New Scholarship on Indian Gaming and Native Identity

Matthew King has posted his paper, “Indian Gaming and Tribal Identity,” on SSRN. It was published in the Chicano-Latino Law Review.

Here is the abstract:

The article presents the significant developments in the law governing Indian gaming with a view to assessing gaming’s politicization of Native identity. By addressing the stereotypes and caricatures of Native Americans and tribes that animate legal and political change in the field, the article seeks to demonstrate the essentialism of Indian gaming and the consequent effect of gaming politics on Native identity. Key among the views expressed are that Indian gaming produces real, non-theoretical gains for tribes, which in turn creates new subject positions for Native Americans, and that gaming introduces substantial non-Native influence into the process of tribal government, thereby enacting a social and political cost to tribes. The article covers in separate sections the Indian Gaming Regulatory Act of 1988, Tribal-State compacting in California, and critical responses to Native identity under an identity politics rubric.

News Article about Rising Tribal Enrollment Numbers (Excluding the Disenrollment Tribes, of course)

Here, via Pechanga.

Good news:

The swelling membership of the Tulalip Tribes, based near Everett, Washington, for example, is a point of pride for tribal member and state representative John McCoy, who believes improved health care and an above-average birth rate are at play.

“We’re living longer. Our babies are surviving birth,” says McCoy, adding that more jobs on reservations, led by tribal gaming, is another reason for the growth. “So we have our peoples coming back from other states. They’re coming home because there is an economy.”

At Tulalip, that adds up to a 22 percent growth rate over the past decade. Other tribes around the country have grown even faster.

And not so good:

At the other end of the spectrum are tribes whose enrollments are stagnating, including for example the Colville Confederated Tribes in northeast Washington.

Tribal councilmember Ricky Gabriel has proposed a referendum to relax the blood requirement in the tribal constitution so more children of mixed marriages can enroll.

“I’ve had a lot of very positive [reactions],” he says. “The elders are extremely happy about this. They’re pushing hard. They’re seeing their grandchildren not be able to be enrolled.”

Enrollment in the tribe currently requires a minimum of one-quarter Colville blood. But when you have intermarriage, that bloodline is diluted. It takes just a couple of generations of intermarriage to put the children at risk of being disqualified from membership.

Then the tribal population withers. The proposed referendum would change the rules to count any Indian blood toward the minimum.

American Indian Law Review Sovereignty and Identity Symposium — March 1, 2012 — Agenda

Here is the agenda:

Final Symposium Agenda

Pala Band Disenrolls 15 Percent of Its Membership

Here.

Native America Calling Show on Tribal Disenrollments

Audio here.

Native American Calling Program on Tribal Disenrollments TODAY

Here is a description (the NAC website is here):

Thursday, December 22, 2011– Disenrollment Dividing Tribes
The First Amendment of the U.S. Constitution guarantees American citizens the right to freedom of speech. Recently, seven members of a California tribe were banned from tribal lands for up to 10 years, allegedly for speaking out against the current tribal administration. Should a tribe be able to use its status as a sovereign nation to remove unwanted members from their tribal rolls, with no recourse? Does simply speaking out against your tribal leaders give them the right to kick you out of the tribe? Guests include former chairwoman Jessica Tavares (United Auburn Indian Community).

This will be my second time on the program (the first was about Carcieri).

Commentary on David Treuer NYTs Op/Ed on Indian Blood Quantum

Here is the op/ed. It’s a great one, and well worth reflection.

A note of commentary … from a lawyer. This is a bit of an odd opinion in that I’m not sure what the position is. Treuer never rejects blood quantum as a minimum qualification, though he does rightfully criticize it as a primary marker of tribal membership. He seems to be suggesting that tribal membership is much more than blood quantum, a point upon which we can both agree. He writes:

Indians themselves knew how artificial this category of tribal membership was, and could use it to their own advantage. Before my tribe, the Ojibwe, established the White Earth Reservation in Minnesota in 1867, Chief Bagone-giizhig lobbied to exclude mixed-bloods from the rolls — not because they weren’t Indians but because, most likely, they formed a competing trader class. Bagone-giizhig swore they would rob White Earth blind. That he was right is a bit beside the point — he probably wanted to rob it blind himself.

This is an outstanding point, and brings us back to why and how blood quantum can be used and abused, even by Indian tribes, such as those in California and elsewhere who are disenrolling members for what appears to be reasons based purely on greed (who knows, really?). In fact, any membership/citizenship criteria throughout history has used for bad purposes.

As for the point of the op/ed, Treuer suggests additional markers of what tribes could and should use for tribal membership criteria:

Who is and who isn’t an Indian is a complicated question, but there are many ways to answer it beyond genetics alone. Tribal enrollees could be required to possess some level of fluency in their native language or pass a basic civics test. On my reservation, no schoolchild is asked to read the treaties that shaped our community or required to know about the branches of tribal government or the role of courts and councils. Or tribal membership could be based, in part, on residency, on some period of naturalization inside the original treaty area (some tribes do consider this). Many nations require military service — tribes don’t have armies, but they could require a year of community service.

This is where I’m curious. So, does this replace blood quantum? Or does some blood quantum requirement remain? I’ve rather vaguely proposed a kind of hybrid (here and here), but one that still heavily prioritizes a minimum blood quantum but still allows for non-Indians that meet political criteria to enjoy significant membership benefits. Would Treuer agree that a person with no blood quantum, but who is fluent in Anishinaabemowin, participates in ceremonies, and has lived perhaps his or her whole life on the reservation, qualify for tribal membership? Probably not, and neither would I (absent the political elements I would require), but “why not” is a question for which we as Indians don’t have very good answers.

Regardless, what makes this a great opinion piece is this statement:

Other nations take these things into account, and in doing so they reinforce something we, with our fixation on blood, have forgotten: bending to a common purpose is more important than arising from a common place.

What exactly is the common purpose of an Indian nation? My belief is that the Great Lakes Anishinaabe tribes have arrived at a broad, common understanding for existing, albeit one that is very abstract. It’s more than greed (maybe because there’s only so much money) and it’s more than being “more Indian than thou.” My guess is that the tribes engaging in the ugly disenrollment practices have no common understanding of their purpose. That much seems clear (at least to me).

Treuer’s views are very important to me, because I see a disconnect in what tribal membership means. As a lawyer, I see tribal membership as largely political (that is, you can be a nonmember and still be an Indian). Treuer (and I hate to put words in his mouth) sees tribal membership as less political and more cultural (though with significant political aspects, see the civics test). What is often missing in virtually all discussions about tribal membership in any tribal community is whether one or the other should win out, and how they can be mixed.

Weird thing is, in both my tribe and I believe Treuer’s, it is politically impossible to change the membership criteria anyway.

On Tribal Disenrollments and “Tolerance”

In light of today’s NYTs article on tribal membership, we note the curious conclusion to the article, reprinted here:

Citing a 1978 Supreme Court decision written by Justice Thurgood Marshall, the Bureau of Indian Affairs says that tribal governments have sole authority to determine membership — unless a tribal constitution allows intervention by the government. But such provisions are rare.

And some federal officials say that is exactly how it has always been.

“The tribe has historically had the ability to remove people,” said Kevin Bearquiver, the bureau’s deputy director for the Pacific region. “Tolerance is a European thing brought to the country. We never tolerated things. We turned our back on people.”

We really have no idea of the full context of this statement, but it is, to say the least, curious. Some Indian tribes tolerated multiple sexual orientations, criminal “deviance”, religion, and intermarriage. Many American Indians have no tolerance for lactose and diabetes-inducing glucose.

Do Indian tribes not tolerate outsiders, or those relatives within our midst that disagree with us politically? Hmmm.

I have argued before, and argue again here, that Indian tribes can be intolerant. They have a “right” to do so under our current understanding of federal Indian law. Intolerant tribes are weak sovereigns. They’re about exclusion and typically endorse a narrow view of what sovereignty can mean for a tribe. In that regard, perhaps, tribes are intolerant.

But most tribes, and especially the tribes here in Michigan, are not intolerant. They cooperate with the local non-Indian communities, many of their employees and business partners are non-Indians, and they are good public citizens.

I’m pretty sure that either Indian people were not intolerant before the Europeans came but we will never really know for sure, just as I bet Bearquiver regrets making such a broad generalization (or curses the NYTs for quoting him out of context).

NYTs Article on California Tribal Disenrollments

Here.

Saginaw Chippewa Indian Tribe Changes Tribal Membership Criteria

Here is the news coverage. An excerpt:

A deeply divided Saginaw Chippewa Tribal Council has voted to change the requirements to become a member of the Tribe.

In a 6 to 5 vote, the council voted to tighten the source of the Indian blood quantum requirement for members.

The Tribe’s constitution, adopted in 1986, requires that members be descended from a person on one of three lists compiled in the 19th century, or from a Tribal base role compiled in 1982, plus be at least one-quarter “Indian blood.”

The constitution does not, however, define what is meant by Indian blood.

Early version of the Tribe’s enrollment ordinance also left it largely undefined, and it was interpreted to mean descent from most North American indigenous people. The council then tightened that to define it as descent from a member of any federally recognized Tribe.

The newest version, adopted at a special session of the Tribal Council Oct. 26, specifies that only “Saginaw Chippewa Indian Tribe of Michigan” blood counts toward the one-quarter Indian blood.

“Tribal Council finds that the current definition of ‘Indian blood’ provided in (the enrollment ordinance) is overly broad and inconsistent with the constitution,” said the resolution adopting the revised law. “The Tribal Council finds that blood inherited from the Saginaw Chippewa Indian Tribe of Michigan is the only blood directly relevant to membership under the constitution of the Saginaw Chippewa Indian Tribe.”

Under the old law, for example, a child born to a Saginaw Chippewa Tribal member with one-fourth Indian blood and a full-blooded member of the federally recognized Navajo Nation would qualify for membership. By most reckonings, that child would have five-eighths Indian blood quantum.

Under the new law, that child would not qualify as a Saginaw Chippewa.