<DOC> [108 Senate Hearings] [From the U.S. Government Printing Office via GPO Access] [DOCID: f:87740.wais] S. Hrg. 108-122 INDIAN RESERVATIONS ROAD PROGRAM ======================================================================= HEARING BEFORE THE COMMITTEE ON INDIAN AFFAIRS UNITED STATES SENATE ONE HUNDRED EIGHTH CONGRESS FIRST SESSION ON S. 281, S. 725, S. 1122, S. 1165 PROPOSALS TO AMEND THE INDIAN RESERVATIONS ROAD PROGRAM __________ JUNE 4, 2003 WASHINGTON, DC 87-740 U.S. GOVERNMENT PRINTING OFFICE WASHINGTON : 2003 ____________________________________________________________________________ For Sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; (202) 512ÿ091800 Fax: (202) 512ÿ092250 Mail: Stop SSOP, Washington, DC 20402ÿ090001 COMMITTEE ON INDIAN AFFAIRS BEN NIGHTHORSE CAMPBELL, Colorado, Chairman DANIEL K. INOUYE, Hawaii, Vice Chairman JOHN McCAIN, Arizona, KENT CONRAD, North Dakota PETE V. DOMENICI, New Mexico HARRY REID, Nevada CRAIG THOMAS, Wyoming DANIEL K. AKAKA, Hawaii ORRIN G. HATCH, Utah BYRON L. DORGAN, North Dakota JAMES M. INHOFE, Oklahoma TIM JOHNSON, South Dakota GORDON SMITH, Oregon MARIA CANTWELL, Washington LISA MURKOWSKI, Alaska Paul Moorehead, Majority Staff Director/Chief Counsel Patricia M. Zell, Minority Staff Director/Chief Counsel (ii) C O N T E N T S ---------- Page S. 281, S. 725, S. 1122, and S. 1165, text of.................... 3 Statements: Bingamin, Hon. Jeff, U.S. Senator from New Mexico............ 79 Bullard, Loretta, president, Kawerak, Inc., Nome, AK......... 101 Buzzard, Harley, director of roads, Cherokee Nation Tribal Council.................................................... 92 Campbell, Hon. Ben Nighthorse, U.S. Senator from Colorado, chairman, Committee on Indian Affairs...................... 1 Domenici, Hon. Pete V., U.S. Senator from New Mexico......... 80 Garrigan, James, transportation planner, Red Lake Band of Chippewa Indians of Minnesota, Red Lake, MN................ 98 Gishi, Leroy, chief, Division of Transportation, BIA......... 82 Hamilton, Arthur E., associate administrator for Federal Lands Highway, Federal Highway Administration, Department of Transportation, Washington, DC.......................... 81 Johnson, Hon. Tim, U.S. Senator from South Dakota............ 77 Martin, Jackie Bob, chairman, Resources Committee, Cherokee Nation Tribal Council...................................... 92 Maryboy, Mark, chairman, Navajo Transportation and Community Development Committee, Navajo Nation Council............... 90 Milonovich, Richard, chairman, Agua Caliente Band of Cahuilla, Palm Springs, CA................................. 95 Shirley, Jr., Joe, president, Navajo Nation, Window Rock, AZ. 90 Smith, Chadwick, chairman, Cherokee Nation, Tahlequah, OK.... 92 Thomas, Hon. Craig, U.S. Senator from Wyoming................ 78 Virden, Terry, director, BIA, Department of the Interior, Washington, DC............................................. 82 Appendix Prepared statements: Bullard, Loretta (with attachment)........................... 111 Garrigan, James (with attachment)............................ 123 Hamilton, Arthur E........................................... 140 Inter-Tribal Council of the Five Civilized Tribes............ 153 Maryboy, Mark................................................ 109 Milonovich, Richard (with attachment)........................ 156 Ockert, general manager, Reservation Transportation Authority 173 Shirley, Jr., Joe (with attachment).......................... 175 Smith, Chadwick (with attachments)........................... 185 Virden, Terry................................................ 196 Additional material submitted for the record: Hecker, JayEtta, director, Physical Infrastructure Issues, GAO, letter to Hon. Frank R. Wolf, House of Representatives 201 Johnson, Anthony D., chairman, Nez Perce Tribal Executive Committee, letter.......................................... 212 National Tribal Leadership Paper on Tribal Transportation Policy..................................................... 168 PROPOSALS TO AMEND THE INDIAN RESERVATIONS ROAD PROGRAM: S. 281, INDIAN TRIBAL SURFACE TRANSPORTATION IMPROVEMENT ACT OF 2003; S. 725 AND S. 1122, TRIBAL TRANSPORTATION PROGRAM IMPROVEMENT ACT OF 2003; S. 1165, AMERICAN INDIAN RESERVATION TRANSPORTATION IMPROVEMENT PROGRAM ACT ---------- WEDNESDAY, JUNE 4, 2003 U.S. Senate, Committee on Indian Affairs, Washington, DC. The Committee met, pursuant to notice, at 10:05 a.m. in room 485, Senate Russell Building, Hon. Ben Nighthorse Campbell (chairman of the committee) presiding. Present: Senators Campbell, Johnson, Thomas, Domenici, and Murkowski. STATEMENT OF HON. BEN NIGHTHORSE CAMPBELL, U.S. SENATOR FROM COLORADO, CHAIRMAN, COMMITTEE ON INDIAN AFFAIRS The Chairman. The Committee on Indian Affairs will be in session. Senator Inouye will be along shortly, but we will go ahead and get started. Welcome to the committee's hearing on various legislative proposals to reauthorize the Indian Reservation Roads program; 60 percent of roads in the IRR system remain unpaved, which has obvious impacts on the tribes' ability to improve their economies. Rural Indian communities having paved roads often means the difference between life and death in terms of fire and police protection, ambulance service, and our growing concern with homeland security. As of this past Monday, four Indian roads bills are pending before the committee: S. 281, which I introduced, S. 725, which Senator Bingaman introduced, S. 1122, by Senator Johnson, and S. 1165, by Senator Domenici. Today we will hear from Federal and tribal witnesses to determine how best to reform the IRR program. I will tell the members that it is my intention to report a bill by the end of June as part of the larger TEA-21 reauthorization which will be on the Senate floor in July. [Text of S. 281, S. 725, S. 1122, and S. 1165 follow:] <GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT> The Chairman. With that, Senator Johnson, did you have any opening comments before we start? Senator Johnson. Yes; just briefly, Mr. Chairman. Thank you for holding this important hearing today. I appreciate your leadership on this. I have a full statement I would like to submit for the record. The Chairman. Without objection, it will be included in the record. STATEMENT OF HON. TIM JOHNSON, U.S. SENATOR FROM SOUTH DAKOTA Senator Johnson. I want to thank you as well as Senator Bingaman for work in this important area. I also want to express appreciation to the NCAI and my own Standing Rock Sioux Tribe for their leadership on tribal transportation issues. The tribes, in conjunction with the NCAI put a lot of time and effort into developing ideas that can be incorporated into legislation. It is important that these ideas were developed by the very people who have to implement these programs to deal with transportation challenges every day. My bill, S. 1122, is the result of the work of the tribes in the NCAI. It is a comprehensive effort. I know that you, Mr. Chairman, and Senator Bingaman, have put a great deal of effort into transportation bills. This has been designed to be a comprehensive and ambitious effort. I think it is important that we get all the issues out on the table. Just very quickly, S. 1122, in addition to obviously increasing the amount of funding for the IRR funding, beefs up the Tribal Transportation Safety Program, providing more funds for purposes such as widening shoulders, and more guardrails. Second, it assures that tribes can apply for scenic byways status through the Federal system. Third, it assures that tribes can derive direct funding from the Federal Government rather than having the programs be implemented through the States. Fourth, it takes a hard look at the maintenance issue. It makes no sense to me that we should put significant expenditures into the building of roads if we are not going to provide enough funding to keep those roads properly maintained. Fifth, it explores the idea of having a high-ranking person at DOT who can assist the tribes in their navigation through the system. Over the past 2 weeks I have spent a great deal of time traveling around South Dakota, including travels throughout our Indian reservations, including the Pine Ridge Reservation. Frankly, the conditions of some of these roads is horrible. It is a public safety menace. It is a detriment to economic development. It is simply its own fare to tribal people. The Federal Government has fallen down on its treaty and trust obligations. It has enormous consequences in Indian country. Mr. Chairman, I thank you for this hearing. I look forward to the testimony. I hope that as we go on through this year that we can merge a lot of these ideas together in a way that will be constructive and which will significantly enhance the quality of transportation and the safety of transportation in Indian country. The Chairman. Thank you. I agree with you. I think there are important provisions in each of the four bills. Hopefully we will be able to merge those and come out with a composite that is in the best interest of Indian people. Senator Thomas. STATEMENT OF CRAIG THOMAS, U.S. SENATOR FROM WYOMING Senator Thomas. Thank you, Mr. Chairman. I, too, appreciate your having this hearing. Certainly it is very important. Indian country is part of the concerns that we have about highways. We need to have more transportation support there. I have an unique involvement here in that I am on the Finance Committee that has jurisdiction over the taxes paid. I am also on the Committee on Environment and Public Works, which is reauthorizing TEA-21. I understand the importance of that investment. I am interested in hearing about Senator Bingaman's bill. I do want to caution my fellow members that we need to remember that TEA-21 includes a number of very important programs. We must be careful that we are not disproportionate of one over another. We have significant increases in the Reservation Road Program. Where is that funding coming from? Are we going to increase taxes? Are we going to reduce State highway funding? If we double that, we are going to have to find some other additional sources. I did a little checking. I think certainly it is important that we do this. Reservation roads have some Indian Reservation Road Program money in there as well as the Department of Transportation, the county road funding, and the State gas tax. So we need to look at the balance of how we do this. It is going to be a challenge. There is a great deal of discussion about the donors and the recipients in the gas tax proposition. There are some opportunities to raise the gas tax. Most people are not in favor of that. I guess what we are looking for is a fair distribution of these dollars that are available. I think this is an excellent hearing. I am glad you are having it. Thank you. The Chairman. Thank you. Senator Domenici, did you have any comments before we start? Senator Domenici. Mr. Chairman, I was here either as a member or as a witness, whichever the Chair prefers, with reference to the highway funding bill, which I have introduced, along with four or five other Senators. Thank you. The Chairman. With that, we will go ahead and start. Senator Bingaman, welcome to the Committee. Senator Domenici, do you also want to testify on S. 1165? Senator Domenici. No; I have a separate bill. The Chairman. Okay. We will start with Senator Bingaman. STATEMENT OF HON. JEFF BINGAMAN, U.S. SENATOR FROM NEW MEXICO Senator Bingaman. Mr. Chairman, let me join with all the other members in thanking you for holding the hearing on this important issue. As you pointed out, there is a bill that you have introduced, S. 281. Senator Domenici's bill is S. 1165 that he has introduced. Senators Johnson and Daschle have introduced S. 1122. I have introduced S. 725. There are many bills before the committee for consideration. I think we are fortunate today that President Joe Shirley of the Navajo Nation is here as well as Mark Maryboy of the Tribal Council, to testify. The Navajo Nation is the largest tribe with the largest land area. Their voice in this issue is extremely important. The point that Senator Thomas made about trying to decide how to allocate the funds that are available for highways is exactly the right issue for us to concentrate on. In that regard, there is one statistic I want to cite to the Committee because I think it is important. The IRR program is currently authorized for $275 million per year. This level represents less than 1 percent of the annual Federal funding for road construction and rehabilitation. However, the 50,000 miles in the IRR system represent about 5 percent of the Nation's 957,000 miles of Federal-aid highways. In my view, if you are looking at a fair allocation, we are not providing that today with the current authorized level. We need to increase that. The main trust of the bill I have introduced, along with Senators Feinstein and Leahy is to increase that authorization and to do so in a way that will allow some of the real problems in this road construction to be dealt with. The BIA now estimates the backlog in transportation needs at almost $10 billion, up from $6.8 billion just 4 years ago. I was disappointed, as I am sure all of you were, that in the appropriations process this year we reduced the level of funding available for the Indian Reservation Roads Program by $40 million, from $280 million last year to about $240 million this year. Last month there were 15 Senators, some of you included, who signed a letter to the Appropriations Committee requesting a $350-million appropriation for the program in this upcoming year, in 2004. Funding for tribal transportation programs needs to be one of our top priorities as we go into this reauthorization of TEA-21. The bills that you have before you, I think, give you a very good basis upon which to report out constructive legislation on this subject. As I understand it, the tribes' single highest priority transportation issue is adequate funding. The goal of the bill that I introduced is to improve basic transportation and promote the independence and self- determination of Indian people. It is essential that Indian country be heard in this reauthorizing process. I think this hearing is a major step in that direction. I appreciate the chance to speak briefly. I know you have many witnesses here who will give you great insight into the needs and the justification for some of these bills. Thank you again, Mr. Chairman. The Chairman. Thank you, Senator Bingaman. Senator Domenici, would you like to say a few words about S. 1165? STATEMENT OF HON. PETE V. DOMENICI, U.S. SENATOR FROM NEW MEXICO Senator Domenici. Thank you, Mr. Chairman. It has been 30 years or more since we started this set- aside out of the Highway Trust Fund. Before that, it was just hit or miss, and get what we could. I was very pleased to be part of the very first bill with Senator Patrick Moynihan. Each time since we have had an opportunity to introduce a bill. Each time we have substantially increased the amount, knowing full well, the increased needs. The bill that I have introduced, which you have cosponsored along with three other Senators, including Senator Bingaman, I believe is the minimum amount that we should proceed with. It increases the amount of the request to $330 million in the first year and a $30-million increase each year thereafter. In addition to that, however, it does two or three things that are very much needed. First of all, it is important that the moneys that are set aside for the building of bridges, that the Indian people be allowed to use that money for planning and engineering purposes. This bill gives them that authority. Otherwise, we find a hiatus; the money is there for the building but the money is not there for the planning and the design. In addition, we increase the contract authority substantially. That, too, is very much needed and was requested specifically in negotiations with the Navajo Nation. All in all, Mr. Chairman, I believe that S. 1165, the American Indian Reservation Transportation Improvement Act, is an excellent bill. I have more detail regarding it in a statement and a summary. It also creates for the first time an Indian reservation rural transit program. It authorizes $20 million each year for that purpose. That is the program as compared with the highways. I think it is very important that we start by having every entity in our country that manages and has roads to have a program surrounding it with professionals. The creation of that would be very important. Thank you for letting me spend just a few moments. Senator Inouye has joined me in my bill, as have you. I thank him and you for that. I urge not only that you move expeditiously to pick the best bill, but that we collectively pursue with some degree of vigor the committee of jurisdiction, and thereafter as suggested by Senator Bingaman, that we pursue the appropriators so that we do not have our Indian people expecting a high level, to find that the appropriations process has reduced it substantially. Since we have begun this rather significant set-aside process under the name and nomenclature of an Indian set-aside for roads, we have made significant gains, especially in Navajo lands where it is quite obvious that the open spaces require roads. When you finally see them built, it is quite obvious that they are links that are heavily used for many purposes by the Navajo people to improve their daily lives. I thank you for that, Mr. Chairman. It is a pleasure to be with the President of the Navajo Nation. I wish him the best in his new job as leader of the Navajo people. Thank you very much. The Chairman. Thank you. I look forward to working with you, Senator Bingaman, and Senator Johnson in trying to make a composite bill that takes the best features of all of them. Hopefully we can move it through as quickly as we can. Thank you, Senator Bingaman. We will now begin with our first panel. That will be Arthur Hamilton, Associate Administrator for Federal Lands Highway, Federal Highway Administration, Department of Transportation, Washington, DC. We will also hear from Terry Virden, Director, Bureau of Indian Affairs [BIA] Department of the Interior, Washington, DC. Your complete written statements will be included in the record. If you want to abbreviate your statement, you are welcome to do so. We will go ahead and start with Mr. Hamilton since I introduced him first. STATEMENT OF ARTHUR E. HAMILTON, ASSOCIATE ADMINISTRATOR FOR FEDERAL LANDS HIGHWAY, FEDERAL HIGHWAY ADMINISTRATION, DEPARTMENT OF TRANSPORTATION, WASHINGTON, DC Mr. Hamilton. Thank you, Mr. Chairman. I am honored to testify on two legislative proposals for amending the Indian Reservation Road Program now before this committee. I would also like to highlight some provisions in the Administration's bill, SAFETEA, that address tribal transportation needs. Secretary Mineta has described transportation as the critical tool for economic development and quality of life in a community. The Administration is committed to providing safe and efficient transportation, for both residents and visitors, for access to and within Indian lands and Alaska Native villages, while protecting the environment and cultural resources. We want to work with this committee, with tribes, and with the BIA to improve the Indian Reservation Road Program, and to increase tribal participation in the overall Federal aid program. SAFETEA proposes a funding increase for the IRR program of almost 25 percent over the TEA-21 authorized level, nearly $2 billion total over a 6-year period. SAFETEA would provide the IRR program with obligation authority equal to contract authority, as also proposed by Senators Campbell and Bingaman. We believe that with full OA, the funding increase proposed in SAFETEA can make a substantial contribution toward meeting IRR program needs, and is sustainable based on current estimates of Highway Trust Fund revenues. The Administration's proposal has also built in new opportunities for tribes to access Federal funding beyond the IRR program, including training and technical assistance. Tribes must be involved at all stages of the transportation planning process. Our proposed planning capability initiative should facilitate this involvement. One of its objectives is to enhance tribal capacity to conduct joint transportation planning. Increased tribal participation in metropolitan and statewide planning for the Federal-Aid Program can lead to leveraging funds between tribes and States on projects of mutual benefit. As you are aware, safety is a major problem on IRR roads the fatality rate on Indian reservation roads is four times higher than the national average. Secretary Mineta made improving safety and reducing highway fatalities the focus of the Department's reauthorization proposal, and overall funding for highway safety would more than double under SAFETEA. Included would be a new dedicated safety funding category under the Federal Lands Highway Program, funded at $40 million per year with 15 percent of the funds allocated to BIA for Indian Reservation Roads. The funds would be in addition to the 402 program funds which are also available. A proposed new core Federal-aid program, the Highway Safety Improvement Program, can be especially important for increasing the State focus on tribal transportation facilities. The new program calls for State strategic goals that address all roadways in the State and focus on the areas of greatest need. To take full advantage of the funding flexibilities in this new program, a State would have to develop, through a collaborative process, a data-based strategic highway safety plan. In States with extensive Indian lands, and high crash statistics on Indian Reservation Roads, tribes or their representatives would be considered major stakeholders in developing the plan. SAFETEA also proposes a major consolidation of highway safety grant programs, including incentives for safety belt use and prevention of impaired driving. BIA would be eligible for grants. The National Highway Traffic Safety Administration will continue partnering with the Indian Health Service to develop culturally specific programs to address impaired drivers and occupant protection, and to expand tribal participation in upcoming safety belt and impaired driving initiatives. In conclusion, while the Administration has concerns about certain aspects of these two bills, primarily related to our responsibility for stewardship of highway trust fund dollars, we support many of the provisions and have similar proposals in SAFETEA. I would like to work with this Committee, our tribal partners, and the BIA on ways to better meet tribal transportation needs. Mr. Chairman, again thank you for the opportunity to testify. I would be happy to answer questions you or other members may have. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statement of Mr. Hamilton appears in appendix.] The Chairman. Thank you. Mr. Virden. STATEMENT OF TERRY VIRDEN, DIRECTOR, BUREAU OF INDIAN AFFAIRS, DEPARTMENT OF THE INTERIOR, WASHINGTON, DC, ACCOMPANIED BY LEROY GISHI, CHIEF, DIVISION OF TRANSPORTATION Mr. Virden. Mr. Chairman and members of the committee, I am pleased to be with you today to provide the Department's views on S. 281 and S. 725. Since enactment of TEA-21, the Federal investment in the BIAs' Indian Reservation Roads [IRR] Program has exceeded $1.6 billion. This has allowed us to improve over 900 miles of road and replace or rehabilitate 76 bridges, during this period. Despite these efforts, as has been mentioned previously, there is still a great need for improving the transportation system in Indian country. Improved transportation systems are vital to improving public safety and increasing economic opportunities in Indian and Alaska Native communities. The Department supports the objectives of S. 281 to improve roads on Indian reservations, but we do have some concerns regarding certain provisions. We would like to work with the committee in suggesting some clarifications in the bill. We strongly support the provision eliminating the impact of the obligation limitation. The Administration's bill, SAFETEA, would provide obligation authority equal to contract authority so that IRR funds authorized can be obligated. Under TEA-21, the Indian Reservation Roads Program received a proportional reduction of obligation limitations for new funds using the same ratio as that applied to States, resulting in a partial loss of authorized funds. Enactment of this provision would make available as much as an 11-percent increase in transportation-related services to Indian country. We support the efforts to increase tribal involvement in the transportation programs, but have some concerns with the language authorizing the demonstration project. First, the legislative language does not explicitly state that the Department of Transportation is eligible to contract with tribes pursuant to the Indian Self-Determination and Education Assistance Act, Public Law 93-638. This is necessary for the successful implementation of this provision. Second, the demonstration project does not clarify which agency would be the owner agency. Currently, the BIA is the facility owner and responsible agency for approximately 25,000 miles of the 60,000 miles in the Indian Reservation Roads system. If the committee moves forward with these provisions, we ask that you clarify which agency would be responsible for health and safety, and liability for any roads, bridges, or other related projects built under this project. As proposed, this bill would change the law to cap the BIA to no more than 6 percent for administration and oversight of both non-project-related and project-related management and oversight. This would have the effect of drastically reducing resources available for direct service tribes. Under the current law, the BIA has the responsibility for oversight of the entire IRR program as well as certain specific responsibilities regarding individual road projects. The BIA has consistently used less than the 6 percent allowed to perform non-contractible, non-project-related functions, such as budget formulation, review of legislative proposals, and processing transportation improvement programs [TIP's] for the submission to Federal Highways Administration, preparing annual funding agreements, defending contract dispute actions, and providing technical assistance to tribes. This also includes project-related administration oversight for health and safety for direct service Public Law 93-638 tribes that depend on the BIA for road projects. Non-project-related work includes non-contractible activities such as the final inspection of completed road projects, processing payments to contracting tribes, reviewing environmental, archeological, and historic preservation activities relating to contracted road projects; processing rights-of-way acquisitions, preparation for road construction, reviewing plans, specifications and estimates, and conducting engineering and design activities where applicable. In fiscal year 1999, the BIA obligated $43 million for project-related functions for all tribes. Of this amount, 75 percent was obligated for direct-service tribes for engineering design, environmental compliance, historic preservation compliance, acquisition of rights-of-way, and assuring compliance with construction standards as required by title 23. Of the 887 Indian Reservation Roads projects requiring engineering design, 660, or approximately 75 percent, were designed by the BIA on behalf of direct service tribes. The proposed changes in the law in S. 281 would require the BIA to perform a similar number of engineering and design projects for direct service tribes with drastically reduced funding. The proposed change is not necessary because the BIA uses the 6 percent program management funds in a manner that ensures that all of the BIA's inherent Federal functions are completed, and that direct service tribes are serviced from their project funds. Thus, it is only appropriate for the BIA to use project funds for oversight of Self-Determination Tribal Indian Reservation Road projects and to carryout BIA's responsibilities. As the General Accounting Office noted in its letter to this committee dated August 14, 2000, the BIA uses the funds consistent with the law and, in fact, the BIA, over the last 3 years, has responsibly limited the amount of funding for non-project program management to an amount less than the 6 percent. Currently the BIA reviews and approves plans, specifications, and estimates for Indian Reservation Roads projects to ensure that construction of the projects will not jeopardize health and safety. This is not uncommon in road construction for several reasons. First, title 23 requires that approved plans and specifications are necessary before any project authority may proceed to construction. The facility owner has the responsibility to approve plans and specifications for the projects within its jurisdiction. The concern of the BIA has been that approval authority for the 37,000 miles of roads and bridges that are not the responsibility of the Secretary should be coordinated with those respective facility owners--county, State, or other local governments. In the last year the BIA has worked with tribes on individual contracts and agreements to provide tribal approval of plans, specifications, and estimates [PS&ES] on BIA roads. The BIA believes that this provision is unnecessary as changes within the soon-to-be-published final Indian Reservation Roads regulations will help clarify the tribes' roles, and provide tribes under Public Law 93-638 contracts and agreements the ability to approve PS&Es. We support tribal eligibility for seat belt safety and intoxicated driver safety programs as proposed in the Administration's bill. SAFETEA calls for the consolidation of these programs under the National Highway Traffic Safety Administration's Section 402 program. The BIA will work with this committee and the Secretary of Transportation on implementing any such provisions that support the success of these safety-related measures. S. 281 establishes the Native American Commercial Driving, Training, and Technical Assistance Program for tribal colleges. The intent of this program is to encourage economic opportunities for tribal members. In addition, this training program would be conducted by tribal colleges and universities and provide them with value- added educational programs for their students. We support additional training programs for Native Americans. We have some of the same concerns for the demonstration projects in S. 725 as I mentioned in S. 281. S. 725 creates a tribal-specific transportation safety grant program that emphasizes intoxicated driver safety, the promotion of increased seat belt use, and the elimination of hazardous locations. The new program established under S. 725 would supplement existing safety grant programs in the Indian Highway Safety Program under section. 402 of Title 23. S. 725 establishes an Indian reservation rural transit program designed to provide competitive grants to Indian tribes to establish rural transit programs on reservations or other land under the jurisdiction of the tribes. The Department supports the development of rural transit programs in Indian and Alaska Native communities. However, we feel the provisions in SAFETEA better address tribal needs in the current economic environment. With that, I thank you for allowing me to testify today on behalf of the Department. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statement of Mr. Virden appears in appendix.] The Chairman. Thank you. I have several questions. I am sure Senator Johnson has questions, too. I was disappointed to note the Administration's proposal, SAFETEA, that the incentive grants in the areas of seat belts and intoxicated drivers are being combined in the National Highway Traffic Safety Administration. Mr. Hamilton, why is the BIA is the only eligible grantee for this funding and Indian tribes are not available for direct funding? Mr. Hamilton. I do not have that information with me today, Senator. I would like to provide an answer to you for the record. The Chairman. I wish you would. We give direct funding to the States and to many other agencies within State governments. I do not know why the tribes should not be eligible for direct funding. If you would give us that information, I would appreciate it. Mr. Hamilton. Certainly. [Material to be supplied follows:] The current State highway safety grants process under the Transportation Equity Act for the 21st Century (TEA-21) is complex and time-consuming, consisting of eight programs with varying qualification and administrative requirements. Therefore, the Administration has proposed restructuring and consolidating the highway safety grant programs. The new approach simplifies grant administration by first, reducing the number of grant programs, and second, streamlining the process to administer and to qualify for grant funds. All TEA-21 highway safety grant resources, including section 157 (``Safety incentive grants for use of seat belts'') and section 163 (``Safety incentives to prevent operation of motor vehicles by intoxicated drivers'') grant programs would be consolidated within the National Highway Traffic Safety Administration (NHTSA). States predominantly have used these flexible funds for highway safety purposes. Moving these funds into the NHTSA account will streamline grant management. Section 402(i) of Title 23, United States Code, designates the Secretary of the Interior as the coordinating entity for the purpose of application of the highway safety program for Indian tribes. The Secretary of the Interior has delegated this authority to the Bureau of Indian Affairs [BIA] to administer the federally funded highway safety program on behalf of the tribes. Indian tribes are eligible to apply for grants in the highway safety program through application to the BIA, just as local governmental entities participate through their State Highway Safety Offices. This process has served the program well, as the BIA contracts with individual Indian tribes meeting specific criteria. The BIA serves in the capacity of a govenor's highway safety representative in managing, providing technical assistance, and monitoring the section 402 highway safety program. Under the Safe, Accountable, Flexible, and Efficient Transportation Equity Act of 2003 [SAFETEA], the BIA would administer the consolidated highway safety grants as they have grants under TEA-21 and other previous authorizations. The Chairman. How does a tribal road-building company, or an engineering firm, or a surveying firm, get into the procurement list to be considered for road building contracts? Mr. Hamilton. Under the Federal Lands Highways Program, we procure design services and construction services. We basically solicit through the bidding process, using the low bidding process. We open the door for any company within the area that the project is located. The Chairman. One of the problems that I think we have had with contracting and getting into the bidding process with tribally-owned firms is a lot of times they do not know they are eligible, or they do not know the exact process of how to get in. Do you have a system in place to notify them, educate them, and help them? Mr. Hamilton. Yes; we do. I was not aware that there had been some concerns. We do have a system in place where we can work through the Tribal Transportation Assistance [TTAP] centers to help provide that information to the tribes. The Chairman. Your testimony mentions that the demonstration project in S. 281 would duplicate DOT technical assistance programs. Mr. Virden also mentioned something about the demonstration project also. Do you know how many Native Americans are trained through the DOT program? Is any of the training located on tribal lands? Mr. Virden, maybe you might know the answer to that. Mr. Virden. Yes; please bear with me for 1 minute. There is one tribal college participating. That would be the United Tribes Technical College in Bismarck, ND. As far as the number of students that are currently in the program, I do not know. We can provide that at a later date. The Chairman. What kind of training do they go through at United Tribes; do you know? Mr. Virden. It is training for certification for commercial driving. The Chairman. The American Trucking Association tells me that normally they are short about 300,000 drivers every year. I would think that that program needs to be expanded considerably. In fact, I had a bill in to do something like that, giving the Department of Labor grants to schools that would start driver training programs. It did not go anywhere last year, but it is now part of S. 281. You might want to look at the bill. I think it is a bill that could be of great help. Mr. Hamilton, does the Administration's proposal have any programs in which tribes have direct access to Federal funding, like the States do? Mr. Hamilton. No; we do not, Senator. We do not have any programs right now that have direct funding to the tribes. The Chairman. Why is that? Mr. Hamilton. Normally, title 23 requires that the funds either be sent through the State Department of Transportation or, within the Federal Highway Program, the funds are allocated to the BIA. The Chairman. Mr. Virden, as I understand it, about 6 percent of IRR funding is used for administrative expenses. In some areas that is considered high. Also, as I understand it, 6 percent is set statutorily. Could you explain why the administrative expenses are over 6 percent? Mr. Virden. Historically, as I mentioned, in the last three years we have stayed under that 6 percent. The Chairman. Your information is different than mine. Mr. Virden. There are some legitimate costs for administration which really should not be tied to projects. They are not related. Examples of some of these expenditures are as follows: These figures are from last year, the Tribal Transportation Assistance Centers, $980,000; Council of Tribal Advisors for the Lewis and Clark Bicentennial; inspection of the BIA bridges; regulatory negotiations with tribes; and supporting the National Tourism Conference for Native Americans. The Chairman. All right. In 1998 I had an amendment to TEA-21 that made it clear that all funds--not some funds--are available to Indian tribes for contracting under the Indian Self-Determination Act. Do you know how many contracts are in existence? Which tribes have those contracts for highway construction? Mr. Virden. I do not know how many exactly. I do have Mr. Leroy Gishi, my Division Chief for the Division of Transportation with me today. He may have that figure. The Chairman. Please come up to the table, Mr. Gishi, and give the committee those numbers, if you have them. Mr. Gishi. Mr. Chairman, just to clarify, the amount of funds associated with the IRR programs in the past, consistently over the last three to 4 years, has been about 45 to 47 percent for self-determination contracts or self- governance agreements. I say the amount of funding, because the bulk of contracting or compacting tribes does not represent 47 percent of those tribes. There are a number of them that have a significant amount of program dollars based on the formula that is initiated and that is based on the need. If you look at it from that standpoint, that represents anywhere from about 50 to 70 tribes that are contracting work under the new self-determination act. The Chairman. Thank you. I have one last question before I ask Senator Johnson for his questions. I understand the Bureau keeps a list of road consultants who are pre-qualified and get most of the contracts to build the roads in Indian country. Of the list of pre-qualified people, are any of them Indian-owned firms? Mr. Gishi. Yes; as a matter of fact, the primary procedure in the procurement and the contracting process that the BIA uses in the Indian Reservation Roads Program is to, first of all, provide the right of first-refusal to tribes to give them the opportunity to contract the work if, in fact, that is what they want to do. Some do portions of it. Some just do the construction. Some do the design or the historic preservation portions. After that, we follow the Buy-Indian Act. We advertise and seek competition among Indian contractors. If there are no Indian contractors available, then we advertise in the open market for all contractors. The Chairman. Very good. Thank you for your testimony. I have no further questions. Senator Johnson, do you have any questions? Senator Johnson. Just briefly. Thank you, Mr. Chairman. Thank you to the panel. Much of my concern, frankly, is going to come down simply to the overall level of funding and the allocations involved here. Clearly, as I think Senator Bingaman very ably noted, the amount of funding available for roads in Indian country is far less than what the miles suggest ought to be case. We need to address that. I am particularly distressed of an actual decline in funding available for the IRR program this year. This is an utterly unacceptable circumstance. Let me ask Mr. Hamilton. One of the issues--and Chairman Campbell has touched on this as well--that does not get a lot of attention because it is so unique to Indian country, is the whole question of the tribe's preference of working directly with the Federal Government rather than to have to go to their respective States for highway funds, whether it be maintenance, safety, scenic byway, transit funding, and so on. The tribes, as they remind me on a regular basis--and rightfully so--are sovereign entities. The tribes are not administrative subunits of States at all. My legislation does address that issue. I would hope that you would work with us to see that we can perfect a better mechanism to implement that. This is a matter of great practical and philosophical import to our sovereign tribes. It is long overdue that we finally correct this and quit treating them as though they were a county, or some sort of administrative subset. They are not. We need to work with you to see if we can correct that. Mr. Hamilton. We would be happy to work with you, Senator. Right now, title 23 and other program legislation requires that funds this be sent through the State Highway Departments. We work jointly with BIA to administer the Federal Lands program. But otherwise we have no choice, because of title 23, other than to work directly with State DOTs. Senator Johnson. We need to address that. I am hopeful that as we put together legislation, we can do that. The circumstances of the tribes are widely varying in their size and their ability to work with the Federal Government and with the States. But the relationships between the tribes and the States is highly variable as well. In some places it is fairly good, and in other places, it is not. In all circumstances, they are not entities of the State. I hope working with you and with the Chairman, we can finally begin to deal with the tribes on their proper status. Mr. Hamilton. One of the things that we are proud of is our transportation planning capacity program under SAFETEA, which we think will provide an opportunity for the tribes to be able to work a lot closer with State DOTs in the planning process, which is really needed. They need to be at the table during the Statewide planning, or the metropolitan planning process, which would open up more avenues of funding for the tribes. Senator Johnson. Cooperation and coordination is one thing. We are all for that. But tribes should not have to go hat-in- hand to the State as though it were up to the State to choose unilaterally about these projects. That is the only thing I wanted to share with you. Mr. Chairman, I have a conflicting obligation, as is so often the case. I am going to have to excuse myself. This is a very valuable hearing. I thank you for chairing this. I look forward to working very closely with you and our colleagues to make some very serious progress on Indian road circumstances in the Nation this year. The Chairman. We might be able to work with the EPW through Senators Inhofe and Jeffords to change Title 23. I think there is some confusion. Often people think that the Bureau is the tribes. It is not. If we really believe in self-determination, we have to give more access to the tribes to deal directly with the Federal Government. Senator Johnson. While a lot of the IRR money comes through the BIA, there is a lot of money that just flat out goes to the various States. The Chairman. It does not filter down. Senator Johnson. I think that we need to readdress that. The Chairman. Thank you. We thank this panel very much for being here. Our next panel will be Joe Shirley, president, of the Navajo Nation; Chad Smith, chairman, the Cherokee Nation; Richard Milonovich, chairman, Agua Caliente Band of Cahuilla; James Garrigan, transportation planner, Red Lake Band of Chippewa Indians of Minnesota; and Loretta Bullard, executive director, Kawerak. While you are being seated, we are going to take a 5-minute break. [Recess taken.] The Chairman. The committee will come to order. As with the last panel, if you would like to submit your complete written testimony, it will be included in the record. You are welcome to abbreviate your testimony. We will start in the order that I mentioned your name. We will start with Joe Shirley, Jr., president of the Navajo Nation. STATEMENT OF JOE SHIRLEY, Jr., PRESIDENT, THE NAVAJO NATION, WINDOW ROCK, AZ, ACCOMPANIED BY MARK MARYBOY, CHAIRMAN, NAVAJO TRANSPORTATION AND COMMUNITY DEVELOPMENT COMMITTEE, THE NAVAJO NATION COUNCIL Mr. Shirley. Thank you, Chairman Campbell. My name is Joe Shirley, Jr. I am president of the Navajo Nation. Chairman Campbell, Vice Chairman Inouye, and members of the committee, it is my honor to appear before you on behalf of the Navajo people to address your proposals to amend the Indian Reservation Roads Program. I am joined by Mr. Maryboy, chairman of the Transportation and Community Development Committee of the Navajo Nation Council whose recommendations are reflected in legislation before you. The issue before you today is how to build travel transportation systems that will enable Indian people to go from Third World conditions, which tend to squash human potential to First World conditions, which tend to make it easier for the best within us to become a reality. Transportation is essential to the basic quality of life and economic development of tribal communities. There are approximately 9,826 miles of public roads on the Navajo Nation which itself is about the size of West Virginia. While West Virginia has 18,000 miles of paved roads, the Navajo Nation has only 2,000 miles of paved roads; 78 percent of our roads are dirt. On a regular basis, businesses explore the possibility of locating to the Navajo Nation, but they do not once they realize the lack of paved roads. Bad roads in Indian country not only mean the difference between poverty and prosperity, but they also mean the difference between life and death. Health clinics on the Navajo Nation are few and far between. Tribal members, including the elderly, the children, and the disabled, often must travel hundreds of miles to receive specialized care. Dirt roads, deteriorating paved roads, and treacherous bridges, make their long journeys that much more difficult. It is no coincidence that automobile accidents are the number one cause of death among young American Indians. The annual fatality rate on Indian reservation roads is more than four times the national average. Our children's education is also threatened by dirt roads that become so bad that they are impassable to school buses. As you know, the BIA school buses alone travel over 15 million miles a year to transport Indian children on what is often a one-lane dirt road, lacking any basic safety features such as shoulders or guard rails. I want to read two letters from two Navajo children who attend the Pine Springs Bureau of Indian Affairs Elementary School within the Navajo Nation in Pine Springs, AZ. Their words say more than I ever could about how the 12- mile dirt road, which is the only way to access their school, impacts their education. Dear Roads Task Committee. Hi. My name is Jonathan. I go to school at Pine Springs School. I want the road graded because some people drive slow because the road is too bumpy and rough because there are too much rocks sticking out of the ground. Please pave the road north of Pine Spring Road. Please, because it is bumpy, too. Please do not let the kids get hurt on the bus. The kids get hurt because the kids get cut on the bus. That is really dangerous for the kids. The milk and grocery truck comes up here every week. They do not like the rough road, too. Let our safety come first. Kids come first above all. We have a real nice school and we enjoy it very much. Jonathan Smith. The second letter, Mr. Chairman, reads as follows: Dear Roads Task Committee. Hello. My name is Marcario Betoney. I go to school at Pine Springs School. I hate the road up here because we get flat tires and the buses get broken down. Then the buses do not come right on time when school starts. When people drive really fast the rocks jump up and hit the windshield. Then the windshield cracks. Then they have to take the car and truck to the shop to get it fixed. People get into car crashes when they are going too fast on the bumps that are on the road. Sometimes we have name games. Sometimes we have home games over here. Parents do not like to come to the games because of this road. My family do not like the road because of the rocks and bumps. Our trucks and cars are getting rocks into the tires. Then it gets flat. Can you please fix the road for us. Please? Thank you. Marcario Betoney. Indian reservation roads are not an Indian problem. The Indian Reservation Roads Program impacts all people--tribal and non-tribal alike. Tribal lands provide vitally needed access within and between States, and support a multitude of economic interests, including tourism, agriculture, energy production, manufacturing, mineral extraction, and timber harvesting. Indian reservation roads represent 2.65 percent of all Federal lands highways, yet receive less than 1 percent of the Federal surface transportation budget. In fact, last year tribes received even less than the year before. In fiscal year 2003, the Indian Reservation Roads Program was slashed $40 million below the 2002 level, while States received an increase. I respectfully urge this committee to ensure that equity actually means something in the reauthorization of the Transportation Equity Act of the 21st century. Thank you. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statements of Mr. Shirley and Mr. Maryboy appear in appendix.] Mr. Shirley. Attached to my written testimony, Chairman Campbell and members of the committee, are some photos for your perusal. It is very typical of what roads are like on Navajo land. The Chairman. Thank you. Mr. Shirley. Chairman Campbell, can you give my council delegate, Mark Maryboy, some time? Maybe you can just make his written testimony part of the record. The Chairman. His testimony is included with yours and has been made a part of the record. As you know, I live down in the Four Corners area near you. I travel on some of those roads myself when I go see friends and cross the Navajo Reservation. I know what most people on the committee do not know is that during the winter time that some of your roads are impassable. The difficulty is that people who have to leave their cars on a paved road miles and miles away from where they live. In fact, sometimes the winters get so bad we have had to provide air drops of food for children because people cannot get into the community to be able to get food. I am very aware of that. I was looking at the pictures you provided for the committee. This one looks like the bottom of a bridge with rotting planking. Are these structures old oil drilling pipes that are holding that bridge up? Mr. Shirley. I think those are metal pipes. They are all rusted and corroded. It is very dangerous. The Chairman. It also looks to be. We also have written testimony by Mr. Maryboy. Mark, years ago were you a county commissioner in Utah? Mr. Maryboy. Yes. The Chairman. That was you. I met you years ago. I just have not seen you for a long time. I am glad you are still active in public policy with the tribe. You did a fine job as a county commissioner, too, by the way. Mr. Maryboy. Thank you. I have served as a county commissioner for the last 16 years. I retired last year. I remember you and I were riding broncos in Dorado, CO. The Chairman. That is right. We were both chasing the horses. That has been a long time ago. I am glad to see you here. I am glad you have been active all these years. [Laughter.] We will now go to Chairman Smith. STATEMENT OF HON. CHADWICK SMITH, CHAIRMAN, THE CHEROKEE NATION, TAHLEQUAH, OK, ACCOMPANIED BY JACKIE BOB MARTIN, CHAIRMAN, RESOURCES COMMITTEE, CHEROKEE NATION TRIBAL COUNCIL, AND HARLEY BUZZARD, DIRECTOR OF ROADS, CHEROKEE NATION TRIBAL COUNCIL Mr. Smith. Good morning, Mr. Chairman, and members of the committee. My name is Chad Smith. I am the principal chief of the Cherokee Nation. Joining me are Jackie Bob Martin, chairman of the Resources Committee of the Cherokee Nation Tribal Council; and Harley Buzzard, director of our Roads Program. I testify today in strong support of the tribally-developed transportation program improvements reflected in the bill before this committee, not only for the Cherokee Nation but also for the 500,000 tribal citizens of the Cherokee, Seminole Creek, Choctaw, and Chickasaw Nations. I am pleased to see the common sense ideas, innovative proposals, and the increased funding in your bill, Mr. Chairman, as well as those in Senator Bingaman's bill, and in Senator Johnson's bill. My brief remarks will focus on four issues I believe are critical to any tribal transportation reauthorization bill: Economic development, safety, funding equity, and program efficiency. The Cherokee Nation has more than 237,000 tribal citizens, nearly one-half of whom live within our 7,0900 square mile jurisdictional area, which is basically Northeastern Oklahoma. According to the 2000 Census, our jurisdictional area is home to 462,000 American citizens who benefit from the jobs, infrastructure improvements, and business opportunities that the Cherokee Nation brings to Northeastern Oklahoma. It is very clear that roads benefit Indians and non-Indians alike. The 2000 Census Report indicates that 13 percent of the families and 16 percent of the individuals live below the poverty line in our area. This reauthorization provides Congress an unique opportunity to jump-start the economy in Eastern Oklahoma. I have seen the economic health, safety, and societal benefits that come when our transportation systems are improved and our infrastructures properly maintained. As you know, every dollar invested in transportation infrastructure yields a sixfold increase in the Nation's economy, generating many new and desperately needed jobs. This investment is especially important for the tribes. By making a modest financial investment and other common sense improvements to Federal transportation laws, Congress can help tribes turn areas that are too often pockets of poverty into engines of economic growth. We applaud the Administration's reauthorization proposal which focuses on transportation safety and security. We also support your proposal, Mr. Chairman, and Senator Bingaman's, and Senator Johnson's, to provide tribes with direct access to Federal transportation safety funds. The statistics on traffic injuries and fatalities on tribal roadways are truly appalling. This committee's own report in 2000 concluded that the unsafe conditions on many IRR roads and bridges have led to an annual fatality rate on the IRR system of more than four times that of the national average. While statistics are important to make a point, they cannot adequately capture the grief of a Cherokee citizen who lost a loved one in a preventable traffic accident a few years ago. Gerald Blackbear, a full blood Cherokee, lost his life in a car crash on the Fairview/Eucha Bridge in the northern part of the Cherokee Nation. This bridge is situated on a roadway which provides access to health clinics, shopping, and employment, and is also a bus route for the local school. I have a photograph of that actual bridge. I would ask permission to pass this picture to the committee. The Chairman. Please do. Mr. Smith. Here is the original one-lane bridge with no guard rails and no safety to it. He drove off in the rain. It was several hours before his body was recovered. You see to the right of that photograph a bridge that has now been completed under the IRR program. This shows you the success and the critical need for this endeavor. With the committee's permission, I will circulate these. The bridge was a small one-lane roadway that had dangerous turns and no guard rails. While the Nation has received funding since to replace the bridge, it was soon enough to prevent the unnecessary death of Gerald Blackbear. We can and must do better. Mr. Chairman, we all realize the budget restraints facing Congress, but the Indian Reservation Roads Program has been under-funded for far too long. Tribes need and deserve funding equity. Two statistics prove my point. I believe the committee is well aware of these. Although the IRR system comprises 2.63 percent of the Federal aid system, it receives less than 1 percent of the surface highway funding out of the National Highway Trust Fund. According to the BIA and transportation experts, the current IRR construction backlog is between $11 and $25 billion. The Cherokee Nation faces similar challenges in budgeting scarce resources but we have determined roads and infrastructure to be a high priority when allocating substantial tribal funds to supplement our IRR allocation. Of course, Congress should increase the funding for IRR and reinstate the program's exemption from the obligation limitation deduction. For States, the obligation limitation is a temporary delay in full funding. But for tribes, obligation limitation is a permanent loss which removes $35 million annually. That is about 13 percent of the IRR Federal budget loss. Restoring the exemption from the obligation limitation is a no-cost way of increasing annual funding to the IRR program. Unlike the States who ultimately get the obligation limitation back, the tribes obligation limitation is basically forfeited. In the alternative, we would request the obligation limitation funds to be directed back to the tribes and not to the State. In terms of program efficiency, when the Federal aid highway system was developed in the mid-1950's, Federal Indian policy supported termination of the trust responsibility and elimination of Federal recognition for tribal governments. During that period, Federal transportation laws enabled money, intended for the tribal transportation systems, to be funneled to the State and BIA. While the termination era has long since passed, the funding mechanism for tribal transportation systems remains the same. The result is an inefficient program that cost Federal, State, and tribal officials countless hours and many millions of dollars in needless transaction costs. Moreover, this funding structure does not support tribal self-determination or self-governance. I would have disagree with my colleague, Mr. Virden, about the 6 percent BIA Administration set-aside, we believe it is unnecessary for self-governance tribes. For example, when we design a road, we have a professional engineer design that road. He stamps the plans. Those plans are submitted to a second professional engineer under our guidelines who approves those plans. Then, under the current system, those plans are again submitted to the BIA who have their own professional engineer to stamp those plans a third time. Under the demonstration program with the Red Lake Band of Chippewa Indians have demonstrated that that is unnecessary duplicity of bureaucracy. The professional engineers' reputation in that disciple provides insurance of quality work. As one of the first tribes in the country to bring self- governance principles to the IRR program, we have seen first hand the positive benefits that can be brought to our people in our communities. We recognize that funding is limited, and request that we be given the tools to maximize those limited resources. Simply, elimination of the exemption for the tribes' obligation limitation and elimination of the BIA Administration's 6 percent cost, would mean 20 percent more funding for actual construction of roads. We are hopeful that you and members of this committee will work closely with Senator Inhofe to develop a tribal transportation reauthorization bill that has the broadest support of all possible tribal governments. Finally, Mr. Chairman, when you introduced your bill in 2000, you stated for Indian communities an efficient Federal roads financing construction system holds the key to healthier economies and higher standards of living for their members. I could not agree with you more. I urge the committee to adopt your proposals as well as those of Senator Johnson and Senator Bingaman. Thank you, Mr. Chairman, and members of the committee, for the opportunity to testify in strong support of this important legislation. I would be happy to answer any of your questions. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statement of Mr. Smith appears in appendix.] The Chairman. Thank you. We will now move to Chairman Milonovich. Before you start, Richard, I would like to tell you that Senator Allen and I really enjoyed our visit with you last week in your home lands. He still talks about the terrific interaction you have with the local community and county government. He has told me several times he wants to come back and go for a horseback ride up in that beautiful canyon you showed up with that tribal park. You can look forward to both of us coming back when we have the time. You can go ahead and proceed. STATEMENT OF RICHARD MILONOVICH, CHAIRMAN, AGUA CALIENTE BAND OF CAHUILLA, PALM SPRINGS, CA Mr. Milonovich. Thank you, sir. I appreciate that. Mr. Chairman, thank you for the opportunity to share our views with you that highlight the solutions to the transportation challenges that are faced by Indian tribes and the members of the Agua Caliente Band Indians on a reservation headed in Palm Springs, CA. Our transportation issues and challenges, however, are largely a result of our existing checkerboard land ownership patterns in the growth of these communities around our reservation. Today my testimony will address three subjects: First, our innovative proposal for tribal road bonding; second, the current Indian Reservation Road Program, including proposed modifications of that program; and, third, specific road projects that we are working on independently and within the city of Palm Springs. First, we have put forward an innovative financing proposal for tribal roads. our tribal roads bonding proposal supplements the current IRR program. It draws on the growing financial sophistication and where-with-all of many tribes. Our proposal works like this. When a tribe or tribes cooperatively, wish to build a road to service their reservation, the design and plans for the road are developed. The road is included on the tribal transportation plan, or any other existing transportation plan. The tribe takes that design and plan to the Department of Transportation who check to see that all is in order with the design, and that costs are in line. We can, but are not required, to make a tribal contribution toward the project. If we contribute, however, 25 percent of the project costs, then the tribe's project is eligible for one-half of the money available under the bonding program. When DOT approves the project, it issues a commitment to pay the remaining costs of the project over a period of years. The tribe takes the commitment and then issues a bond to cover the cost of the project. From the proceeds of the bond it builds the project in that year rather than waiting. Then each year the tribe gets payment from the Department of Transportation and, in turn, pays the bondholder. The money comes from the Highway Trust Fund. Our idea is patterned after the existing DOT program that allow States to use some of their regularly flowing highway dollar revenues from their annual allotment to pay for road bonds. This style of financing for roads is how all long-term assets should be financed, especially roads. The second topic I will cover today is the existing Reservation Roads Program. It is a good program, and I am glad that the BIA, after 7 years, finally has a package of regulations for the program. I am also glad that there are some modifications, including increased funding, that have been proposed legislatively. We support these modifications. Under this program, our tribe has received approximately $90,000 for road planning activities during the last 3 years. The current funding level does not address the needs of small tribes, particularly those in California. That is why we are proposing an innovative finance bonding program. That is why we support the modifications to the current IRR program. I have the following recommendations regarding the existing IRR program. At the very least, the BIA IRR formula should reflect the $100,000 base funding per tribe right off the top takedown. The base funding is needed to meet the minimum planning for intermodal transportation. California tribes should receive a minimum of 9.2 percent of the BIA IRR funds, which is the minimum guaranteed rate that California receives from the Federal Highway Trust Fund. My point is that we have received plenty of money for the current program, but we have not received road money. We have needed to self-finance important road projects. My third topic is to discuss our current transportation priorities. As one of the few tribes in the United States who inhabit a large urban area, our transportation needs are somewhat different than those of most tribes. Agua Caliente has developed a list of transportation requests that not only benefit tribal members, but also our neighbors within the Coachella Valley. We have three cities as well as the county of Riverside which are located on or near our reservation. We are now seeking Federal funds for three priority projects: First, road and bridge improvements to South Palm Canyon Drive and the Indian Canyons access road; second, replacement of the Indian Canyon/Interstate 10 interchange; and, third, construction of the Mid-Valley Intermodal Transportation Center. South Palm Canyon Drive is the only road into the Indian Canyons Nature Preserve and Agua Caliente Cultural Museum site. It also provides access to numerous residential developments, businesses, and the Agua Caliente Tribal Government Building. The tribe has requested $7.2 million in Federal funding to complete improvements on South Palm Canyon Drive. The funding will complete realignment and pavement of existing roads, replacing inadequate bridge structure over the Arenas South Drainage Channel, and construct an intermodal transportation center providing additional access to Indian Canyons Cultural site and the Agua Caliente Museum. Currently 90,000 vehicles per day travel I-10 through the Indian Canyon Interchange, while some 19,000 vehicles per day travel this section of Indian Canyon Drive. The Agua Caliente, in partnership with the city of Palm Springs, has identified the Indian Avenue interchange as a top priority for the highway bill reauthorization. We have requested $15.3 million to replace the existing two-lane I-10 Indian Canyon Drive interchange constructed in 1956 with a six-lane interchange and accompanying access ramps and service roads. Enhancing existing roads and building new roads is only one part of the long-term program solution to our traffic issues. We must also improve access to mass transit. Currently, very few people arrive in the Coachella Valley by rail. The only passenger rail service provided to the Palm Springs area is one daily, late-night stop by Amoral. The Agua Caliente and other governmental organizations in the Coachella Valley have long desired a passenger rail service connection to Los Angeles. To bring passenger rail service to the Coachella Valley, we must have the infrastructure in place to support the service. Knowing that the highway bill reauthorization will emphasize enhancement of intermodal centers, we have requested $4.2 million to construct the Mid-Valley intermodal Center. The funds will allow for construction of a terminal building parking structure, a park-and-ride facilities, 500-foot double track passenger platforms, and pedestrian under-crossing for enhanced passenger safety and convenience. The Agua Caliente are serious about the opportunity for a Mid-Valley intermodal station and have supported the Coachella Valley Association of Governments, which includes nine cities, two tribes, and the county, and have purchased 11 acres of land, at a substantial cost, where the rail station and park- and-ride facility will be located. To sum up, we are requesting the committee's assistance with all three of the issues presented today. We appreciate the time and the attention of the committee to these important issues. We ask that you address these issues in the reauthorization of the highway bill. Thank you. I would ask that my prepared statement be inserted in the record in its entirety. We welcome you back again as soon as you can get there. The Chairman. Without objection, so ordered. [Prepared statement of Mr. Milonovich appears in appendix.] The Chairman. Thank you very much. I will have some questions for you in 1 minute. Senator Murkowski, did you have an opening statement? Senator Murkowski. No, Mr. Chairman; I would rather just listen to the witnesses. The Chairman. Okay. We will now move to Mr. Garrigan. Please go ahead and proceed. STATEMENT OF JAMES GARRIGAN, TRANSPORTATION PLANNER, RED LAKE BAND OF CHIPPEWA INDIANS OF MINNESOTA, RED LAKE, MN Mr. Garrigan. Good morning, Mr. Chairman, and members of this Committee. My name is James Garrigan, Transportation Planner, for the Red Lake Band of Chippewa Indians. On behalf of our chairman, William G. King, and the tribal council, I thank you and other distinguished members of this committee for the opportunity to provide testimony concerning proposed amendments to the Indian Reservation Roads Program, as contemplated under S. 281 and S. 725. Although only recently introduced and referred to the committee, I would like to take this opportunity to provide the committee with some initial feedback on S. 1122 as well. Before I comment on the subject bills, I would like to provide the committee for the record a brief synopsis of the recently completed TEA-21 negotiated rulemaking process for the IRR program. While I appreciate the opportunity to represent the tribal caucus as a tribal cochair on the Federal Tribal Negotiating Rulemaking Committee, I was disappointed with what I, along with the majority of the tribe representatives on the committee, viewed as a blatant disregard for Congressional intent by the Federal representatives on the committee. While the committee's tribal caucus met every challenge and every imposed deadline, the BIA delayed the committee process for months at every juncture. Because of the long delays by the BIA, the tribes felt that they did not have sufficient time to properly negotiate key items that are important to tribes. As a result, there are 13 major disagreement items that did not get properly addressed. Although this was supposed to be a tribally-driven process, it was far from it. The proposed rule was published with Federal language in place on the disagreement items. It appears that the final rule will be published likewise. Many tribal committee members feel that because of this, the entire negotiated rulemaking process was a travesty. The legislative reform effort by Congress 6 years ago was aimed at removing many obstacles that hampered tribes in the past and their attempt to administer the IRR program under self-determination or self-governance. Again, despite the tribal reform language that exists in TEA-21, we believe that it is necessary for the Congress to even more explicitly mandate that the Federal roads bureaucracy facilitate the complete transfer of all authority and responsibility for the administration of the IRR program to those tribes so requesting, and to legislatively enforce full tribal autonomy in the operation of the program formerly operated by the U.S. Government. Unless Congress does this by statute, certain Federal agencies will never appreciate, and Indian tribes will never realize, the true meaning of self-determination and self- governance. The Red Lake Band is in general favor of S. 281 and S. 725. S. 281 contains provisions which hopefully will finally achieve what Congress has intended for Indian tribes since the enactment of the Indian Self-Determination and Education Assistance Act of 1975. Passage of this bill would stop the loss of IRR program funding that resulted with the application of the obligation limitation. S. 281 would also allow tribes to deal directly with the Federal Highway Administration on a government-to- government basis. While the Red Lake and all Indian tribes throughout the country appreciate the increased funding for the IRR program that Congress made available under TEA-21, the program is still critically under-funded. The application of the obligation limitation requirement to these funds offset much of the benefit Indian tribes were to receive through the increased funding. Passage of this bill would help ensure that all funding allocated for the IRR program remain available for distribution to Indian tribes, a goal Red Lake fully endorses. The Red Lake Band has been a strong advocate for Indian tribes having a direct relationship with the Federal Highway Administration. S. 281 would provide a vehicle to make this happen under a demonstration project. The Red Lake Band has been at the forefront in demonstrating that Indian tribes can deliver on programs that Congress has provided to further promote self-determination and self-governance. Red Lake was one of the first tribes in the Nation to assume the entire IRR program under Title IV of Public Law 93-638, as amended. The documented success of this program serves as a model for other tribes to follow. Red Lake will also be at the forefront in demonstrating that Indian tribes can independently coexist with the Federal Highway Administration without the involvement of the BIA. Red Lake also supports the safety incentive grants as proposed in S. 281. Moving on to S. 725, the Red Lake Band supports the provisions of this bill that increases the amount of funding available for the IRR. We feel that the increase in funding for the IRR program and removing the obligation limitation will provide greater opportunities for jobs on Indian reservations. The Red Lake Band also supports the Indian rural transit program provisions in this bill. Recently, another bill has been introduced by Senator Johnson and Senator Daschle, S. 1122. This bill contains several provisions that closely mirror those in S. 281 and S. 725. However, in the short time between introduction of S. 1122 and the development of this testimony, the Red Lake Band has not had an adequate opportunity to fully analyze and assess S. 1122. Our initial impression, however, is that S. 1122 touches upon a variety of transportation issues that are important to Indian country, but requires further refinement to ensure that the successful gains in Indian program administrations are not adversely impacted unintentionally. The Red Lake Band would also like to take this opportunity to propose to the committee for consideration as part of the IRR program amendments a concept that we believe would help foster economic development in Indian country. While a number of Indian tribes receive IRR services either directly from the Federal Government, or through contracts or agreements under the Indian Self-Determination and Education Assistance Act Authority, the BIA continues to use a substantial portion of IRR funding to procure IRR-related services from non-tribal contractors located far from Indian communities. As a result, the full benefit of this Federal funding often eludes tribal communities because outside contractors deliver the referred benefit or product on reservation but conduct most of the economic activity off reservation so that little, if any, ancillary benefit is derived by tribal communities. We are proposing that Public Law 93-638 authority be expanded to include that if a beneficiary tribe chooses not to contract under the Indian Self-Determination and Education Assistance Act, to carryout an IRR function, and the BIA chooses not to provide the function through direct services, then an Indian tribe having the resources to perform the function would be eligible to contract the work under the Indian Self-Determination and Education Assistance Act prior to the BIA offering the work to non-tribal contractors. We believe that this provision would enable Indian country to more fully benefit from Federal program funds. In conclusion, Mr. Chairman, I was dismayed by some of the previous testimony I heard when the witnesses referred to the Federal Government as owners of the roads in Indian reservations. That ownership is beneficial ownership. The tribes actually own those roads. Tribal governments are governments. They are elected governments and they are public authorities. I was happy to hear Senator Johnson say that we need to amend title 23 to correct this. Red Lake would be happy to assist your staff in crafting some language to clear this up so we can move on. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statement of Mr. Garrigan appears in appendix.] The Chairman. Hopefully we might make some improvements, including some of your suggestions, such as allowing tribes that have road building expertise to contract with other tribes. I think that would be a constructive amendment. I have to tell you that I do not blame you for being somewhat frustrated with how long it takes to get some things changed within the Bureau. In TEA-21, it was my amendment that required the negotiated rulemaking authority. It has taken the Bureau over four years to even get their rules in order from that. In some cases they have two speeds over there: slow and stop. Those are the two to choose from. The danger with roads just keeps going on. Hopefully we can fix some of the inequities of the last TEA-21 in this bill. Thank you. Now we will proceed with Ms. Bullard. STATEMENT OF LORETTA BULLARD, PRESIDENT, KAWERAK, INCORPORATED, NOME, AK Ms. Bullard. Thank you, Chairman Campbell and Senator Murkowski. Thank you for the opportunity to testify. My name is Loretta Bullard and I am president of Kawerak, which is a regional tribal consortium in Northwest Alaska. We have 20 federally-recognized tribes in our consortium. I also serve on the Alaska Federation of Natives' Board of Directors. Collectively, Alaska Natives own 44 million acres in the State of Alaska, or just about 11 percent of the State. We have 229 widely dispersed communities across the State. We have very few roads. Much of our land was selected by the Native corporations for its economic development potential. We need access to those resources. Just to give you an idea of the size that we are dealing with, in our service area it is 1 hour and 10 minutes north by a twin engine plane, and 1 hour and 10 minutes west by plane, and 1 hour and 10 minutes south by plane. That is our service delivery area, which is about 45,000 square miles. We have very few roads. Our ground transportation system is very undeveloped in comparison to the rest of the United States. Most of our village streets are no more than unimproved dirt paths. I have included color photographs for the committee. We have very little snow removal in our communities. We use snow machines in between our villages during the winter time as well as small airplanes because there are no roads. We also use boats during the summer time. While this hearing is being held to solicit recommendations and comments on S. 725 and S. 281, I also want to speak to the NCAI draft bill and S. 1122. We wanted to express our support for the language contained in the NCAI draft bill that would change the name of the Indian Reservation Roads Program throughout Title 23 to the Tribal Transportation Program. We feel that the language better reflects the wide scope of the program. We strongly support the appropriations as outlined in S. 1122. We support excepting the IRR program from the obligation limitation, and support the increased appropriation for the bridge program. One of the bridges in our area, just to give you an idea of how old it is, used to cross the Panama Canal. It is one of those unbolt them and move them kind of bridges. It used to be the Cushman Street Bridge in Fairbanks. Then when they replaced that bridge, they moved it to our area. We want to speak to the language in S. 725 that would require the Secretary to verify the existence of all roads that are part of the IRR system and to distribute funds based only on those roads. We oppose that language because we feel that it would just continue to allocate funds based on the existing road mileage and those areas without roads would continue to receive little, if any, funds. We support the language that would establish a minimum of $35,000 base per tribe for tribal transportation planning and bump the 2 percent planning allocation to 4 percent. Using our Bering Straits Region Tribes as an example, in March 2002 our tribes were informed that they were eligible to apply for $1,125 as their share of the Alaska 2 percent planning money. Bumping that to a 5-percent increase would bump their tribal transportation planning dollars to $2,812. That is enough for a round-trip ticket to Anchorage, plus some per diem. I am not going to speak to all the areas that we support. I have that in my written testimony, but I did want to mention areas that we are suggesting be changed. We are suggesting that section 106 of S. 1122, whereby it requires the Secretaries to establish a joint IRR Coordinating Committee. We suggest that you need to add language there that would give that Committee some teeth beyond being purely advisory. It has been really frustrating contracting with the BIA for the roads program for the last 5 or 6 years. It is just about impossible to get things done, or make changes to the system. It is very frustrating. We oppose the language contained in S. 1122, sections 202 and 203 which directs the secretary to make competitive grants available to establish tribal transportation safety programs. We think it is a good idea, but the current language makes funds available only to those tribes on Indian reservations, or who have land under the jurisdiction of the tribe. In the NCAI draft bill there was language that made funds available to Indian tribes and tribal organizations to establish tribal transportation safety programs. It is not necessarily tied to your land base. In the last 5 years in our area we have had about 12 deaths due to tribal transportation issues. We do have some safety concerns that we would like to address. In terms of some Alaska specific issues, we want to speak to our inventory problems. One of the major problems with the existing IRR program is that the funding formula used to distribute funds nationally is based primarily on the inventory of IRR routes. For Alaska, we have never had a true inventory. We have been working on it for these last 2 or 3 years through funds that were made available through the administrative capacity building funds, but we are finding it extremely difficult to get our routes into the BIA inventory. We have been finding that the information that you need to submit or that the areas identified in the BIA manual keep being reinterpreted to require different data sets or information that needs to be included. We have been working very hard on this for the past 2 years. There are 189 tribes in the State of Alaska that have contracted to do their inventory developments. We have been very limited in our ability to get that information into the system. We feel that needs to be addressed. One example of how they are changing the rules is this. The latest road inventory checklist purports to require that a tribe have an approved long-term transportation plan in effect before the inventory changes are made. We are still developing our inventory. We do not have a long-term transportation plan that is going to support the need to tweak the inventory. We are also concerned that the BIA, since 1993, has had a 2-percent policy that limits the ability of areas to increase the inventory by 2 percent over any given year. Alaska has never had a good inventory to start with. In 1993 the villages in the State were asked to identify their number one project. That was all they were asked to identify. One-third of the villages did not even respond. There are about 150 villages that identified their single priority project. That became the Juneau Area Transportation Plan. That is not an inventory. That is not a true reflection of need. We encourage Congress to enact language that would direct the BIA to include our village streets and primary access roads. We have not even been able to get those into the inventory. We are also suggesting that regional tribal transportation authorities be developed for Alaska. It is such a huge State. We recognize the need to work together. We are suggesting some language that would create some regional transportation authorities under the guidance of the tribes or the regional corporations, as decided by people within the area. I want to close by saying that we do support the road bonding that was proposed by the Agua Caliente Band provision. Thank you for this opportunity to testify. I would ask that my prepared statement be inserted in the record in its entirety. The Chairman. Without objection, so ordered. [Prepared statement of Ms. Bullard appears in appendix.] The Chairman. Thank you. I have a lot of questions. I am going to submit those to you. If you would put answers to those and submit them to the committee, I would appreciate it. I would like to ask a few questions at this time. Ms. Bullard, I guess it has been about 3 years ago I went with Senator Stevens to Alaska to visit some villages. We went to some larger towns. One of the places we went to was Barrow. As I remember, they told us there were only 12 miles of road around Barrow. All the fuel and automobiles that were in town had to be brought in by a barge. There was no road to go anywhere out of Barrow. When you mentioned that a third of the villages did not respond to the last request you had for an inventory, I can see that if Barrow was considered one of the larger ones, some of the villages must have real problems with transportation. Now, in those small villages, there must be many of them that do not have roads to get to any outside main road. Is that correct or not? Ms. Bullard. That is correct. The majority of the communities in the State do not have access to roads. Nome probably has 300 miles of road. The Chairman. So they have to fly in or fly out, or go by snow mobile, barge, or some other way. Okay, thank you. President Shirley, several of the members have talked a little bit about bonding for roads. With the Navajo having almost 10,000 miles of roads, mostly unpaved and many of them unimproved, if you rely strictly on Federal IRR funding, it is going to take forever to get the job done. Would you be supportive of that area of tribal road construction bonds to leverage additional road building capital? Mr. Shirley. Yes; we would, Chairman Campbell. We are doing what we can right now to even at that on our own. There is every possibility of doing that. The Chairman. That would bring up another question, then. Those Indian communities that have access to a steady income stream, they are going to be better able to repay those bonds, to pay off the bond holders, how would you envision the Navajo Tribe paying off bond holders? Mr. Shirley. We are trying to do what we can to put some money aside to do just that, some of the general revenues that come in from coal royalties, or gas royalties, to set some of that aside so that when we do bonds, that we would have a revenue stream to pay on the bonds. We also have a fuel excise tax that the Nation's Council also put into force. We are also looking at that as a revenue stream to pay the bonds that we might float to do roads. The Chairman. To Chief Smith, and maybe to Chairman Milonovich, in many cases the success of the IRR program is, in part, due to the ability of the tribes to partner with respective States to build roads together. In fact, when I was out visiting with the Agua Caliente Band, Chairman Milonovich showed us one road and bridge that they were interested in getting some Federal help for, but I assume there is going to be some partner with the local communities, too. Chief Smith, have you attempted to work with the State of Oklahoma on any reservation road projects? Mr. Smith. Yes; we have. We have had a very innovative program to work with the counties and cities. We actually use funds that we derive from a compact with the State in the issuance of our own automobile tags, to provide material for local counties. They come back and do the labor. We have investigated many innovative ways to work with local communities and with the State of Oklahoma. The Chairman. With the case of Oklahoma, you have a very strong Indian presence in your legislature with Kelly Haney and a few other senior members there. I would think that you have a really good voice in your legislature. In many States tribes do not have that strong voice in their legislature. In the case of the Agua Caliente Band, Richard, you mentioned one area that is an interchange. Was that the area that you showed us, the bridge and the widening of that road. Is that the same place when we were out there. Mr. Milonovich. No; the other was more to north of the city. It is right on the interstate. The Chairman. Oh, I see. It is right on the interstate. Okay. Thank you. Mr. Milonovich. We are working together with the city of Palm Springs as well as the Coachella Valley Association of Governments consisting of nine cities, two tribes, and the county working together on transportation issues which affect the entire Coachella Valley. We are working quite closely with everyone. The Chairman. I know that you do that very well with your tribe. I am always an admirer of how well you work with local county and city governments. Mr. Garrigan, you talked somewhat about the BIA soaking up a lot of the funding for administrative costs. Someone, and perhaps it was Mr. Smith, mentioned that they do the engineering themselves and they have it approved by the next level, and it goes through two or three approvals. Then it has to be submitted to the Bureau for their approval. Then, of course, they are keeping 6 percent. Basically all they are doing is rubber stamping all of the work that you already did. Has that been your experience, too? Mr. Garrigan. Yes; it has. We have all of our work done by licensed professional engineers. The second level review is also done by a licensed professional engineer. The Chairman. What do you suppose the Bureau does for 6 percent? Mr. Garrigan. Give it a cursory review. They take a look at it and say, ``Okay, we will stamp it.'' The Chairman. All right. Thank you. I have no further questions. Senator Murkowski, do you have any questions? You have one of your constituents here today. Senator Murkowski. Just very briefly. Mr. Chairman, it is tough to see in this corner here. I appreciate the testimony. I particularly appreciate your providing copies of some of the pictures. I think the pictures are quite compelling. One of the difficulties that we have in Alaska is just educating folks on our lack of a transportation system. When you have indicated that many villages did not submit comments as to their plan, it is because if you are a community that does not have roads, if you are a community that is connected by a boardwalk, and you go everywhere by snow machine or a four wheeler or a river boat, you do not need to submit a transportation road plan because there is no recognized road system. That is one of the huge difficulties that we have as a State. I also appreciate your comments about the inventory and the lack of an inventory in Alaska and how essentially we are shortchanged on that process. Mr. Chairman, I would just like to indicate for the record that I would certainly support the appropriations funding for the roads and the increase in the funding for the Indian roads, but would urge the BIA to work with the State of Alaska on this inventory issue to make it work. The question I would ask to you, Ms. Bullard, is, as it relates to the inventory, is there anything that you can suggest or propose that we can do to make that process work for us right now? Ms. Bullard. One thing that we have requested is a definitive description of what needs to be included in the inventory. Every time we turn around, the requirements keep changing. I think that would help. But I think the other thing that needs to be done is that a requirement that our basic infrastructure in our villages be included in the BIA roads inventory. By limiting us to 2 percent of what has been previously in the system, there has never been a complete inventory in the State. We are trying to do that. We have identified many roads that should be in the inventory, but they are not being put in because there is a two percent limitation on increases. We feel that is very unfair to the State of Alaska and does not reflect the true need of our communities. Senator Murkowski. We would like to work with you on that and make it work. Mr. Chairman, I appreciate the opportunity to ask the question and to hear the testimony of the witnesses today. Thank you. The Chairman. Thank you. I have one more question of Ms. Bullard. These pictures that you submitted for the record for us, but one just came to mind here. One is a picture of the main street of Wales, AK, and one picture of the main street of Shishmaref. It looks to me that that snow is clear up to the top of the roof; is that right? Ms. Bullard. Yes; in many of the houses there you actually have to dig tunnels to get into the homes. They do not do any snow removal during the winter time. The Chairman. That was going to be my next question. How the heck do you move that much snow? The automobiles in that town just sit there during the winter. Ms. Bullard. They sit during the winter. They use snow machines and four wheelers during the winter time. Just to use an example of that. I think it was in 1998 that the Assistant Secretary for Indian Affairs at that time, Kevin Gover, had gone to Shishmaref. Then we took him to Wales. On the day we took him to Wales, people were going from Wales to Diomede which is 40 miles off the mainland, because there are no ferries. There are no large boats. They do not bring any freight barges into that community. People actually run snow machines and four wheelers between Wales and Diomede in small 20 to 25 foot boats. The day we were going there, they lost an entire boatload of individuals that were trying to travel between Wales and Diomede. They had been sitting in Wales waiting for the weather for about 3 weeks. They decided to go ahead and go because there is no commercial transportation in their community. The Chairman. How do you get from Wales to Shishmaref. Is that through a barge? Ms. Bullard. You can take an airplane between Wales and Shishmaref. The Chairman. How far is that? Ms. Bullard. I would say that is about 50 or 60 miles. The Chairman. How did you get Kevin there? Ms. Bullard. We flew him in a twin. But between Wales and Diomede, the only way to get into Diomede is they have once-a- week helicopter service. There is no airport in the summer time. It is a winter sea-ice air field. The Chairman. Big problems. Senator Murkowski. Mr. Chairman, if I could, I would just ask Ms. Bullard. The Chairman. Certainly. Senator Murkowski. Do you have any idea of how many vehicles you actually have on Wales? Ms. Bullard. In Wales. I do not know. I have not been to Wales recently. Mr. Milonovich. My experience has been that you get out to these remote communities that are on islands and you have 1 dozen vehicles. Ms. Bullard. In some of the communities, yes. But they do all have four wheelers and snow machines. Senator Murkowski. Which is the primary means of getting around. Ms. Bullard. There are getting to be more and more vehicles in the villages. The Chairman. Thank you. We will submit some questions for the rest of the committee. If you can, get those back to us by June 18 because we want to use our bill as part as an amendment to the new TEA- 21 bill. We will hold the record open for 2 weeks. Thank you for appearing. The Committee is adjourned. [Whereupon, at 11:47 a.m., the committee was adjourned, to reconvene at the call of the Chair.] ======================================================================= A P P E N D I X ---------- Additional Material Submitted for the Record ======================================================================= Prepared Statement of Mark Maryboy, Chairman, Navajo Transportation and Community Development Committee My name is Mark Maryboy and I am the chairman of the Navajo Transportation and Community Development Committee. I would like to begin by thanking this committee for all of their hard work on this issue. My remarks today are limited to S. 281 and S. 725. However, the Navajo Nation sincerely appreciate all of the bills that have been introduced and look forward to working with you to promote the final bill that is passed out of this Committee. I would like to begin my comments about S. 281 by saying that the Navajo Nation is working very hard on its own economic development. We have much to overcome. The unemployment rate on the Navajo Nation currently ranges seasonally from 36 percent to 50 percent. Our per capita income averages $6,123, which is less than one third of that in Arizona or New Mexico. The commercial vehicle driving training program proposed in S. 281 could greatly help develop the Dine workforce. With a land base that is larger than the states of Connecticut, Delaware, Maryland, Massachusetts and Rhode Island combined, the Navajo Nation is long-haul territory. In fact, it would be difficult to make a commercial delivery from any place west of Durango, CO to any place east of Flagstaff, AZ without going through Navajoland. The Navajo people are used to driving great distances and might as well get paid for it. Like S. 281, S. 725 reflects the Navajo Nation's goal to promote self-determination. Both bills authorize a demonstration project that would enable tribes to apply directly to the Federal Highway Administration for Indian Reservation Road funding so tribes could take care of their own roads and bridges without relying upon the BIA. While this is an approach that the Navajo Nation has not yet decided to pursue, we support the desire of other tribes to do so. Both bills create an opportunity that should exist for tribes. In addition, S. 725 contains key provisions that would help achieve our fundamental goal of making the IRR Program more fair and effective. Section 3 contains the five changes the Navajo Nation believes are essential to improving the IRR: No. 1. Increase funding. We understand the current constraints on the Federal budget. That is why we support an incremental increase over the next 6 years. We believe that such an approach is a judicious way to begin dealing with what BIA estimates to be more than $9.8 billion of unmet transportation needs in Indian Country. No. 2. Exempt tribes from the obligation limitation. Since the passage of TEA-21, which applied the obligation limitation to tribes, the IRR Program lost $200 million it was otherwise authorized to receive. That capital leakage is staggering when you consider that $200 million is roughly equivalent to the Program's total annual funding in 1998. While their unmet needs make tribes the least able to bear the burden of the obligation limitation, Native Americans and Alaskan Native Villages are experiencing a disproportionate brunt of its effect. No. 3. Create a tribal bridge program. Tribes must currently decide whether a bridge or a road project is their higher priority in order to receive funding. That is a choice no community should have to make. On Navajo, we have 173 bridges, 27 of which need complete replacement and 24 of which need major rehabilitation. A separate IRR bridge program that includes funding for pre-construction is essential for us to get a handle on these major safety concerns. No. 4. Fair and Equitable Distribution. TEA-21 is a road construction program. The Navajo Nation strongly believes that Federal lands highway dollars should therefore be spent on actual road miles. We understand that our friends in Alaska are currently having a difficult time getting a fair accounting of their road mile inventory and we encourage this Committee to develop a special project to remedy that situation. No. 5. Increase Planning Moneys. The Navajo Nation believes that planning is an essential predicate to capacity building. Transportation planning on Indian reservations is needed more now than ever because of growing populations and new homeland security concerns. The Navajo Nation supports increasing the percentage of allocated funds tribes can use for transportation planning from the current level of 2 percent to 4 percent. Finally, S. 725 provides authorization for two programs that are essential for tribal transportation departments to be able to more effectively protect their reservation's people and environment. The Tribal Transportation Safety Program in Section 5 would authorize funding for tribes to launch buckle-up campaigns, anti-drunk driving initiatives and projects to eliminate traffic hazards. Given the fact that reservation roads have long been known to be the most hazardous in the country, this proposal is long overdue. The Tribal Transit Program is also essential for us to be able to help people on the reservation get where they need to go and improve or preserve air quality by reducing vehicle traffic. The current obstacle to developing mass transportation on reservations is the fact that tribes must go through the states to get funding. Section 6 of S. 725 would remedy this situation by enabling tribes to apply directly to the Federal Transit Administration. I would like to conclude by thanking you for your commitment to helping improve the IRR Program. We look forward to partnering with the members of this Committee to ensure that IRR legislation is included as quickly as possible in the Federal transportation legislation that is now winding its way through Congress. 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