Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report (2012)

Below is the uncorrected machine-read text of this chapter, intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text of each book. Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.

Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 13 CHAPTER 1 Literature Review A review of the current and in-progress research on tribal transit practices, coordination, planning, and issues is presented to document the challenges facing tribal transit planning across the country. This review attempts to define those key challenges and lessons learned through the planning process as a means of duplicating those efforts that have worked well and avoiding those that have not. The current literature is a mix of documented research, case studies, and papers authored by those with experience in tribal planning. WORKS REVIEWED There are few resources currently available that document research related specifically to tribal transit. Of those currently available, most of the research fails to document solutions to many of the key identified problems, but does provide information on the needs of the tribes. Research Reports and Documents The literature review for this effort included the research reports described in this section. This report anecdotally identifies the challenges and needs faced by current tribes in providing transit services. “Currently, only 18 of the 562 federally recognized tribes have public transportation systems that receive Section 18 from public monies.” However, this informa- tion is originally from the Community Transportation Association of America and appears to be dated. This research points out several of the key barriers to providing transit services, but again is not aimed at identifying solutions to meet the needs or overcome these barriers. This study provides some applicability to the current project in the form of identifying historical issues, barriers to providing services, and several case studies detailing model transit systems. Native American Transit: Current Practices, Needs, and Barriers (2006) Despite the many barriers to providing transportation in tribal areas, the University of Montana Rural Institute study focuses on successful Tribal Transportation: Barriers and Solutions (2002)

Literature Review Chapter 1 Page 14 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report transportation systems such as the Choctaw Transit Authority, the Navajo Nation, the Chickasaw Nation, and the Blackfeet Tribal Council “who have planned their efforts in advance, coordinated with other agencies, and made use of existing resources.” The study also makes suggestions for implementing tribal transportation programs and how to encourage community participation—including the general public, student leaders on college campuses, and tribal elders and council—right from the initial transportation planning process. The various operating models and needs are documented in a report by the Rural Transit Assistance Program of FTA and Community Transportation Association of America. Additionally, transportation issues ranging from geographical distance barriers to funding and the complexities of local, state, federal, and tribal governments working in cooperation are presented in “American Indian Transportation: Issues and Successful Models.” Information includes several oper- ating models from the Blackfeet Tribe in northwest Montana to the Pueblo of Laguna Shaa’srk’a Transit program in rural New Mexico. American Indian Transportation: Issues and Successful Models (2006) The 1996 National Indian Tribal Transit Report was one of the first national survey initiatives to demonstrate the level of unmet transit need for tribal reservations. The report represents a significant piece of research on current usage of services and projected needs. This research surveyed all native tribes across the United States in regard to needs and services provided. As was made apparent by this report, the “state of tribal transit is not good.” This information provides applicability in terms of providing a background on transit services; however, the information is becoming out-of-date for use in the current research effort. National Indian Tribal Transit Report (1996) The Small Urban and Rural Transit Center (SURTC) completed a research project on Tribal Transit Demographic Need Indicators. This study was designed to help identify non-metropolitan, small urban, and rural Indian tribes and reservations that have the most significant transit needs. Findings from this study indicate, taken as a whole, reservations tend to mirror the nation in terms of the size of various mobility-dependent subgroups. Certain reservations do, however, greatly exceed national averages. For example, 16.3 percent of all US Tribal Transit Demographic Need Indicators (2007)

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 15 residents are age 60 or over. There are, however, 31 reservations where 20 percent or more residents are seniors. Regarding low- income populations, 12 percent of all US residents are considered low income; the average for all Indian reservations is 17.3 percent. Eighteen of the reservations identified in this study have low-income populations of 40 percent or higher.” This is consistent with our experience where we have found very high rates of poverty among tribal members living on reservations. Many of the tribal transit systems interviewed for the current research had started their services to address needs related to low income and lack of access to employment opportunities. The Small Urban and Rural Transit Center (SURTC) completed a research project on “Assessing the Impacts of Rising Fuel Prices on Rural Native Americans.” This study focused on counties that had populations of at least 25 percent Native American and compares data with national averages. These study findings indicate, “Many rural Native American counties were among the hardest hit by rising fuel prices. These impacts result because of the travel distances which are consistent with rural life, relatively low household income levels, and the lack of transportation alternatives. As a result, these households spend up to 29.6% of their income on fuel, compared to metro area averages as low as 2.6% in some parts of the country.” The study also points out that in addition to a high percentage of household income spent on fuel, there are also fewer transportation options for rural residents who may have no option but to depend on private vehicles. Assessing the Impacts of Rising Fuel Prices on Rural Native Americans (2008) The National Cooperative Highway Research Program (NCHRP) Synthesis 366 documents the political and institutional structure of tribes. This is an important source of research which serves to docu- ment how transportation programs function for tribes. This includes information on elements such as the number and ratio of trans- portation staff dedicated to a transportation system. These models can help to determine appropriate organizational structures and staffing requirements for future services. Tribal Transportation Programs (2007)

Literature Review Chapter 1 Page 16 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report The objective of National Cooperative Highway Research Program (NCHRP) Report 690 was to develop a Guidebook to enhance communication, cooperation, and coordination with tribal governments. The project has been completed and the final report has now been published. This research identifies best practices for successful government-government interactions and has also developed a set of tools that are expected to assist in collaboration between transportation agencies and tribal communities. Guidebook for Successful Communication, Cooperation, and Coordination Strategies Between Transportation Agencies and Tribal Communities (2011) A final model of transportation planning that is applicable to this research is that presented in Transportation Research Record 1499 titled “On Native Ground: Collaborative Transportation Planning on Indian Reservations.” This research details a pilot transportation plan for the Cherokee Indian Reservation in North Carolina. This research documents the planning process, from determining goals and objectives to providing technical analysis and building consensus. One of the findings in their 1995 paper is that tribal transportation planners lack the skills, funding, time, and resources to conduct comprehensive transportation planning. On Native Ground: Collaborative Transportation Planning on Indian Reservations (1995) Other Documents A variety or articles and websites were reviewed to obtain infor- mation regarding tribal transit planning. These shorter articles and reports are summarized in this section. One key case study that exemplifies cooperation among tribal govern- ments, local governments, and state governments is the Tribal Trans- portation Working Group established by Caltrans and the San Diego Association of Governments (SANDAG). Efforts began through a consortium of tribes and the ability to coordinate and expand transit services. The development of the Reservation Transportation Authority (RTA) and the coordination with Caltrans and SANDAG included a survey of all the tribes in the county on transportation needs and issues. A Tribal Consortium Enhances Tribal/State Coordination Efforts (web link accessed 2011)

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 17 An interview with the SANDAG Tribal Liaison provided additional information about the cooperative efforts. The Tribal Transportation Working Group reviews all transportation needs, plans, and projects which are related to tribes. Tribes have representation on all of the SANDAG policy boards and committees. The RTA prioritizes projects for the Indian Reservation Roads program. The RTA recently com- pleted a transit needs assessment and has prioritized improvements for bus stops for the two regional transit systems. A key to the success of the cooperative effort was leadership within the Association of Governments and within the tribes. Both groups had leaders committed to establishing a cooperative working relation- ship and taking steps to ensure success. The Turtle Mountain and Rolette County Transit Development Plan presents existing demographic characteristics, transportation-disad- vantaged population characteristics, trip generators, population and economic projections, estimating the unmet transportation needs, recommendations, and implementation steps for both the Turtle Mountain Reservation and the Rolette County area. The study points out “there are significant unmet personal mobility needs on the Turtle Mountain Reservation and other areas in Rolette County.” The county has three public transit operators that provide services, but coordi- nating and expanding these services is essential in meeting the needs of the residents. The study recommends “expanded service hours, new service routes, marketing efforts, and new administrative per- sonnel that will facilitate coordination and management of the new expanded transit system.” The study divides these recommendations into phases, where many components of Phase I were already being implemented during the course of the study and Phases I and II are dependent on increased funding. Turtle Mountain and Rolette County Transit Development Plan (2007) This project provides an excellent example of the strong partnerships that exist between tribes and local governments. The North Central Regional Transit District (NCRTD) is a regional planning organization with representation of all five local tribes. The NCRTD, through a certification process and Intent to Join resolutions, was able to over- come many of the previous barriers in the planning process. Equal representation, regular meetings, unbiased facilitators, and commit- North Central New Mexico: Development of a Regional Transit District (web link accessed 2011)

Literature Review Chapter 1 Page 18 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report ments enabled all groups to collaborate constructively on projects, including highway and park-and-ride projects. In 2003 in Washington State, the Tribal Transportation Planning Organization (TTPO) was established which helped with the coordi- nation and cooperation efforts made between the tribes and the WSDOT. With the development of the TTPO there was improved coordination between tribes and the WSDOT, the Indian road inventory was completed, there was tribal participation in the Washington Statewide Transportation Plan (WTP), and tribal trans- portation needs were identified and tracked through a database. Washington Tribal Transportation Planning Organization (2006) This project provides an example where improved communication between the Arizona Department of Transportation (ADOT) and the Inter Tribal Council of Arizona (ITCA)—an association of 19 member tribes—have led to strong working relationships and development of trust that encourages input from both State DOT staff and ITCA member tribes. Some of the key outcomes of these coordination efforts are dedicated staff positions with ADOT to focus on tribal transportation issues, development of an ITCA transportation work- ing group, ADOT Tribal Strategic Partnering Team and Tribal Liaisons, and tribal input for the statewide long-range transportation planning effort “MoveAZ.” In addition, tribes have learned about opportunities for funding from the state and technical assistance programs. Example: The San Carlos Apache Tribe pursued partici- pation in ADOT’s Small Area Transportation Studies program (currently called the Planning Assistance for Rural Areas [PARA] program) used to develop a transportation plan for their community. Recognizing the need for long-range transportation planning and local and tribal funding constraints, ADOT reduced the local matching funds requirement from 50 percent to 20 percent. The current PARA program is 100 percent funded by ADOT. While the Tribe is the first to take advantage of ADOT’s technical expertise, many other tribes within Arizona are now looking at this alternative. Arizona: Building Technical Capacity for Improved Tribal Consultation and Communication (web link accessed 2011)

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 19 The South Dakota Department of Transportation holds annual meet- ings with tribes to exchange information about needs and upcoming planned projects. Transportation needs on reservations are addressed through the Indian Reservation Roads Transportation Improvement Program (IRR TIP) planning process. At the same time, the State con- ducts a similar planning process to develop the State Transportation Improvement Program (STIP). “Funding and design, construction, and planning for projects within each agency have traditionally been done separately.” South Dakota: State/Tribal Planning Coordination Meetings (web link accessed 2011) While this article addresses projects related to roads, the current research effort showed that there is less cooperation with tribes for transit programs. The Oglala Sioux Tribe reports that they do not pursue funding through the State of South Dakota because of poor working relationships and issues related to sovereignty. The study on California’s Indian Casino Bus Runs are examples of two successful transit programs—Yolo County: Cache Creek Casino Bus Service and the Tulare County: Eagle Mountain Casino Bus Service—where tribal councils with gambling casinos on Indian res- ervations have sponsored reverse commute long-distance bus service as a 24/7 operation to their businesses. The study points out that some of the factors needed to have a cost-effective bus service in low- density areas are “proactive employer participation, employment hubs that form concentrated destinations, coordinated work shifts, and long-distance commuting.” The Cache Creek Casino bus service serves the Cache Creek Indian Casino, which is the county’s second largest employer located in a single building where many passengers are transported from their doorstep to a single work place, which creates route efficiencies. The casino operates on three eight-hour shifts which closely coincide with work shifts, making the service cost- effective. The service is partly privately financed by the Rumsey Band of Wintun Indians and has an employer who aggressively markets the bus service. Moreover, the shuttle operates on a 23-mile long highway with a high crash rate. The Eagle Mountain Casino employee shuttle—similar to the Cache Creek Casino bus service— has a dangerous long-distance commute to the casino. The tribal councils are likely to continue to operate this service to benefit from California’s Indian Casino Bus Runs (2002)

Literature Review Chapter 1 Page 20 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report the productive and reliable work force as a result of the reverse commute bus service. The Stillaguamish Tribe is a small Native American Tribe in northern Washington, located 45 miles from Seattle. The tribe consists of approximately 300 members which are dispersed throughout a large area. “The transportation plan coincided with the development of a new casino, emphasizing the need for reliable transportation for workers.” Several types of service will be implemented to encourage economic development and bring more employers to the area. Some of the service types planned are a fixed-route loop service that will connect at least five tribal facilities, a dial-a-ride service for elderly passengers, and a youth service for after school and health programs. Also, a shuttle service is planned that will help carry employees and customers to the tribe’s casino and other work sites. Making the Employment Connections for the Stillaguamish (2006) Attendance at meetings and regular communication have led the area to form a growing partnership between the Penobscot Indian Nation, the Bangor Area Comprehensive Transportation System (BACTS), and the Federal Highway Administration (FHWA). These efforts have helped the MPO staff understand the complexities and needs of the Penobscot Nation. Additionally, the MPO understands more about how the tribe receives its transportation dollars and how to fund projects. This type of coordination again will be examined to deter- mine the education aspects the MPO gained through the process. Bangor Area, Maine: Technical Assistance and Coordination Between the Tribe and MPO (web link accessed 2011) This document was created with the collaboration of the National Center on Senior Transportation (NCST) and the National Rural Transit Assistance Program (National RTAP), and gives information on funding sources, grant opportunities, and innovative approaches through discussions with Title VI Aging Services and Tribal Transit Programs. This document was prepared with the intention of helping Title VI Aging Services, Tribal Transit Programs, tribal governments, State Department of Transportation, health programs, and human services in continuing to help native elders meet their mobility needs. The document starts with discussing some of the typical transporta- tion providers serving elders on the reservation—namely Title VI Crossing Great Divides: A Guide to Elder Mobility Resources and Solutions in Indian Country (2011)

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 21 Aging Services, Tribal Transportation, Indian Health Service and Community Health Representative (CHR), and Veterans Services. The document includes various funding resources available and examples of tribes that are bringing together different funding sources, looking at alternatives to competitive grants, helping elders reach destinations on and off reservations, creating partnerships, sharing information and resources, and offering older driver safety on reservations to better serve elders. This 2009 edition of Community Transportation magazine was dedicated solely to tribal transit services. The magazine includes best practices, innovations, and ways that tribes have overcome obstacles to create effective transit systems in Indian Country. Some of the tribes that have tribal transit programs featured in this magazine include the Eastern Band of Cherokee Indians, Choctaw Nation, the Menominee Tribe, Confederated Salish-Kootenai Tribe, the Chickasaw Nation, Orut- sararmuit Native Council, Southern Ute Tribe, Oglala Sioux Tribe, and Quinault Indian Nation. Community Transportation Magazine: Nations in Transit (2009) PREVIOUS PLANNING PROJECTS LSC Transportation Consultants and our research team members have been involved in numerous tribal transit projects. An assessment of tribal transit needs and available services has been a part of all transit planning projects for tribal entities. These projects have identi- fied many of the same barriers to services, employment, and quality of life that have been documented in most all other research to date: • Geographic isolation • Low level of education • Lower incomes • Difficulties in accessing funding • Trust issues with non-tribal members Information from previous planning efforts and the experience of the research team have contributed to the research effort. The following tribal transit plans and reports were reviewed and considered in this effort. • Bethel Transit Implementation Assistance • Blackfeet Transit Development Plan

Literature Review Chapter 1 Page 22 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report • Cherokee Transit Operations Plan • Chickaloon Native Village – Valdez Transit Feasibility Study • Chickasaw Transit Operations Plan • Chickasaw Nation Transit Coordination Plan • Crow Nation Technical Assistance Project • Flathead Nation Technical Assistance Project • Fort Peck Transit Development Plan • Fort Belknap Technical Assistance Project • Leech Lake Transit Technical Assistance • Mescalero Apache Technical Assistance • Northern Cheyenne Tribal Technical Assistance • Opportunity Link Regional Transit Plan • Ponca Tribe Transit Plan • Quinault Indian Nation Technical Assistance Project • Rocky Boy’s Transit Feasibility Study • Seminole Nation Transit Plan • Squaxin Island Tribe Technical Assistance APPLICATION TO CURRENT RESEARCH In summarizing the available research and information, there are some common themes which are applicable to this research. These include: • Anecdotal needs of tribes and the key barriers to providing transit services are well documented, but limited information is available on the solutions to meet the needs or overcome these barriers. The surveys, interviews, and site visits conducted as part of this research provided insight into how successful tribal transit programs have overcome those barriers. • Successful transit systems need to focus on planning, coordi- nation with other agencies, making use of existing resources, and encouraging community input right from the initial planning stages. • The body of literature identifies transportation issues that tribes are faced with such as geographical isolation, low level of education, lower incomes, difficulties in accessing funds,

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 23 trust issues with non-tribal members, funding and the com- plexities of local, state, federal, and tribal governments work- ing in cooperation. • Reservations tend to mirror the nation in terms of the size of various mobility-dependent subgroups. However, certain res- ervations greatly exceed national averages for seniors and low-income populations. • Many rural Native American counties were among the hardest hit by rising fuel prices because of the travel distances, which are consistent with rural life, and relatively low household income levels. As a result, households spend a high per- centage of household income on fuel and there are fewer transportation options for rural residents who must depend on private vehicles. • It is important to gather information on the number and ratio of transportation staff dedicated to a transportation system. These models can help to determine appropriate organiza- tional structures and staffing requirements for future services. • Some of the key factors needed for a cost-effective bus service in low-density areas are proactive employer participation, employment hubs that form destinations, coordinated work shifts, and long-distance commuting. • Since there is reluctance on the part of tribal entities to work with non-tribal entities, there is a need to show benefits to both tribal and non-tribal members of the community in coor- dinating existing transit services. • The need for close cooperation and partnerships with the local tribes and other government offices. One great example is the funding for tribal liaisons at the state government level. The research results confirmed this, showing that coordination and partnerships were keys to successful tribal transit programs. • The need to educate local tribes and MPOs, COGs, munici- palities, and state government on the availability of funding and the requirements to receive such funding. • Identifying the needs of the tribe continues to be a challenge, as some tribes are reluctant to make their needs known or to share information about their tribes and local conditions. In the future it may be more difficult for researchers to obtain data from tribes as some tribes are now setting up Inde- pendent Research Review Boards.

Literature Review Chapter 1 Page 24 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report • Collaboration and cooperation are increasing as tribes and local governments realize the importance of building part- nerships. • Some states have taken an initiative to identify local tribal needs and to obtain up-to-date operating information. • Demographics have been collected detailing the needs of local tribes. REFERENCES Boyles, B., et al, “Native American Transit: Current Practices, Needs, and Barriers,” Transportation Research Record 1956, (2006) pp. 103-110. Tribal Transportation: Barriers and Solutions, Brief #5, Research and Training Center on Disabilities in Rural Communities, Rural Institute, University of Montana, Missoula, Montana (2002). http://rtc.ruralinstitute.umt.edu/Indian/Factsheets/transportation.htm Moorehead, P. and R. Holden, National Indian Tribal Transit Report, US Department of Transportation, Federal Transit Administration, Office of Research, Demonstration and Innovation, Project No. FTA-DC-26- 7022-96-1 (1996). Mielke, J. and D. Ripplinger, Tribal Transit Demographic Need Indicators, Small Urban and Rural Transit Center (SURTC), North Dakota State University, Fargo, ND (2007). http://www.ugpti.org/pubs/pdf/DP197.pdf Mielke, J., J. Mattson and D. Ripplinger, Assessing Impacts of Rising Fuel Prices on Rural Native Americans, Small Urban and Rural Transit Center (SURTC), North Dakota State University, Fargo, ND (2008). http://www.ugpti.org/pubs/pdf/SP169.pdf Meck, Stuart, et al, National Cooperative Highway Research Program (NCHRP) Synthesis 366: Tribal Transportation Programs, Transportation Research Board of the National Academies, Washington, DC (2007) 132 pp. http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_syn_366.pdf Taylor, B., et al, “On Native Ground: Collaborative Transportation Planning on Indian Reservations,” Transportation Research Record: Journal of the Transportation Research Board, No. 1499, Transportation Research Board of the National Academies, Washington, DC (1995), pp. 11-18. http://ntl.bts.gov/DOCS/361ONG.html

Chapter 1 Literature Review Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 25 San Diego Area, California: A Tribal Consortium Enhances Tribal/ State Coordination Efforts, http://www.tribalplanning.fhwa.dot.gov/ caseStudy_sanDiego.aspx (as of August 4, 2011). Mielke, J. and G. Hegland, et al, “Turtle Mountain and Rolette County Transit Development Plan,” UGPTI Department Publication No. 176, Small Urban and Rural Transit Center (SURTC), North Dakota State University Fargo (April 2007). North Central New Mexico: Development of a Regional Transit District, http://www.tribalplanning.fhwa.dot.gov/caseStudy_newMexico.aspx (as of August 4, 2011). Washington State Tribal Transportation Planning Organization, May 2006, http://www.wsdot.wa.gov/NR/rdonlyres/2D6EA3FE-3B71-4B07- BA72-6D0FFAD6439D/0/WAStateTribalTransPlanningOrg.pdf (as of August 4, 2011). Arizona: Building Technical Capacity for Improved Tribal Consultation and Communication, http://www.tribalplanning.fhwa.dot.gov/caseStudy_arizona.aspx (as of August 4, 2011). Cervero, R., et al, Specialized Reverse Commute Services in Small County Settings - California’s Indian Casino Bus Runs: Reverse Commuting and Job Access in California: Markets, Needs and Policy Prospects, California Department of Transportation (September 2002) pp. 195-209. Barbre, A., “Tribal Transportation: Making the Employment Con- nections for the Stillaguamish,” Community Transportation. Vol. 24 No. 7 (Fall 2006). Bangor Area, Maine: Technical Assistance and Coordination Between the Tribe and MPO, http://www.tribalplanning.fhwa.dot.gov/caseStudy_bangor.aspx (as of August 4, 2011). South Dakota: State/Tribal Planning Coordination Meetings, http://www.tribalplanning.fhwa.dot.gov/caseStudy_SoDakota.aspx (as of August 4, 2011). Hensley-Quinn, M. and K. Shawn, “American Indian Transportation: Issues and Successful Models,” RTAP National Transit Resource Center, InfoBrief No. 28, Community Transportation Association of America (2006).

Literature Review Chapter 1 Page 26 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report National Cooperative Highway Research Program (NCHRP) Report 690: A Guidebook for Successful Communication, Cooperation, and Coordination Strategies Between Transportation Agencies and Tribal Communities, Transportation Research Board of the National Academies, Washington, DC (2011). “Nations in Transit,” Community Transportation Magazine, Community Transportation Association of America (2009). Crossing Great Divides: A Guide to Elder Mobility Resources and Solutions in Indian Country, National Center on Senior Transportation (NCST) and the National Rural Transit Assistance Program (National RTAP) (2011).