An Examination of Tribal Nation Integration in Homeland Security National Preparedness

1. An Examination of Tribal Nation Integration in Homeland Security National Preparedness National Tribal Assistance Coordination Group Workshop November 5, 2015 “The most important failure was one of imagination.” - The 9/11 Commission Report Dore Bietz, BS Don Reed, Ph.D. Margaret Muhr, MA

2. Perspective – Native American Experience “We know that we can’t turn back the clock…But, understand…It is hard, very hard, to know that the land that was once ours will never ever again be our hunting grounds. We understand that we must change – and we are changing – but remember: it once was our land, our life, and it is hard.” David Courchene, 1969 President, Manitoba Indian Brotherhood “This is the task at hand, to move toward a more perfect union. And when we do, we’ll always be able to say, that the State of Indian Nations is strong, and the future prosperity of America is secure.” Jefferson Keel, 2013 President, National Congress of American Indians “The Nation is integrating tribal partners more systematically into preparedness…Despite these improvements, serious challenges remain for tribal and Federal partners to implement these new policies successfully.” Department of Homeland Security, 2014 National Preparedness Report 2

3. Problem – The Post-9/11 World is Changing Outcome Increased Networked Dependency Outcome Expanded Domains of Conflict Trends • Globalization • Climate Change • Shifting Demographics • Demand and Competition for Natural Resources • Technology Advances • Social Networking Outcome Boundaries Blurred (War vs Crime) Outcome Security Buffers Eliminated (Time, Distance, Borders) Evolving Homeland Security Environment Emerging Actors And Threats No Stakeholder is Immune Outcome Cascading Network Failures Outcome Complex Catastrophes Threats • Human • Ascendant & Rogue States • Transnational Networks • Super-empowered Groups & Individuals • Illicit Trafficking • Homegrown Extremists • Environmental • Natural • Manmade Outcome Expansion of Self-Organizing Human Threats Outcome Disasters More Frequent, Widespread 3

4. Solution – The Post-9/11 Approach National Preparedness Integration • Actions taken to plan, organize, equip, train, and exercise to build and sustain the capabilities necessary to prevent, protect against, mitigate the effects of, respond to, and recover from those threats that pose the greatest risk to the security of the Nation. • Tenets: • Integration into a holistic whole – federal, tribal, state, local, non-government • Shared responsibility of all stakeholders – “all-of-nation” approach • Risk-based, integrated planning – prevention, protection, mitigation, response, recovery • Mutual increased security and reduced vulnerability 4

5. The Gap – Tribal Nation Integration Gap Between Policy and Practice • People (est. 2.9M) – • Historically disenfranchised and impoverished • History of radical activism • Vulnerable to both exploitation and homegrown radicalization • Land (est. 55M acres) – • Isolated and economically depressed • Crossed by state/national critical infrastructure networks • Potential conduits for illegal trafficking – money, drugs, weapons, humans Social & Economic Factors 25 Nations, 165 Miles of International Border / Dams, Water, Electric, Transportation AIM, Alcatraz, Trail of Broken Tears, Pine Ridge Youth Gangs, Republic of Lakota / Mazacoin, Wayuu Islamic Autonomy • Tribal nation integration countered by proliferation and rewriting of court decisions, legislative acts, executive orders and government policies • Issue is uncertain, complex, and polarizing nature (Roe, 1994) • Narratives of stakeholders offer better understanding 5

6. Study – Collecting the Stories Narrative Policy Analysis • To understand the impacts of national preparedness policies on federally-recognized tribal nations, as revealed in stakeholder narratives • Government (conventional) narrative: • Federal Emergency Management Agency (FEMA) – lead role in national preparedness policy development and implementation • Bureau of Indian Affairs (BIA) – role in administering tribal national disaster preparedness • U.S. Northern Command (USNORTHCOM) – unique military support role in national preparedness • Tribal nation (counter) narrative: • Federally-recognized tribal nations – unique status in relation to the federalist model for national preparedness • Nongovernmental organizations – work on behalf of tribal nations for national preparedness (Tribal Emergency Management Association (iTEMA), National Tribal Emergency Management Council (NTEMC) • Metanarrative for recommendations on how to recast policy on tribal nation integration into national preparedness • 21 Study Participants • Subject Matter Authority • Open-ended, Standardized Questions iTEMA NTEMC 6

7. Study – The Research Questions • Primary • How have tribal nations experienced the effects of national preparedness policy in homeland security since 9/11? • Sub-questions • What have tribal nations experienced in national preparedness, and how have they experienced it, as a result of homeland security policies implemented since 9/11? • What have been tribal nation responses (stories to be told) to these experiences? • What meanings (turning points) do stakeholders ascribe to these experiences? • What are the implications of these experiences? 7

8. Results – Government Narrative What the Government Participants Said Cultural differences and lack of understanding exists between government and tribal nations Need for greater resourcing and inclusion of tribal nations “Pan Indian” view exists in government Pro forma approaches No single tribal voice Complexity of threats Disaster thresholds too high for tribal nations Tribal nations 10-12 years behind nation Sheer number and wide diversity of tribal nations Government policies not always effective Tribal liaison a collateral duty Impact of SRIA good Yes on tribal nation EMAC Split on tribal nation ESF 8

9. Results – Tribal Nation Narrative What the Tribal Nation Participants Said Disenfranchisement, special trust relationship “The playing field is not level” Greater focus on threats, tribal nations not immune Need for resources Preparedness is a luxury Historical grievances, broken treaties Impact of SRIA good Lack of full-time emergency managers “One-size-fits-all” will not work Greater inclusion = “seat at the table” “Don’t tell tribal nations what to do, ask them what they need” Mutual respect and understanding Do not “treat us like children” “To plan for evil is to invite evil” Yes on tribal nation EMAC Have to compete with states Partnerships not always effective Disaster thresholds not appropriate Yes on tribal nation ESF 9

10. Conclusions – Metanarrative Recommendations • Future studies consider larger study population • Further studies of the nature and quality of tribal nation preparedness partnerships at the federal, state, and local levels • More in-depth studies of narrative policy analysis themes (uncertainty, complexity, polarization) and tribal nation themes (people, resources, approaches) • Explore legislative / policy means to give tribal nations “greater seat at the table,” e.g., Council of Governors, greater liaison representation • Explore greater policy clarification of federal department roles regarding tribal nations; minimize conflicts, duplication of efforts, overwhelming tribal nations • Explore legislative means to give tribal nation tax base equivalents; reduce reliance on enterprise revenue streams or government grants for preparedness • Explore legislative means to provide alternative flexible disaster relief thresholds for tribal nations; e.g., per-capita based approaches, or regionalization of disaster declarations • Explore legislative / policy means to establish a national tribal nation EMAC • Explore policy means to establish greater, more effective integration of tribal nation needs and interests in the ESFs in the NRF 10

11. Conclusions – Social Change Implications • Give voice to tribal nations in national preparedness • The nation has a moral obligation to fulfill its commitment to tribal nations under the terms of the social contract • Government has a practical imperative to fully integrate tribal nations into the collective effort for national preparedness • The two are intertwined; threats and disasters are not limited by boundaries; gaps are vulnerable to exploitation by hostile actors, cascading network effects of disasters • Tribal nation preparedness interests are synonymous with national preparedness interests 11

12. An Examination of Tribal Nation Integration in Homeland Security National Preparedness National Tribal Assistance Coordination Group Workshop November 5, 2015 “The most important failure was one of imagination.” - The 9/11 Commission Report Dore Bietz, BS Don Reed, Ph.D. Margaret Muhr, MA

13. Contact Donald (Don) J. Reed Email: donald.j.reed.civ@mail.mil Phone: 719-556-8227 Study: http://scholarworks.waldenu.edu/dissertations/598/ 13

14. Solution – The Post-9/11 Approach National Preparedness Integration • Preparedness = “actions taken to plan, organize, equip, train, and exercise to build and sustain the capabilities necessary to prevent, protect against, mitigate the effects of, respond to, and recover from those threats that pose the greatest risk to the security of the Nation.” Tenets: • Integration into a holistic whole – federal, tribal, state, local, non-government • Shared responsibility of all stakeholders – “all-of-nation” approach • Risk-based, integrated planning – prevention, protection, mitigation, response, recovery • Mutual increased security and reduced vulnerability 14

15. Results – Participant Identified Issues Emergent themes: 15

16. Results – Researcher Established Themes The 19 emergent themes from step one were coded to pre-established narrative themes 16

17. Results – Policy Themes Uncertainty (knowledge of what matters) Complexity (intricacy/interdependence with other issues) Polarization (concentration of groups around extremes) Policy Analysis Themes Combined Narratives Government Narrative Tribal Nation Narrative 17

18. Results – Tribal Themes Tribal Nation Themes People (stakeholders) Resources (materials/funding) Approaches (policy) Government Narrative Tribal Nation Narrative Combined Narratives 18