., the manager at that time, filed for bankruptcy. After West World failed, the Mad River Community Hospital in Arcata, California, assumed control of the facility, restructured the operation and closed the impatient services to maintain the hospital’s profitability. Leaving, only an emergency room and the medical lab. In August, 1987, Mad River announced plans to close the emergency room and lab.

The Hoopa Tribe persuaded Mad River to continue providing emergency, lab a X-ray services to the local area by committing to subsidize the emergency room operation expenses. In April, 1988, after the Federal Court decision in the Puzz case, the BIA assumed control of the Tribe's entire Tribal Budget and stopped any expenditure including the hospital subsidy. Despite repeated Tribal requests for funds to maintain the emergency room, lab and X-ray, the Bureau denied the Tribe's use of its own monies. Immediately following the loss the Tribal subsidy, Mad River closed the emergency room, lab and X-ray operations.

After the Mad River closure of medical services, the Hoopa Tribe and IHS were confronted with a crisis situation. The Sacramento Area Indian Health service temporarily continued to fund the X-ray and lab services for the Reservation community; however, no funds were provided for the emergency room. Without the emergency service on the reservation, all emergency patients must be transported to Arcata, some 65 miles and 1 1/2 hours away over mountain ranges. The hospital's closure preceded by the abandonment of the area’s only ambulance service. The Tribe has assumed responsibility for the ambulance service and now operates California’s only Indian EMS program.

The Hoopa Tribal outpatient program was developed in 1973 to supplement, not duplicate, the services of the former hospital. Thus, the loss of emergency room and inpatient services was a devastating blow to our community. Since the Tribe is the largest health care provider in our rural area, we have been working diligently to restore as many of these lost services as possible. Through a series of negotiations, the Tribe has now obtained title to the former hospital building. However, these facilities require renovations and repairs to conform to present day standards prior to its utilization as an out patient clinic.

Unfortunately, the IHS has advised the Tribe that the Indian population within our service area of 3,100 scored very low on the assessment methodology developed by the Indian Health Service and Congress for determining priority allocations of IHS construction and renovation funds. Ironically, Federal laws prohibit us from using the building regardless of who pays for the renovation unless we meet the impossible standards set by the IHS. Our problems are not with the IHS standards themselves, but rather that they were never intended to be applied to situations like Hoopa. Therefore, we are being unnecessarily stymied from addressing our health care delivery problems due the inappropriate application of standards creating impossible compliance obstacles.

Thus, while the hospital building sits idle and vacant, our outpatient clinic is serious overcrowded due to the expanded service population following the closure of the hospital. As a result of this situation, an over crowded unplanned, and piecemeal health care system has evolved that is in jeopardy of total collapse. Because the Hoopa Tribe health service area is too small to rank high on the IHS needs assessment methodology the Reservation and surrounding communities have been in effect without any solution options.

The need for exploring viable system alternatives for small, rural Indian health systems is well documented. The California Areas IHS Program Director, T.J. Merwood, in his December 5, 1988, Health Facility Priority System Report to the IHS Central Office stated, "We would like to explore the possibility of designing the criteria for small facilities which would make them better compete in the existing priority system. Perhaps with your assistance, we could design a "model" which would be applicable to the smaller health centers."

Although the need for exploring and experimenting with alternative and locally responsive systems is understood, there is no consensus on the practical applications. Presently, Federal officials influential in the delivery of health care in Indian Country, i.e. contracting officers, have no guidelines for such experimentation. Without the opportunity to actually demonstrate the benefits resulting from experimental models, the Federal government and Indian Tribes simply have no alternative but to accept existing inadequate health care systems. Although the Hoopa Tribe has been supported by Federal policy officials, the IHS administrative technicians have not been as supportive. This IHS Administrative reluctance is caused, in large measure, by the fact that new experimental models necessarily mean creating an environment that stimulates change and flexibility within the established restrictive Federal rules and regulations governing health care systems.

Following the closure of the hospital, in efforts jointly funded by the Tribe and the IHS, the Tribe initiated a multi-phase study to determine the most feasible solution to addressing the local health care needs. In Phase I, the Tribe conducted an assessment for determining the best method for re-establishing basic health care services to the I community. Following a detailed research and analysis of available local services financial resources, the study team determined that the Alternative Rural Hospital Model (ARHM) which has been utilized in the other parts of California, was the most practical approach for the Hoopa Reservation. In a more detailed planning and implementation study during 1991, the study team developed a report that determined the actual components and the necessary implementation plan for a self-sufficient and self-sustaining operation within the existing funds available.

Our studies have proven that, through the design and implementation of the Alternative Rural Hospital Model, we can almost immediately improve and expand the present health care delivery system, including the provision of on-Reservation emergency services and temporary holding beds, in a self-sufficient manner. Presently, the Tribe cannot compete within the present-day arena for health care professionals because of the inadequacies within our health care system through the networking system included in the ARHM, we will create a cost-effective and efficient alternative method for selecting and supporting health care professionals instead of being solely dependent on the IHS system.

After over two years of study, planning a design at Hoopa, the existing Federal regulations have become the obstacles that prevent successful implementation of "new" way delivering improved and expanded health care to Indian people. This is precisely why the Hoopa Tribe is seeking to include the IHS into the Self-Governance Demonstration Project (SGDP). Under the SGDP with resources transferred from the BIA, we have taken age-old problems on our Reservation and found new and innovative methods solving them. We expect the same result can happen once Tribes are allowed to experiment in the service areas involving the IHS.

Many existing health care systems serving Indian people through the Country are inadequate. Among the reasons these inadequate systems perpetuate are the inflexibility of the available delivery system and simply the lack of tested and proven experimental models. The existing self-perpetuating system and its inherent limitations, whether political, personal or regulatory, have not provided any solutions to these problems.

If self-sufficient alternatives are to be developed, Tribes must be given the opportunity to develop experimental models and the discretionary freedom to apply flexibility in how health care is being delivered in Indian Country. We believe Self-Governance will provide the Hoopa Tribe the opportunity.

Kawerak Incorporated, an Alaska Native regional non-profit corporation located in Nome, becoming part of the Self-Governance Demonstration Project in November, 1990 was a natural step. Even before compacting, the 638 contractors in the Nome Agency had contracted every possible program from the Bureau, leaving only four staff in the agency offices. "Our interaction with agency and area staff was pretty minimal before compacting, especially with the area office, since they are located 800-900 miles away," says President Loretta Bullard.

Kawerak differs from most other Self-Governance participants in that they are a Tribal consortium, authorized by Tribal resolution to compact and provide services to the membership of 19 of the Bering Straits region’s 20 Indian Reorganization Act or Traditional Tribal Councils. "Our Tribes created a consortium in 1973 to contract and provide BIA and other Federal and state services. Tribal memberships range from 125 to 1,600 members per community (for a regional Tribal membership of about 6,500) and it’s not cost effective for smaller Tribes to administer some programs at the village level. By working together, we were able to minimize administrative expenses and maximize services," states Bullard.

The Bering Straits region is unique in that the Region’s Native American population consists of three diverse Eskimo Groups. Siberian Yupiks live on St. Lawrence Island and are closely related to Yupiks in Russia; mainland Yupiks reside in the southern villages and speak the same language as Yupicks in Southwestern Alaska; Inupiats reside in the region’s northern villages and share the language and culture of the northern Inuit who live in northwest Alaska, Northern Canada and Greenland.

Kawerak's service area encompasses the entire Bering Straits region, an area of about 26,000 square miles.

Service delivery can be difficult in the region due to the distance involved, the need to travel by air, the cost of providing services, and unpredictable weather. All villages are accessible by road during the summer months. "Region residents hop small airplanes like people in the lower 48 take taxis, and we face barriers not experienced in the lower 48," notes Bullard. "A good example is Little Diomede. The island is so steep they cannot build an airport there and the only means of access during the ice-free months is by boat or once a week helicopter service." Until recently, Diomede had just one phone for the entire community of 140 people and communications were difficult at best.

Kawerak provides diverse services, ranging from Headstart and Adult Basic Education to Village Police Officers, Social Services, Indian Child Welfare, JTPA, Childcare, TERO, and Village Planning Assistance services. They operate the only Native American Adoption agency in the State of Alaska. Their compact encompasses the full range of BIA funded programs, from Higher Education, Adult Vocational Training, General Assistance, Tribal Operations, Rights Protection, Realty, Housing and other services. Kawerak uses their BIA Agriculture funding to support the reindeer industry in rural Alaska. There are approximately 25,000 head of reindeer in Northwest Alaska, all privately owned by Alaska Natives. Reindeer are considered a trust resource by the Federal Government.

Kawerak’s governing board consists of the President or Chief of each of the region’s twenty Indian Reorganization Act or Traditional Tribal Councils, plus two elder representatives and the Chairman from Norton South Health Corporation. Norton Sound Health Corporation is Kawerak’s sister Native non-profit organization in that they are authorized by Tribal resolution to provide health services to Tribal members. Norton Sound owns and operates the regional hospital and provides health services to Natives and non-natives throughout the region. Norton Sound recently received an IHS Planning Grant to explore compacting Indian Health Services funding.

Kawerak became a Tribal Self-Governance participant in November of 1990. "When we saw the notice in the Federal Register, we immediately applied," notes Bullard. "Basically we packaged our frustration with the BIA 638 Contracting system and submitted it in the form of a written application."

After one year of planning, Kawerak rolled over their 638 contracts into a compact to take advantage of the reduced reporting requirements, the increased decision making authority at the local level, the ability to move funds between programs to address Tribal priorities, and the ability to create new programs to meet Tribal needs.

"During year one of compacting, the programs continued pretty much status quo, though the board did take advantage of their reprogramming authority to create a Tribal Employment Rights Office," says Bullard. Like many other areas of rural Alaska, the region's unemployment rate ranges from 50-75% unemployment during the winter time.

During 1993, year two of the compact, the Kawerak Board exercised it's decision making authority to create a Tribal Coordinator Program. Through this program, the board funded positions in each of the regions IRA and Traditional Council Offices and purchased computers and modems for all council offices. Kawerak is now providing training to the IRA Council staff in areas identified as priority by the various Councils. IRA or Traditional Councils with CPA certified accounting systems have the option of applying for and administering their share of Tribal Coordinator funding directly at the village level.

Over the past several years, Kawerak has administered a Village Planning Assistance Program to train Tribal members to work as grant writers for their Tribes. It's been very successful and additional funding is being made available at the village level to address local needs.

Because of the success of this program, Kawerak has made it a priority under the compact to work with the councils to set in place solid financial and administrative systems at the village level so the Tribal Councils can successfully administer grants at the village level. Kawerak has contracted with a CPA firm to develop a simple computerized accounting system for implementation in the villages which will enable them to meet all Federal and state accounting standards, and plans to provide computerized accounting training later on this fall. In the future, Kawerak plans to use the computers to provide grant writing assistance and set up a regional computerized Tribal enrollment system via modem.

Kawerak has also used the compact to access roads maintenance funds. These funds are being provided to the Tribes in the region with BIA roads. Kawerak was also able to access funding to contract with their Regional Native Profit Corporation to conduct historical and cemetery site assessments in the region. The sites need to be identified so they can be protected.

Kawerak's compact is unique in that it has a subcontracting arrangement with Gambell IRA. Prior to entering into the compact, Gambell was an independent 638 contractor. Gambell's IRA Council decided to participate in the compact to take advantage of the benefits under compacting. Kawerak created a Memorandum of Agreement between Kawerak and Gambell similar to a compact document, established an Annual Funding Agreement, and passes Gambell's share of funding directly through to Gambell. It's a simple arrangement and is working well. None of these activities would have been possible under the old 638 system.

The compact is not without problems though, according to Dan Duame. Self-Governance Coordinator for Kawerak. He notes it's been a real challenge to get the funds transferred to Kawerak and that the tracking of dollars through the system has been extremely time consuming. "We look forward to the time when these problems are alleviated," said Duame.

In the future, Kawerak is very interested in compacting other Federal programs and looks forward to the passage of permanent Tribal Self-Governance legislation. Kawerak has begun exploring other programs within the Department of the Interior which they would like to compact within the next year or two.

"It's more difficult to work with 19 Tribal councils as opposed to working with one," notes Bullard. "Thank goodness sharing, working together cooperatively and avoiding conflict, are cultural attributes of the Inuit people. Otherwise this demonstration project could be extremely difficult. As it is, I feel we work well together. We’ve accomplished a lot and will continue to do so."

As one Kawerak board member observed, "This is the biggest step taken by the Federal Government toward true Self-Determination since the passage of the Indian Self-Determination Act." This is one opportunity Kawerak and it's member Tribes plan to take full advantage of.

Because the Salt River Pima-Maricopa Indian Community in Arizona has been handling most of its own contracting since the "Buy Indian Days" of the early 1970's, the concept of Self-Governance is very familiar there. It truly appears to be a natural next step for the Tribe ... one that it hopes will result in even greater governmental efficiency, progress toward Self-Determination and more influence in land management ... without disrupting the trust responsibility of the U.S. government.

"We just received our planning grant in September, so we're still getting the feel for the specifics of the Self-Governance process," says Tribal Self-Governance Coordinator Earl Pearson. "And even though our extensive contracting experience seems to have made the process second nature to us for the most part, we have been having fun discovering that we really are responsible for managing the areas that the Bureau did take care of for us before."

Land management is a key area in which the Tribe hopes to see positive results from the Self-Governance process. Management of real estate has been very important to the Tribe for many years, and is clearly one of its priorities for the future. "We had the first Tribal realty contract in the country under 638," said Pearson. "And we did everything ourselves except appraisals and the management of the Federal trust function." The Tribe's government includes a highly efficient Planning Commission and a Land Board, and operates under a proactive development ordinance. The entire reservation is zoned, and the procedure for reservation development initiatives is truly comprehensive. "Leasing is big business for us," said Pearson. "It develops a major portion of the Tribe's annual income, and results in the employment of a lot of our people. But we have always recognized the significance of professionalism in our land management activities," he said. "That's why we have land management ordinances that require two hearings before our Land Board and our Council before our Council can take action on leases. If a zoning change is involved, another hearing is required."

With so many years experience managing 5 1,000-plus acres on the reservation (which, incidentally, shares a common border with the city of Scottsdale, one of the most affluent cities in North America), the Tribe's approach to governmental management has had much in common with the Self-Governance concept. "Because of this, the transition to the Self-Governance process has, for the most part, not been a big deal to us. It does increase efficiency, though, if for no other reason than it reduces duplicative reporting requirements to the Bureau," said Pearson.

As with most Tribes, there are members who are hesitant to cut strings with the BIA, for fear of termination. "Many of us actually share that concern, just as we did when the 638 program came into being years ago," said Pearson. "I think it's probably a healthy concern, because it is so important for the Tribes to maintain a vigil on the Federal trust responsibility. It does, however, appear that the permanent Self-Governance legislation will continue to protect this relationship."

Pearson said there are some obvious advantages to getting away from negotiations with the BIA, particularly in Arizona where, in the fall of 1987, the Arizona Republic newspaper published the series of articles entitled "Fraud in Indian Country". These accounts alleged serious waste and mismanagement in the Bureau of Indian Affairs. The articles led to the oversight hearings held by U.S. Senator Sidney Yates, in which proposals were made which in turn led to the development of the Self-Governance Demonstration Project. "One of the net results of all this is that the BIA here in this state is very protective of itself...very protective. That makes it difficult to negotiate a land lease deal, for instance, when the BIA comes in and negotiates at 20 percent higher than anyone else," said Pearson.

"We are interested in developing income for the Tribe, employing Tribal members, protecting our land and resource base and achieving the highest possible level of self determination. Again, it appears that the Self-Governance process is a natural next step for us to take," he said.

Among other Tribal businesses are the second largest cement company within the state of Arizona and one of the state's largest sand and gavel operations. Another strong economic anchor of the Tribe's economy is one of the largest and most successful shopping centers in the state. Located on 160 acres owned by a Salt River Tribal member, the center consists of many major businesses, all of which provide income through the tribe’s sales and property tax structure. So it does appear that the Salt River Pima-Maricopa Indian Community in Arizona, and its 5500 members, have good reason to look forward to a positive, prosperous future ... as a self-governed Tribe.

Lower Elwha S’Klallam Tribe

An Elder's Perspective

"I have seen the water rippling with giant fish, from one side of the river to the other," reflected Beatrice Charles, elder of the Lower Elwha S'Klallam Tribe of Western Washington. Aunt Bea’, as her fellow tribal members affectionately call her, served as star witness in a recent Congressional hearing which helped lead to federal legislation authorizing studies for either alternative fish passages or the removal of the two dams on the Lower Elwha River. "I know what it's like to have a lot of fish," she said. Elk was always picking on smaller creatures, when one day Wren flew into Elk's nostril. Elk cried for Wren to please get out. But Wren wouldn't leave until Elk promised to stop bullying the younger animals.

This brief Indian legend, and others like it, are used to convey a lesson to the children of the Elwha Tribe, through its cultural education program. The lesson here obviously is for big kids not to bully smaller kids. Other such lessons involve everything from getting a good education to staying away from drugs and alcohol.

"S’Klallam means 'strong people'," said Jamie Valadez, cultural coordinator for the Elwha Tribe. "I want the children of the tribe to know this, and to feel good about who they are."

She explains that this type of strength, which is being taught in the Tribe's Cultural Education Program, is the strength that will produce strong and productive Tribal citizens. The program uses such tools as arts and crafts instruction, the conveyance of legends through plays and story telling, sports and recreation and preventative education and field trips to teach the children of the Tribe about their heritage.

"It is working well with the kids we have, which is about 10 to 20 percent of the 150 kids who belong to the Tribe," she said. "But we need to accommodate more kids, year ‘round, with reliable transportation."

Jamie looks forward to a day when more and more S’Klallam children will be able to write their own language, as well as sing and dance to traditional songs. "Not too long ago, a band in Victoria, Canada, gave us back a traditional song. We need to have the wherewithal to team from one another this way ... whether we're learning arts from the teachers of another Tribe, or being enlightened to our own history by our own elders. We've got to get back into good memories about our Tribe, and we need to do it in a big way.

Jamie is already preparing program justifications for Tribal Council review in implementing Self-Governance at Lower Elwha. Tribal Council Member Alfred Charles sees the day when the leader of each of the departments in Elwha's Tribal Government will be able to write justifications for their annual budgets, and thus be individually responsible for supporting the professionalism of the Tribal governmental process. "This will not only save us work," he said. "It will increase our efficiency and enhance the skills of each department head."

Budgeting at the Tribe, like most, has historically been a centralized process. But program managers are now being trained to manage their own programs, and the process is thus being decentralized. The Council will now be able to devote more time to the consideration of specific budget requests that will come hand-in-hand with researched justification.

Charles credits Self-Governance for improving the Tribe's opportunities to increase efficiency, and he sees improved government-to-government relations between the Elwha Council and local, state and federal levels of non-Indian government as a resulting benefit.

"We're already seeing this happen," he said. "Local city and county governments are listening to us like they never have before. They are far more open-minded to Indian problems and rights, and we are able to help them better understand Indian ways."

He said this improved relationship is especially important with the growth of the Tribe's economic base. "I've had to watch the fish runs in our river die over the years," he said. "But as we were able to show non-Indian agencies and organizations that we are serious about improving management of the river, and we're not out to get rid of them, they came out of the woodwork to support us. It has been amazing."

He said you would be hard-pressed to find a smokehouse full of salmon on the Reservation these days, but that, with the cooperation of government at all levels, he is now confident the day of full smokehouses will return. "Hopefully it will be in my lifetime," he said. "If not, that’s all right. At least our future generations will benefit."

Patty Elofson, Lower Elwha Business Manager, said the likely removal of the dams will increase the Tribe's law enforcement responsibilities, as more houses will be built on the Reservation and as the Tribe's responsibilities in flooding and dam safety issues in. She said that with increased revenues made available by the Self-Governance process, the Tribe has already been able to negotiate the hiring of an additional police officer. Also, one additional FTE has already been secured for the Tribe's social services program.

She said the Tribe stands to gain another 1,000 acres of trust property, in the Lake Aldwell area, as the waters recede following removal of the dams. Tribal planners are already working on plans to assure, the highest and best use of these lands, with the intention of managing it in a way that will complement the bordering Olympic National Park.

"We're going to be needing land for housing development, too," she said. We already have approval to build 44 more houses for Tribal members. And we're going to be needing from 75 to 100 more. We're also looking into a resort area purchase, and other investments in tourism."

"It is time for us to roll up our sleeves and really go to work," said Carla Elofson, Tribal Chair and Self-Governance Coordinator. "Self-Governance will be a reality here. We want it to succeed. It will mean more vocational training, along with cultural education for our children and our adult Tribal members." One of the objectives of the Tribe is to maximize the number of Tribal members who are employed by the Tribe. Already, more than 60 percent of the employees are Tribal members or spouses. "Self-Governance will mean a lot to our cultural program, our social programs, employment and our economic development," she said.

"We have recently signed a Gaming Compact, had a River Restoration bill pass, and now have signed a Self-Governance Compact. Our Tribe has made markable progress this last year," she said.

Tanana Chiefs Conference

How's this for a challenge?

Coordinate the implementation of Self-Governance programming for about 11,000 Tribal members at 41 Tribes, in a region of 235,000 square miles...in the rugged interior of Alaska? Only nine of the Tribes are accessible by road, and the airfare to some of them exceeds the cost of a trip to Hawaii.

Challenges just don't seem to come in small packages in that part of the country, but such is the challenge being tackled head on by the Tanana Chiefs Conference (TCC), based in Fairbanks. It's not really a totally new challenge, because TCC has operated for decades, primarily coordinating Indian Health Service (IHS) programs for its member Tribes.

The TCC was initially formed in 1915 to press for the land claims of the Tribes. It eventually grew to be an organization of, by and for the member Tribes, concerned with delivering a wide range of services to Tribes and Tribal members, as well as serving as a unified advocate for their positions and their needs.

But Self-Governance has added a new wrinkle because it, by definition, requires that the Tribes all develop an efficient administrative capacity. And, with the Tribal villages ranging in population from 11 to 900 people, and with economic, language and cultural diversity casting a similar span, the order is a tall one. Top of the heap of specific challenges is communication. The ability to disperse and receive current information quickly is a must in self-governance.

"We do face some tough challenges," said TCC President Will Mayo. "But they're outweighed by the benefits we hope to obtain for the Tribes."

"Thank God for fax machines," Mayo added. The advent of fax machines and computers has already meant a great deal to efficient communications in the region, although many of the Tribes are just now acquiring them for the first time.

Still, there is sometimes just no substitute for personal visits in such an operation, and so the travel plans being made by Mayo and his staff are somewhat hectic for the next several weeks. Each and every Tribe will be visited in the effort to implement the Self-Governance process.

"We hope to complete the full Self-Governance Compact negotiations process in the first quarter of 1993," Mayo said.

"Many of the member villages are seeking enhancement of their Tribal government capacities," said Ed Rutledge, TCC's director of planning and development. "I see the development of efficient administrative processes as one of the primary benefits to the Tribes in this effort."

TCC wants to provide a full compilation of services to all its member Tribes, ranging from health and human services to natural resource management and economic development support.

TCC has concentrated much of its developmental effort on health services in the past, establishing a central health center and vision and dental clinics in Fairbanks, as well as health clinics at most of the Tribal villages. Obviously, the organization's main source of funding in the past has been the IHS.

"I think those services will be positively impacted by Self-Governance," said Rutledge. "Good health programs are of obvious importance. But it is high time for the Tribes, themselves, to have more say in how those and all other programs affecting them are operated. That's what this process is all about".

"We still have a long way to go," Rutledge continued. "Most of these Tribes still have 90 percent unemployment rates. There are incredible needs for improvement in economic development, as well as every other facet of life."

In addition to its base operation in Fairbanks, TCC serves its 41 member Tribes through sub-regional offices in the communities of Holy Cross, Tok, McGrath, Galena and Fort Yukon, as well as Fairbanks. The major watersheds that comprise the region are the Yukon, Koyukuk, Tanana and Kuskokwim rivers. Across the region are found a diversity of Native cultures and language dialects. In the midst of the diversity, a common thread is the fact that these are Tribes, heavily dependent on traditional subsistence lifestyles. A shared concern of the Tribes is the constant battle to protect their subsistence rights in the face of challenges ranging from sport hunting interests to extreme preservationists.

"The cultural diversity of the region points to a real need for Self- Governance," said Rutledge. "The Tribes need to be able to find common ground where they can negotiate solutions to their problems and be able to represent their own Tribal interests in the process. Self-Governance will help them develop the administrative ability to do so. The process should also aid in the development of improved government-to-government relations between the Tribes and the state and federal governments."

Mayo hopes Tribes will be able to take more action on what their individual Tribal priorities are, such as economic development, support for elders, cultural preservation, or youth program. "Whatever direction things go, the Tribes will make the decisions Mayo said. Maybe they will choose to continue their participation in regional programming through TCC. Maybe they won't. For now, our course is clear. We have to do all we can to communicate the opportunities and options available to the Tribes, and help the develop the administrative abilities to make the best possible decisions for their own Tribal well-being.

Chickasaw Nation

Chickasaw is a nation of proud people, rich in culture and history ... a legacy of leadership. Even prehistoric legends reflect that the Chickasaw people have always bonded together and have been inspired by great spiritual strength. Following an oracular pole, carried by Chickasaw holy men, the Tribe once migrated east from the "land of the setting sun" to its homeland in the Tombigbee highlands of northeastern Mississippi. There the Tribe flourished to an estimated 4,500 members with a highly structured society with responsive government, and a thriving cultural system. They were a spartan warrior people, characterized in colonial times as the "Terrors of the Mississippi Valley." Like so many other Indian Nations, Chickasaws witnessed the diminishment of their land over the next few centuries to a continuous flood of immigrants and constant Federal pressure. Chickasaw leaders shrewdly negotiated a peaceful policy with the U.S., which provided them the opportunity to negotiate for new settlement lands in Choctaw Country in what is now Oklahoma. The Chickasaw Tribe became the "Chickasaw District of the Choctaw Nation". In 1855, the Choctaw-Chickasaw Treaty created the Chickasaw Nation separate from the Choctaws, following which the Tribe established a constitution providing for a governor, house of representatives, a senate, judicial system, educational system and Bill of Rights. Eventually, the Nation was fused with Oklahoma Territory to form the State of Oklahoma. The Tribe contributed significantly to the development of the state and, to this day, remains known as "The Unconquered and Unconquerable Chickasaw Nation."

Today, the Chickasaw Nation flourishes, 26,000 members strong, principally situated in 12 counties in south-central Oklahoma as a non-reservation Indian nation. The 12-county region of the state which comprises the Chickasaw sphere of influence is blessed with outstanding agricultural lands, and hundreds of miles of rivers and lakes.

The Tribe's government is comprised of executive, legislative and judicial branches, with direct program services departments, including education, employment training, health services, human services and community assistance. There are also active business and Tribal development departments, as well as support services departments. As has been the case throughout its history, the Tribe's government structure and operation is highly efficient, well organized and service-oriented toward its constituency. Officials of the Tribe strongly believe that participation in the Self-Governance Demonstration Project is a giant step forward in its ability to carry such programs and policies into the future.

The most fundamental element of success to the Chickasaws is a high energy level, directed tenaciously toward big future plans. This characteristic is strong in tradition. Centuries ago, trader James Adair described Chickasaws as exceedingly swift of foot: "In a long chase they will stretch away, through the rough wood, by bare track, for two or three hundred miles, in pursuit of the flying enemy, with continued speed, and eagerness of a staunch pack of blood hounds, till they shed blood."

Today, this Chickasaw energy is geared toward success - in government, good health, cultural pursuit, education, and business and employment - and it is clear that the tribe sees Self-Governance as a fundamental element in achieving this success.

The role of Self-Governance in the continued success of the Chickasaw Nation is evident in the words of Governor Anoatubby, "We have entered a period of enlightened cooperation and mutual assistance with the Federal government. Let us now grasp the opportunity of Self-Governance and mold the future direction of our great nation."

The greatest benefit offered by the Chickasaw Nation is its vast pool of human resources, according to Governor Anoatubby. Sixty-six percent of the Tribe's employees are Chickasaws. Business ventures currently owned and operated by the Tribe include the Chickasaw Motor Inn in Sulphur, Oklahoma; tobacco shops in Ada, Marlow, Thackerville, and Norman, Oklahoma; trading posts in Davis and Ada, gaming centers in Ada, and Thackerville, and Goldsby Central Business Services, an accounting firm, located in Ada.

The stated mission of the Chickasaw Nation is to enhance the overall quality of life for Chickasaw citizens. "Each elected Tribal official has a responsibility to uphold Tribal sovereignty as it is defined by the members of citizens of that Tribe," said Governor Anoatubby. Speaking of Self-Governance and the Tribes, he says, "Within our unique governmental structures, we must continue to support one another in this great effort."

Self determination -- economically, socially, politically and culturally -- is the Tribe's ultimate goal. There is great confidence that efforts associated with the Self-Governance Demonstration Project will lay the foundations for opportunity and prosperity for the Chickasaw generations to come.

"We must have a Tribal government which lends itself to self-sufficiency," says Governor Anoatubby.

In a column published in the July edition of the nationally distributed Chickasaw Times, Governor Anoatubby said Self-Governance Compacts "...basically and realistically place the full power of the government's operations the hands of the Tribe. This is truly Self-Governance, which indeed is an extension of self-determination.

Lummi Indian Nation

As one of the first Tribes involved in the Self-Governance Demonstration Project. The Lummi Indian Nation would like to share its experiences regarding the opportunities and challenges of the process.

In an effort to help others benefit from the Lummi experience, SOVEREIGN NATIONS recently presented Raynette Finkbonner, Self-Governance Coordinator for the Tribe, a list of questions. Following are the questions and her responses:

Question: What are the most notable ways that the Self-Governance process has affected the Tribe?

Finkbonner: The process has let the Tribe create innovative approaches in redesigning programs to better meet our community needs. It has expanded the decision-making authority of the Tribal government the establishment of Tribal priorities and the allocation of resources to meet those priorities. We have a good budget ordinance and we have better fiscal accountability. We have involvement and input from the Tribal community in our budget process and the establishment of Tribal priorities. The flexibility we now have in reprogramming Tribal funds has provided for the expansion of the JOM tutoring program to all Lummi students. It led to the establishment of a Tribal Business Assistance Center, a Tribal Cultural Department and a Tribal Youth Program.

Because of the Self-Governance Process, we have been able to provide financial support for, Tribal Council Budget Committee, our Tribal Education Commission, our Seniors' Program, our Veterans' Office and our Local Volunteer Fire Department. We are better able to meet the needs of our people through our Scholarship Program. Tribal Court, Law and Order, Natural Resources, Forestry and HIP.

Tribal staff now report to and are accountable to the Lummi Indian Business Council, and the people that they serve. More people than ever before are now involved and have input in Tribal government. Greater numbers of people now vote in the Tribal election process.

Question: Who at the Tribe has benefited the most from the process?

Finkbonner. The youth probably more than anyone because of the expansion of the JOM tutoring program, the scholarship program, and the establishment of a Youth program.

Secondly, the Tribal electorate in general because of their new opportunities for input into the Tribal decision making process.

Question: What have been some of the hurdles the Tribe has had to overcome in implementing the process?

Finkbonner: Our biggest obstacle has been the federal bureaucracy. They have an ingrained and layered bureaucracy that has had over 100 years of experience in paternalism. On a regular and daily basis we have had to overcome and work towards changing the bureaucracy. We continuously encounter resistance and we found a distinct desire to maintain the status quo. Thus, they have demonstrated an inability to change. We are not trying to eliminate any federal bureaucracy - we are seeking to change our working relationship with those entities to that of protection of our treaty rights and upholding the United States trust responsibility.

Along these same lines we have found within most layers of the bureaucracy a lack of creativity. We have found a system that is still wanting to try and work in the same system that has been investigated year after year, and administration after administration - the BIA is now documenting that, throughout history, the BIA has mismanaged Indian Affairs. In some instances we still receive our Self-Governance funding under the old 638 process. The intent of the project has been to streamline some of those processes, not to make them more complicated. Lummi OSG staff continue to work with the OSG and the BIA on changing some of those antiquated processes and mechanisms.

Within the Tribal community and within the Tribal organizational structure, the rapid pace of change has caused some frustrations. But, we overcome these hurdles by continuous ongoing and extensive communication and education within all of the Tribal government and within our community. People develop a fear of change when they don't understand or have all of the information they need. We are still in a transitionary phase due to the fact that we have operated an organization in the past that relied on federal direction and supervision. We are striving to establish a truly functional and operational tribal government based upon what we identify will work best for the Lummi Tribal community. We need to be able to move from the constant struggle to implement what has been negotiated to a position where we can be innovative at home for our own people.

Question: Where does the Tribe go from here, with respect to the Self-Governance process?

Finkbonner: The Lummi Nation is excited and we look forward to the future with new vision for our Tribal community. Our vision is to reaffirm the government-to-government relationship with the United States; to move forward in the future towards self-sufficiency, politically, socially, culturally, and economically; to becoming a community that is proactive rather than reactive, based on our plans for the future, and to create a capable, functional Tribal government for the benefit of our people. Self-Governance allows us to dream and plan for our vision of the future. Most importantly, through Self-Governance, these plans, dreams, and visions can become realities, today! We are planning to move into IHS as soon as possible. We look forward toward the project becoming permanent and expanding to all federal agencies. Our experience has proven that through Self-Governance, positive changes can occur within our community for our Tribal people. Tribal governments - know what the solutions are to our problems and through Self-Governance. We have begun to implement those solutions. They are working and helping.

There is a statement in the Redbook that sums up Self-Governance and the Future for the Lummi Nation:

"Self-Governance does not equal sovereignty; but Self-Governance can provide the administrative freedom and the framework for Tribes to make decisions as sovereigns. Only, through Tribal decisions, exercised with responsibility, will sovereignty come closer to reality.

If we continue to allow others such as the federal bureaucracies, to make decisions on our behalf, individually or collectively, we will perpetuate the dependency of tribes and continue to empower the United States as guardian. We must aggressively and responsibly assert our own role as the key policy-maker on Indian Affairs. The stronger we become individually as Tribes, the more powerful we collectively grow, and the better we will be able to serve our future generations and again become truly self-governing, sovereign Indian Nations."

Question: Any additional comments?

Finkbonner: Self-Governance is not the answer to all of our Tribal problems, issues, and concerns. Self-Governance may not be for all Indian Nations. But for the Lummi Nation, it is our road to the future and the next step toward true sovereignty. The Tribal Self-Governance Demonstration Project is of Tribal design and it is a Tribally-driven initiative. For the first time in over 100 years we as the Lummi Indian Nation will begin determining our own success and failures.

The Sac & Fox Nation of Oklahoma

The way the Sac and Fox Nation sees it, after two years of contracting under Public Law 93-638 to operate all of the programs of the Bureau of Indian Affairs (BIA) Shawnee Agency in central Oklahoma, its participation in the Tribal Self-Governance Demonstration Project is just another step in its move to total tribal sovereignty.

The Sac and Fox Nation is one of five Tribes of the Shawnee Agency, that in 1988 decided to band together and contract to operate the programs of the entire BIA Agency. The Tribe took over its share of the Agency programs and services in 1989. These 18 programs included key functions such as Tribal Government Services, Social Services, Realty and Tribal Operations. Several years earlier the tribes had contracted to operate courts, Police and the Home Improvement Program.

Paula Williams-Gomez, Tribal Administrator for the 2,300 member Sac and Fox Nation, said the Tribe at the time it was involved with the P.L. 93-638 contracting effort viewed it as something good. "I think they (Tribe) looked at it as another step in exercising their sovereignty," she said.

There were, of course, some things the Tribe had to address to make the contracting arrangement work. The most critical being accepting the responsibility of operating programs that for decades had been run by the BIA. It was a responsibility that virtually had to be learned.

The Tribe learned quickly, said Williams-Gomez, and exercising this new found sense of responsibility allowed the Sac and Fox Nation to increase services to its people under the contracting arrangement.

She cited the General Assistance Program, which under the BIA provided only minimal service. By cutting out the high administrative and overhead costs carried by the BIA, the Tribe was able to increase Field service by almost 200 percent. "We were more directly accountable to the Federal government and tribal members for our actions, as all Tribal governments should be." she said.

The ability of the Tribe to operate the Agency programs under P.L. 93-638 contracts, however, came with strings attached. The way the funds for the programs were spent was tightly controlled by the BIA, said Williams-Gomez, but even more inhibiting was "the extensive reporting and the regulations. And most of all ... the internal policy of the Bureau, not merely its dealing with regulations, but how they interpreted the policy."

This put the Bureau in a position where it tried to dictate how programs should be administered. A case in point, said Williams-Gomez: "They tried to include in the contracts the stipulation that we would abide by the BIA manual. We have our own policies and procedures, we felt they are adequate."

"They also wanted to dictate that we pay our employees using their salary scale" she said, which would have been financially difficult for the Tribe. She added that the Bureau also wanted the Tribe to adhere to its employee qualification standards, a move that would have eliminated many Tribal members from contract program jobs. The Tribe was bound by regulations and policies interpreted by the Agency whose programs were now operated by the Tribe, she said.

In 1990, the Tribe seized the opportunity to become a participating Tribe in the Self-Governance Demonstration Project. "For us, it was just another step in the process of sovereignty-Self-Governance. We would be operating all of the same programs."

The Sac and Fox Nation completed its Planning Phase of the Project in short time, began to negotiate with the Interior Department's Office of Self-Governance in March 1991, and had its Compact in final form six months later.

The Self-Governance Demonstration Project differs from contracting under P.L. 93-638 in two major areas, said Williams-Gomez. The Tribe gets to redesign the programs at its own discretion, and funds to administer the programs are controlled by the Tribe.

"In the area of redesigning programs, I think the Self-Governance Project is a huge step up from the 638 method of contracting. Our Education Department has already redesigned its program based on the needs of our people. Now we're in the midst of working on the Johnson O'Malley Program, and redesigning the Home Improvement Program." she said.

As for the ability of the Tribe to spend funds for the programs as it sees fit, there are still spending guides the Tribe must follow, but they are a far cry from the method used under P.L. 93-638.

Instead of needing BIA approval for virtually every dollar spent on the program, the Tribe under the Self-Governance Project follows guidelines that states and local governments follow for managing Federal funds.

This, said Williams-Gomez, has eliminated delays experienced when the Tribe contracted under P.L. 93-638. As an example, she said, "if the Tribe wanted to transfer funds from a travel category to higher education so a Tribal college student could stay in school, the required budget modification and approval under P.L. 93-638 could take three months. By then, the student likely would have dropped out of school. Under the Self-Governance Project spending guidelines. The funds can be more easily and quickly moved because the decision is the Tribes to make.

Despite this Tribal determination approach to managing and operating reservation programs under the Self-Governance Project, the BIA is still very much in evidence, since it must interpret the policies that drive the project. "Of course, we still have that now ... in how the Bureau interprets Self-Governance." said Williams-Gomez.

The idea of getting the BIA off the Tribe's back when it comes to managing and operating individual programs hasn't moved the Tribe to let up its guard. "We still require the same internal reporting from program directors as we did before. And something we're very serious about is financial accountability. If a Tribe isn't prepared for it, it can slip away from them really quickly," she said.

If there is one thing that will contribute to the demise of the concept of Self-Governance as it is promoted by the Self-Governance Project, she said, it will be poor Financial accountability.

Squaxin Island Tribe

The latest Tribe to join the Self-Governance Demonstration Project is a small, but enthusiastic Tribe located on the southern edge of the Puget Sound in the State of Washington. The Tribe's name is the same borne by the three-mile long island retained as its reservation - Squaxin Island.

The Squaxin Island Tribe, created by the signing of the Treaty of Medicine Creek in 1854, is an accumulation of six bands of Indians from six inlets on Puget Sound; the Sa-heh-wah-mish, Squawskin, S'Homamish, Stehchass, T'Peeksin and Squi-aitl.

Because Squaxin Island is undeveloped and difficult for permanent settlement, the Tribe purchased property for a land base on the nearby mainland at Kamilche, about six miles south of Shelton, Washington. This is an area where one of the traditional bands lives and where many present Tribal members reside.

From here, this Tribe of about 400 members has made its presence well known to other Tribes and non-Indian communities in Washington. With its culture and its economy based on natural resources, including salmon, shellfish, deer and elk, the Squaxin Island Tribe has focused much of its energy on resource management and environmental protection. In fact, the Tribe has provided substantial leadership in these efforts at the local, state, national and international levels. In 1992 alone, for example, the Tribe's fisheries enhancement program released more than five million healthy young salmon. The Tribe has consistently been active in state-of-the-art aquaculture, such as pen raising of salmon and oyster culturing. Also, as a party to the U.S. vs. Washington Federal court decision of 1974, the Squaxin Island Tribe is one of 20 Tribes that co-manage the salmon resource with the State of Washington. Squaxin Island has been integrally involved in such government-to-government processes as hunting agreements with the State, and agreements to protect salmon from timber harvest, pollution and over fishing.

The Tribe's accomplishments are also substantial in health services, education and economic development. The Tribe operates a health clinic and a drug and alcohol counseling program, as well as mental health counseling and family services programs and an active youth recreation program. The Tribe has just completed negotiations for a 35-bed alcohol treatment center in the nearby community of Elma, which will be available to serve all Native Americans, as well as non-Indians, as space is available. The Tribe also operates a pre-school, a vocational training program and a financial aid program for Tribal members to continue higher education. The Tribe also operates a trading post, a bingo operation, a large fireworks stand, a grocery store and the Harstene Oyster Company, which produces quality oysters and clams.

Little wonder that the Tribe opted to become part of the Self-Governance Demonstration Project.

The Squaxin Island Tribe pulls no punches in its effort to operate functional, independent government, and it is clear that Self-Governance is viewed as a significant step in this process, evidenced by the Tribe's determination to be a sanctioned planning Tribe. The Tribe funded the planning/negotiation phases of its Self-Governance Demonstration process on its own and completed the process in a period of nine months.

"We look forward to the development of our Self-Governance program," says Tribal Chairman Dave Lopeman. "We are very capable of setting our priorities at the local level, providing top level services to our people, preserving our culture and protecting our resources for the generations to come."

Tribal Self-Governance Coordinator Mike Peters says the immediate effect of the process at the Tribe has been an "opening up of government to the Tribal community. It is a process that involves our Tribal members in the effort to determine what our priorities should be... as opposed to living with priorities someone else establishes for us. Everybody is very excited about this process here, and we all anticipate that it will continue to expand our opportunities through true Self-Determination."

Quinault Indian Nation

Generally stated, the purpose of the Quinault Indian Nation Education Program is to provide culturally relevant education, services, resources and opportunities needed to raise the education level of Tribal members, and members of other Tribes residing there.

With the advent of the Self-Governance Project, an additional goal became getting accustomed to the "new way of doing business." Although the Tribe was determined to ease into the process, so as to minimize interference with current students' educational careers, the Project has already brought major structural change to its Department of Education. The decision of the Quinault Business Committee to shift education programs from the department of Human Services and to establish the Department of Education emphasized the priority placed on education. All Tribal education programs were combined under this new department, and the education budget was increased by more than 30 percent.

Other signs of progress with the Tribe's education program attributable in part to the Self-Governance Demonstration Project included an increase in post-secondary Financial assistance, improvements in over all grade point average and an increase in career counseling sessions. Fifty students have received financial assistance this past year. The overall GPA is at 2.85 and there were 124 counseling sessions in a six-month period. Also, a new scholarship committee has been activated. The real significance of such advancements is becoming very clear at Quinault, with more and more young Tribal members choosing to make the most of their lives through education, and then making the decision to devote their energies to the service of their Tribe.

Other Tribal Programs

Although the increased investment in education by Quinault enabled by Self-Governance is seen as a "top of the heap" priority, there are many other important Tribal programs that also benefit from the Self-Governance Project. Following are some brief assessments of those programs:

Business Finance- This new program is considered a high economic development priority. About 40 Tribal members per year are expected to receive financial assistance and counseling through the program.

Fisheries Enforcement and Other Law Enforcement - Self-Governance has helped establish more competitive salaries for fisheries enforcement officers, and to establish new positions, including two new forest patrol positions. The Tribe's Department of Public Safety consists of Law Enforcement, Fisheries Enforcement and Emergency Medical Services. Each department reports increases in enforcement actions by Tribal officers, and numerous Tribal officials have completed or are about to complete Emergency Medical Technician training.

Tribal Court- The increased Tribal budget led to the hiring of a court administrator and a court counselor. In part, this reflected a coordinated effort to strengthen law enforcement, Tribal court and social services and provide a comprehensive approach to substance abuse, domestic violence and youth problems. Quinault also provides for both a prosecutor and a public defender.

Fisheries Management - Many accomplishments in fisheries management were supported by Self-Governance, in such areas as catch sampling, spawning ground surveys, broodstock programs and other enhancement work (in the fall, 4.2 million eggs were taken and 177,100 fish were tagged). Harvest management and catch recording were other supported programs.

Tribal Administration - Budgeting, and internal reporting systems, auditing and monitoring systems have been developed or enhanced as a result of Self-Governance and an office was established to help implementation efficient program in the future. In one six-month period, 17 Tribal administrative staff positions were filled.

Youth Opportunity Program - During Fiscal Year 1991, the summer youth program was shifted to Tribal Administration, increasing its priority, the budget, and the number of participants to 105. There have also been many youth recreational developments, such as the construction of new baseball fields.

Environmental Protection - Self-Governance increased funding available to support environmental protection programs, which consist primarily of Spotted Owl and Timber-Fish-Wildlife-related efforts. The Forestry Program probably experienced the greatest increase in responsibility. Under Self-Governance, the Tribe accepted responsibilities for timber sales on Tribal lands, forest internships, forest marketing, forest protection, forest inventory, plans on Tribal lands and fire pre-suppression. The Forestry Program also became involved in major land acquisition activities, increasing from under 8,000 acres in 1987 to over 48,000 acres in 1992. A Tribal planning crew planted 236,085 tree seedlings in FY '91 and the Tribe expects that its annual plantings will reach 1.3 million trees in both FY 1992 and 1993.

Social Services - Among other things, the Tribe has been able to hire two caseworkers and a new director for the Social Services program, and more efficiency has developed as a result of combining caseloads.

"We are generally pleased with our participation in this historic initiative," said Lynda Jolly, Coordinator of the Quinault Self-Governance Office. "It has been a learning experience, and the transition, at times, has been a struggle. But assuming greater responsibilities and being more accountable has resulted in positive change."

The Oneida Indian Nation

The Oneida Indian Nation's objectives in becoming a participant in the Self-Governance Demonstration Project have little to do with funding. Very little. The Tribe's own enterprises account for 95 percent of its estimated FY 1994 $110 million budget.

The Tribe's objectives in the process are far more related to a belief that social development must keep pace with economic development if progress is to continue toward true self-sufficiency. The Tribe's government is dedicated to the development of a process which will address all aspects of the infrastructure which the community will need in order to resolve competing needs and demands. This process will require that the Tribe have control over as many of the resources available to it as possible, to make incremental changes as it implements future development strategies.

The Self-Governance program is one such resource the Tribe considers valuable in its quest for self-sufficiency as a Tribe ... and in its assertion of sovereignty as a nation.

The Oneida Tribe has its share of experience in self-sufficiency, successful, movement and sovereignty ... it is a member of the Iroquois Confederacy, a league of Indian nations that has been credited for inspiring the development of the Constitution of the United States. In the mid-1770's however, the Oneida's decision to support the American Revolution led to the loss of their homes, crops and animals at the hands of other members of the Confederacy. Also, early developers desired the Oneida homeland in New York State, because it was choice farmland and it was in the area of the Erie Canal route. Faced with a difficult situation, in which their lands were being eroded, many Oneidas chose to move to Wisconsin. In the 1820's, Oneidas settled along Duck Creek, about 10 miles from the city of Green Bay. The original five million acres of land purchased by the Oneidas from the Menominee Tribe in the 1820's was reduced to 65,000 acres by the U.S. Government. In 1838 the U.S. signed a treaty formally recognizing the present boundaries of the reservation, which encompass the Townships of Oneida and Hobart.

The traditional form of Oneida government deteriorated after the Tribe settled in Wisconsin. In 1934, the Oneidas formed a constitutional government under the Indian Reorganization Act and provided for elections by a General Tribal Council. The Tribe struggled through the next three decades, but in the 1960's, after passage of the Indian Self-Determination Act, the Tribe began to grow.

In the early 1960's, the Tribe employed four people. It now employs 1,800 people. Eighty percent of these people are Tribal members, and most work for Tribal enterprises.

The Tribe Today

The Oneida Tribe's dramatic growth and economic prosperity during the last three decades has resulted in an overall improvement in the general health and well-being of members living on or near the Reservation. Substantial revenues from the Tribe's extensive gaming and other business operations are allocated to health programs, social services, education and job training, public safety, conservation and environmental protection programs. Many of these activities depended almost entirely on federal funds for their existence during the early years of the Tribe's resurgence. Today, the Tribe's dependence on federal inter-governmental transfers has been significantly reduced. As a result, individual members of the Tribe, the Tribe itself, and the environment of the Oneida Reservation have grown and prospered. The Tribe's economic success has made things possible that were only dreamed of in earlier years. The Tribe took action several years ago to vigorously pursue the re-acquisition of land within the original Reservation boundaries. More recently, the Tribe decided to establish and administer a trust fund for the benefit of Tribal elders those people whose hard work, perseverance and dedication to the Tribe made possible the success the Tribe enjoys today. At the other end of the age spectrum, the Tribe has broken ground for a new K-8 school and is aggressively pursuing plans to expand the school through the high school grades. Traditional Oneida language and culture form the foundation of the entire curriculum of this new educational institution.

Because of its financial success, the Tribe is able to concentrate more fully on programs and issues of cultural significance. Reflective of this is the fact that the Tribal school is being built in the shape of a turtle, one of the symbols upon which the Tribe's culture is based.

"Ten years ago we couldn't have considered such things to this degree," says Chris Johns, Oneida's Self-Governance Coordinator.

Self-Governance Objectives

"Self-Governance is the natural next step in our Governmental evolution," said Johns. "It is a good example of the full exercise of sovereignty." He said the Tribe is looking forward to the adoption of permanent legislation by Congress, and to the time when every Federal Agency and every Federal Department will be subject to permanent Self-Governance legislation. The way it should work is that once a year our chairman should get together with the President of the United States and sign a compact. We'd also like to see the process adopted at the state level." The state of Wisconsin, where the Oneida Tribe is located, is a PL 280 state. "That means the state has some say about what happens on the Reservation. We've lived with that long enough. It can complicate things sometimes. We want it to change."

Over all, the Tribe sees very positive things happening with the Self-Governance process and the prospect of greater opportunities to secure true sovereignty, particularly at the Federal level. The addition of two close long-time associates as top ranking Federal officials - Ada Deer as the Director of the BIA and Donna Shalala as the head of the Department of Health and Human Services will hopefully help assure this. The Tribe worked with both in their former capacities at the University of Wisconsin, and with Ada Deer in her former capacity as chair of the Menominee Tribe.

"We are looking forward to great things ahead," said Johns. In fact, the combination of economic success, high employment rates and true Self-Governance seems to be the way to go. It is the right combination to permit the greatest possible opportunity to plan for the future. As is the tradition in Indian Country, the Tribe aspires to make decisions based on how they will affect their children in seven generations. "We have gone from the point of having to think only of today and are now planning five, 10 and even 20 years into the future. Making the most of Self-Governance, and doing the best we can to have the ability to make our own decisions, at the Tribal level, is an important part of those plans."

Siletz

You've heard of the "Comeback Kid." How about the "Comeback Tribe"? In 1955, the Siletz Tribe was terminated by the United States government, an experience that might be likened to being KO'd by an uppercut or a strong right cross. But like the tenacious downed boxer who somehow musters the strength to get back up and fight on to victory, the Siletz got back up on their feet, too. And in 1977, the Confederated Tribes of Siletz became the second Tribe in U.S. history to be restored to federal recognition.

It was a new beginning for this confederation of 24 Indian bands that originally ranged from northern California to southern Washington. Just a beginning.

Since that time, the Siletz have reinvented their form of government, established an outstanding health clinic, established the independent Siletz Tribal Economic Development Corporation (STEDCO), developed a vibrant housing program, and become an active participant in the Self-Governance Demonstration Project.

"It's been an interesting process," says Tribal Chair Delores Pigsley. "We serve 2200 tribal members, on and off our reservation. We have members in all the metropolitan areas of western Oregon, and we want to be able to provide services to them all. The planning process we have gone through with Self-Governance has really helped. We're much better off, much more capable of serving all our people because of this process."

"We are much better off," agreed Tribal Self-Governance Coordinator Nelson Witt, who is also the Tribe's Chief Executive Officer. "The fact that the Siletz Tribe was terminated has made things difficult through the years. But our resolve to overcome such difficulties has put us on an upward path. We have become more and more independent, more responsible for all our programs. By the time we decided to go with Self-Governance, it was clear that it was the logical next step we had to take. And we're, going to keep on taking the steps we need to take, contracting for all BIA programs, for all Indian Health programs, and so on ... to be more in control of our own destiny."

The Tribe's central office is located in the town of Siletz, 23 miles southeast of Lincoln City, on the beautiful Oregon Coast prior to being terminated, the Tribe had a huge reservation. With reinstatement, it secured 3600 acres of public domain land, scattered tracts, primarily located in Oregon's coastal range. The patch work nature of the ownership makes for many management challenges. The service area of the Tribe includes 11 counties, with regional offices in Portland, Salem and Springfield. The Tribe is looking at the possibility of restoring more of the former reservation, i.e., possibly acquiring some of the public domain land in Lincoln County.

Substantial progress in programs has been made to provide members educational ties and employment assistance. The Head Start program is offered There is a cultural program and library. The Tribe sponsors the second largest Pow Wow in the state in mid-August and there is a vibrant elders' program and food distribution program. Vocational training has been effective. The Tribe employs about 120, and functions with growing efficiency.

The Siletz Community Health, which opened in 1991, provides medical/dental services to Tribal members and non-Siletz community and the surrounding area. Services are comprehensive and include "deferred services", such as eye care, hearing aids and elective surgery.

The Tribe's Economic Development Corporation was formed as an independent entity to develop economic enterprises that create employment opportunities and foster the economic and social betterment of tribal members. STEDCO projects include marketing tribal timber and the Siletz Smokehouse in Depoe Bay. A custom box manufacturing plant has recently been purchased and other forms of economic development are being explored.

The Tribe is developing an integrated resource management plan which will be under the supervision of the Natural Resource Department. The program will include timber resource management, which is already in place, and will further address the needs of salmon, eel and other wildlife for survival. This program places the Tribe at the heart of environmental activities in the region, as well as economic activities directly dependent on healthy natural resources.

One of the Tribe's most impressive projects has been the restructuring of its government. It now operates with a highly effective system of checks and balances involving three distinct branches of government ... the judicial, legislative and administrative. The Tribal court operates independently from the council, reviewing council decisions for constitutionality. The council serves in the legislative capacity, establishing regulations. And Mr. Witt of the administrative end of things, enforcing the regulations established by the council. All in all it's a system that works very well, he said.

"And it's a system that works hand-in-hand with the Self-Governance program," said Pigsley. "Not only does the Self-Governance approach generate more funding to support our programs. It also supports our independence and sovereignty."

The Chippewa Cree Tribe on the Rocky Boy Reservation

The Chippewa Cree Tribe on the Rocky Boy Reservation in Montana is the smallest in the Billings region. It's also the only one opting to go Self-Governance so far. Tribe is in the planning stage, set to take its 638 contracts, with an eye on following suit with all other programs not contracted now.

That perks a few ears up among some Tribes in the vicinity, as well as the members employed by the Bureau of Affairs in the Area Office.

"Things have been going well, but there been a lot of rumors that have caused BIA employees some concerns. Some them have heard that our Self-Governance process will mean they'll lose their jobs benefits. But we don't think this will necessarily be the case," said Chippewa Cree Council Member Kelly Eagleman.

"We've been telling them that Self-Governance is going to benefit all Tribal members," said Tribal Self-Governance Coordinator Ronnie Henry. "Who's better qualified to coordinate these projects, and the jobs associated with them, than the Tribe, itself. We want to see them get good benefits. And we think the Tribe is in the best position to ensure these things in the years to come."

The Rocky Boy Reservation consists 120,000 congruous area in North Central Montana. About 40,000 of these acres are in the scenic green mountainous area, rippled with free-flowing rivers and streams, as well as lakes and reservoirs, most of which provide some of the most outstanding trout fishing in the world. The Cree ancestors of the Tribe hail from Canada and the Chippewas are emigrants from the eastern United States.

Today, there are 4,000 members enrolled in the Tribe, 2500 of whom reside on the reservation. The Tribe is unique in that it owns all the acreage within its borders, a fact that underscores the logic of the Tribal government being directly responsible and accountable for Tribal programs.

A number of Tribal programs may come under the umbrella of Self-Governance in the future. In terms of economic development, the Tribe looks forward to maintaining its agricultural base under the process. The Tribe owns and operates two farms and a cattle ranch which raises cattle to sell at reduced rates to Tribal members through a tribally operated butcher shop/meat market.

The Tribe's top priority in the Self-Governance effort is education. Already, the Tribe operates a highly successful community college program, Stone Child College, named after one of the Tribal founding chiefs, Stoneman. The college is accommodating more than 300 students this semester alone. Most of the students are from the Tribe, but some are from other Tribes and the non-Indian community. (Historical note: The name Rocky Boy actually resulted from an inaccurate interpretation of Stoneman’s name.)

"Some of the other Tribes in the region are concerned about the Self-Governance process," said Henry. "There is an attitude in Billings that since Rocky Boy is the smallest and poorest of the Tribes in the region, we should be the least likely to have a Self-Governance compact. I guess we'll just have to prove them wrong. We've always been a pretty feisty Tribe...we'll make it work. Self-Governance is a creative process. And that's just what we need...to have the ability to be creative. Our Tribe has faced 60 to 80 percent unemployment rates over the years. We think the Self-Governance process is part of the remedy to this problem ... through education and economic enterprise."

Harold Monteau, Tribal Attorney and member of the BIA Reorganization Task Force, said, "Sovereignty doesn't mean anything unless it's exercised. Self-Governance is our opportunity to really exercise it. We're looking forward to the progress we think it will bring."

Jamestown S’Klallam Tribe

When he talks about the concept of tribal self-governance the idea that only a tribe itself knows what is best for it. W. Ron Allen can move from one topic to another and not skip a beat.

It is obvious he has thought long and hard about the concept, and has definite ideas about why tribal self-governance is going to be around for a long, long time.

Allen is the Chairman of the Jamestown S’Klallam Tribe as well as its Executive Director, and he is one of the key figures in the Tribal Self-Governance Demonstration Project. He along with the leaders from several other tribes have helped to lay the groundwork for what is becoming a focal point for Indian tribes looking to gain real control of programs and services for their communities.

Allen's initial interest in tribal self-governance and the Demonstration Project was both widely encompassing and at the same time very pointed. On the wide side, he said it looked like an exciting opportunity to decentralize a federal government that wasn't doing a very good job of helping Indian communities subsist, much less thrive.

"I knew right away that this was what the bureaucracy was holding over Indians. I believe the system will work better if resources are put in the hand of people at the grassroots level," Allen said.

And on the pointed side, he said he wanted to show that his small tribe could handle things as well as the big tribes.

Not only was it a "desire to provide opportunity for my tribe to participate, but to show to Indian country and the bureaucracy that a small tribe like our can conduct a project like this, to not only disprove those who might think small tribes can't handle a project like this, but to do it well," Allen said.

Taking the lead in a project that bureaucracy as well as some Indian Tribes see as threatening can inflict personal risk, at least professionally Allen said.

"Personally, I consider the project a challenge. It’s like looking to find a creative way to get around a bureau stumbling block."

"There is a high risk to it. If you’re point entity who is leading the charge ... you can be the recipient of negative repercussions. You can lose favor among those people who can influence that can affect you."

For those Indian leaders who are to make headway for their tribes by becoming very visible in Indian country the price may seem steep.

"If you are considered a threat in this arena, other Indian agencies-such as the Indian Health Service and the Administration for Native American--they can treat you in a less favorable way, reducing opportunities not only funding for your tribe, but opportunity for you as a leader," Allen said.

Being at the point in a project like he said, can also raise doubts about vision and motives among some Indian tribes and communities.

"As a rule of thumb, Indian tribes do not take easily to change. They become very nervous that some Indian leader or some tribe may take them down the road to termination," he said.

Indeed many tribes fear the idea of termination, and well they should. Allen said he recognized and considered the risks, but the chance to take a project like this as far as it can be taken can only benefit Indian tribes everywhere.

Taking the Tribal Self-Governance Demonstration Project far enough along so that it can become a permanent program may take some doing in light of the struggle it has taken to get this far.

Because of the concept of tribes taking full responsibility in managing programs, handling funds and dealing with bureaucracies on a government-to-government basis, Allen said he expected resistance to the Tribal Self-Governance Demonstration Project from bureaucrats and the bureaucracy as a whole.

"It's not any worse than I thought it would be. Because of my involvement and experience with tribes, federal agencies and national organizations over the past 10 years, I have become very conscious of the magnitude of the bureaucracy and its underlying mission to justify its survival," he said.

Allen said he well understood the bureaucracy, its entrenchment and its drive to perpetuate itself, as well as many of the key players and their motives.

"I had a fairly good idea about how difficult it would be. We've met a lot of opposition; opposition that has become much more sophisticated once it realized the project was a reality," he said.

Because of strong and visible support for the Self-Governance Project by Senators and Congressmen, and the official position of support by the Administration, the opposition has had to become sophisticated. This was necessary in order for them to avoid the appearance of opposition to tribes' sovereign control over their own affairs, which this project represents, he said.

"They can't openly oppose it, so they have become more clever in how they oppose it," Allen said.

That opposition can be in the form of doing nothing. The report that accompanied S. 1287 by the Senate Select Committee on Indian Affairs, outlines such opposition.

The report says Indian tribes participating in the project, during hearings before the Senate Select Committee on Indian Affairs, testified that over the first three years of the project the BIA provided little or no support to those tribes seeking to negotiate self-governance compacts.

The BIA failed to provide adequate or even useful research and financial data to the tribes that would help them to determine their appropriate share of federal funds needed to manage programs previously operated by the bureau. This inaction by the bureau significantly delayed the project and put the tribes at a disadvantage during completion of the first negotiations on self-governance compacts, the report said.

The Interior Department has since set up an Office of Self-Governance, and performance and efficiency in implementing the project has greatly improved, according to the report.

Allen is undaunted by the sophistication and cleverness of any opposition that might try to impede the progress of the project.

"This project," he said, "is going to happen despite the attempts of people who are trying to subvert it."

"The project will work because it liberalizes what tribes can do with these federal resources, and creates better service flexibility in addressing our own communities' needs," he said.

Allen said his tube already has managed programs in ways that have been beneficial to the community, doing things that it couldn't do previously.

"We are able to define a number of our programs in ways so they can become more effective. For example, we have now established a cultural program under social services, something that we weren't allowed to do previously. That may not mean a lot to some people, but it means a lot in terms of the social value and cultural value to our community," he said.

Another example, he said, is the Housing Improvement Program. Work on a home in the community progressed satisfactorily, but $6,000 more was needed to complete the work "We were able to move money into that project in order to finish the home, where previously we would have been forced to wait for the next funding year," Allen said, adding that with the time needed to restart work after funds were available, it would probably have been 18 months before the home was completed.

"The consolidation of education programs such as higher education, vocational education and adult education is another example. They each have different functions," he said, but they all focus on improving educational opportunities in the community.

The BIA, by allocating small increments of money to each program, constraints the usefulness of the money. The programs under self-governance have become more flexible based on the communities’ needs, Allen said.

All this, of course, means tribes must become better managers of their programs, become good, responsible decision makers about what is best for their communities, become prudent money managers to ensure their money is well spent, and become efficient tribal bureaucracies to provide and deliver better services that the current federal bureaucracy now provides and delivers.

For those tribes involved early on in the self-governance project, Allen sees them evolving and progressing as government entities.

"What I see in IO years is the tribes will have fully developed in their governmental operations; they will be more comprehensive and more complete. Because now we are functioning primarily as contractors, we don't have in place all the components of a complete, operational government the processes of appropriation, the guidelines and regulations in all tribal divisions necessary to manage their resources.

Allen warns though that tribes must be alert so they don't become the bureaucracy they are trying now to replace. "We must make sure we don't trade a bureaucracy for a bureaucracy. Our bureaucracy must be cleaner and will not absorb resources like the federal bureaucracy does now."

"Also in IO years we will have probably made great strides in penetrating the Indian Health Service ... and taken a serious look, if not actually entering into other departments that have Indian programs, such as Department of Labor programs, HUD programs, EDA programs," Allen said.

In addition, Allen said he sees many, many more tribes following the direction of self-governance. In IO years, nationwide, he sees a possible five-fold increase in the number of tribes involved. "I think 150 plus tribes. Out of 500 tribes out there, I see 150 plus. And right now, if it was allowed, you could have 75 to 90 tribes involved in this project," he said.

It would be difficult for tribes not to be interested. The idea is appealing-tribal governments dealing with other governmental entities such as states and the federal government utilizing the government-to-government principle, tribes setting their own agendas and truly managing and controlling their own programs and resources, he said.

"The whole idea of self-governance is very, very exciting, in particular the advancement of the government-to-government relationship.