IMPLEMENTATION OF INDIAN GAMING REGULATORY ACT OVERSIGHT HEARING BEFORE THE SUBCOl\Lv.1:ITTEE ON NATIVE A.'1:ERICAN AFFAIRS OF THE COMMITTEE ON NATURAL RESOURCES HOUSE OF REPRESENTATIVES ONE HUNDRED THIRD CONGRESS FIRST SESSION ON IMPLEMENTATION OF PUBLIC LAW 100-497, THE INDIAN GAMING REGULATORY ACT OF 1988 HEARING HELD IN WASHINGTON, DC APRIL 2, 1993 Serial No. 103-17, Part I Printed for the use of the Committee on Natural Resources U.S. GOVERNMENT PRINTING OFFICE 76-496 WAl'.lfflNGTON : 1994 For sale by the U.S. Government Printing Office Superintendent of Documents, Congressional Sales Office, Washington, DC 20402 ISBN 0-16-043648-6 COMMITTEE ON NATURAL RESOURCES GEORGE MILLER, California, Chairman PHILIP R. SHARP, Indiana DON YOUNG, Alaska, EDWARD J. MARKEY, Massachusetts Ranking Republican Member AUSTIN J. MURPHY, Pennsylvania JAMES V. HANSEN, Utah NICK JOE RAHALL 11, West Virginia BARBARA F. VUCANOVICH, Nevada BRUCE F. VENTO, Minnesota ELTON GALLEGLY, California PAT WILLIAMS, Montana ROBERT F. SMITH, Oregon RON DE LUGO, Virgin Islands CRAIG THOMAS, Wyoming SAM GEJDENSON, Connecticut JOHN J. DUNCAN, JR., Tennessee RICHARD H. LEHMAN, California JOEL HEFLEY, Colorado BILL RICHARDSON, New Mexico JOHN T. DOOLITTLE, California PETER A. DEFAZIO, Oregon WAYNE ALLARD, Colorado ENI F.H. FALEOMAVAEGA, American RICHARD H. BAKER, Louisiana Samoa KEN CALVERT, California TIM JOHNSON, South Dakota SCOTT McINNIS, Colorado LARRY LAROCCO, Idaho RICHARD W. POMBO, California NEIL ABERCROMBIE, Hawaii JAY DICKEY, Arkansas CALVIN M. DOOLEY, Califor;nia CARLOS ROMERO-BARCELO, Puerto Rico KARAN ENGLISH, Arizona KAREN SHEPHERD, Utah NATHAN DEAL, Georgia MAURICE D. HINCHEY, New York ROBERT A. UNDERWOOD, Guam HOWARD L. BERMAN, California LANE EVANS, Illinois PATSY T. MINK, Hawaii THOMAS J. BARLOW III, Kentucky THOMAS M. BARRETT, Wisconsin JOHN LAWRENCE, Staff Director RICHARD MELTZER, General Counsel DANIEL VAL KISH, Republican Staff Director SUBCOMMI'ITEE ON NATIVE AMERICAN AFFAIRS BILL RICHARDSON, New Mexico, Chairman PAT WILLIAMS, Montana CRAIG THOMAS, Wyoming, SAM GEJDENSON, Connecticut Ranking Republican Member ENI. F.H. FALEOMAVAEGA, American DON YOUNG, Alaska Samoa RICHARD H. BAKER, Louisiana TIM JOHNSON, South Dakota KEN CALVERT, California NEIL ABERCROMBIE, Hawaii KARAN ENGLISH, Arizona TADD JOHNSON, Staff Director MARIE HOWARD, Professional Staff Member BARBARA RoBLES, Clerk ' RICHARD HOUGHTON, Republican Counsel on Native American Affairs (II) CONTENTS Page Hearing held: April 2, 1993 ................................................................................... 1 Summary of the Indian Gaming Regulatory Act ................................................. 4 Member statements: Hon. Bill Richardson ....................................................................................... 1 Hon. Craig Thomas ......................................................................................... 8 9 u~:: ~~J::i~.:::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: 13 Witness statements: Panel consisting of: Hon. Roy Romer, Governor, State of Colorado, and Chairman, Na- tional Governors' Association ............................................................... 15 Hon. Jack Reed, a Representative in Congress from the State of Rhode Island ......................................................................................... 23 Hon. Bruce Sundlun, Governor, State of Rhode Island ........................ 26 Hon. Ben Nighthorse Campbell, a Senator in Congress from the State of Colorado ................................................................................... 30 Hon. Joan Finney, Governor, State of Kansas ....................................... 35 Panel consisting of: Hon. James L. Oberstar, a Representative in Congress from the State of Minnesota ................................................................................ 43 Hon. Esteban E. Torres, a Representative in Congress from the State of California ........................................................................................... 52 Hon. Peter Hoagland, a Representative in Congress from the State of Nebraska ........................................................................................... 74 Hon. Ed Pastor, a Representative in Congress from the State of Arizona .................................................................................................. 85 Hon. Ronald K. Machtley, a Representative in Congress from the State of Rhode Island ........................................................................... 89 Panel consisting of: Eddie F. Brown, Assistant Secretary for Indian Affairs, Department of the Interior, accompanied by Hilda Manuel, Staff Director, In- Antn~~::~~~=:!,<>:a~on~·Iiidi~··a~~-·c~~;;i~~: 97 accom1,>anied by Joel Frank, Sr., Seminole Tribe of Florida, and Commissioner, National Indian Gaming Commission, and Jana :~!ia1;;di~~eGa~;c~:m1~e~~~~:.. ~~ .. ~.~.~.~~~~.~~.~~: .. ~~: 103 Panel consisting of: Deborah Doxtator, vice chairperson, Oneida Tribe of Indians of Wis- consin ..................................................................................................... 115 James M. Murray, Ph.D., community economic development special- ist, University of Wisconsin, Cooperative Extension ......................... 131 Myron Ellis, chairman, Minnesota Indian Gaming Association ........... 214 Charles Keechi, chairman, National Indian Gaming Association ....... .. 234 Panel consisting of: Hon. Jacob Viarrial, Governor, Pueblo of Pojaque, New Mexico ......... .. 278 Norma Manzano, chairperson, San Manuel Band of Mission Indians, San Bernardino, California, accompanied by Jerry Levine, Esq ....... 285 Daniel J. Tucker, chairperson, Sycuan Band of Mission Indians, El Cajon, California, accompanied by George Forman, Esq .................. 297 Kevin Gover, Esq., on behalf of the Pueblo ofTesuque, New Mexico .. 312 Panel consisting of: Caleb Shields, chairman, Assiniboine and Sioux Tribes of the Fort Peck Indian Reservation, accompanied by Mary Pavel, Esq 318 (III) IV Witness statements-Continued Panel consisting of-Continued Page Mary Ann Antone, chairwoman, Legislative Counsel, Tohono O'Odham Nation, accompanied by (Mr.) Patrice Eime, councilman .. 327 John Kieffer, vice chairman, Spokane Tribe of Indians, accompanied Material ~6~ <;;~~h!~g·~~··rro~·: ................................................... 335 Hon. Karan English: Prepared statement of Hon. Ronnie Lupe, Tribal Chairman, White Mountain Apache Tribe ................................................. 10 Hon. Esteban E. Torres: 1. "With Casino Profits, Indian Tribes Thrive," The New York Times, 53 2. ~;~81 ~ti!!t~r'lio~:··n;lrl;i·K .. i"i;"~;-;,e:.. c~;.. &~~ Committee on Indian Affairs, before the March 19, 1993 meeting wi~ repre~ntati~e~ . of Indian tribal governments engaged in Indian ganung activities .................................................................. .. 59 James M. Murray, University of Wisconsin: "The Economic Impact of ~,,erican Indian Gaming on the Government of the State of Wiscon- sin ................................................................................................................ 254 APPENDIX APRIL 2, 1993 Additional material submitted for the hearing record from: Hon. Bruce King, Governor, State of New Mexico: Prepared statement..... 353 Confederated Tribes of the Colville Reservation: Prepared statement in- cluding attachments ..................................................................................... 357 IMPLEMENTATION OF P.L. 100-497, THE INDIAN GAMING REGULATORY ACT OF 1988 FRIDAY, APRIL 2, 1993 HOUSE OF REPRESENTATIVES, COMMITTEE ON NATURAL RESOURCES, SUBCOMMITTEE ON NATIVE AMERICAN AFFAIRS, Washington, DC. The subcommittee met, pursuant to call, at 9:00 a.m. in Room 1100, Longworth House Office Building, Hon. Bill Richardson [chairman of the subcommittee] presiding. STATEMENT OF HON. BILL RICHARDSON Mr. RICHARDSON. The hearing will come to order. This is the first in a series of oversight hearings on the imple­ mentation of the Indian Gaming Regulatory Act. Today we will hear testimony from Indian tribes, the Interior Department, the National Indian Gaming Commission, Members of Congress, and Governors of States. Before we begin, I want to stress the seriousness with which this subcommittee approaches this topic. I believe this to be one of the most significant matters we will deal with in Indian affairs during this 103rd Congress. · I also am compelled to mention that the oversight function is one of the most important activities of the Congress. With a new sub­ committee such as this one, oversight is the key to understanding issues, educating Members and framing the debate. We have deliberately chosen not to consider any specific legisla­ tive proposals in these hearings, but rather to keep an open mind with regard to all comments, suggestions and information pre­ sented to us. Public policy cannot be properly made unless the con­ cerns of all interested parties are aired and considered. There are some fundamental points about Indian affairs that I must make at the outset. First, I have been in the Congress for ten years, and I believe that Indian affairs is the one area of the Fed­ eral policy in which we have consistently failed in our obligations. Ninety-three thousand Indian people are homeless or living in sub­ standard housing. Indian adolescents have a suicide attempt rate four times higher than other ethnic groups. Tuberculosis, diabetes, and fetal