Tribal Engagement Strategies
Introduction
Economic Development Districts (EDDs) and American Indian and Alaska Native Tribal Nations frequently represent overlapping or adjacent geographies, which often leads to a shared interest in regional economic development topics. However, the extent of relationships between EDDs and Tribal Nations varies widely across the United States. Some have deep and enduring partnerships, including official Tribal representation as EDD members or on the organization’s board of directors. In other places, Tribal Nations and EDDs have a limited history of collaboration or official contact. Many EDD staff report that they wish to expand their relationships with local tribal nations. However, they are often unsure how to respectfully involve these partners in established planning and implementation processes. This brief outlines opportunities for EDD-Tribal collaboration, as well as tips for EDD staff seeking to initiate relationships with Tribal Nations. It highlights the value of looking at economic development holistically and inclusively.
Background: Tribal Reservations in the United States
The legal framework that governs relations between the U.S. Federal Government, U.S. states, and American Indian or Alaska Native Tribes is complex, encompassing varying legal duties, moral obligations, and informal understandings and expectations shaped over the course of the 250-year history of the United States. The U.S. Government presently recognizes 574 American Indian and Alaska Native tribes and villages, and 326 Indian Reservations. Not all federally recognized Tribes have an associated Reservation, though some Reservations are held in trust by more than one Tribe. U.S. states recognize approximately sixty-five additional Tribes. State recognized Tribal Reservations differ from federally recognized reservations in that they are typically subject to all state laws but exempt from state property taxes. 1
As recognized sovereign nations, Tribes govern with all powers of self-government except those relinquished under treaty, by Congressional statute, or by federal court ruling. Tribes may form independent governments, establish taxes, make and enforce laws, license and regulate economic and other activities, determine standards for tribal citizenship, and exclude unwanted persons from their lands. They may also enter into government-to-government agreements with the U.S. Federal Government, states, localities, and other public entities Not all tribally owned land is held on Tribal Reservations. Fee lands, for example, are property owned by tribal members that can be freely bought and sold like any other parcel in the United States. The conversion of fee lands to trust lands, or the inverse, has been the subject of significant and complex actions over the last 150 years and has major implications for tribal economic development. This Congressional Research Service report analyzes this issue in some depth. It is critical for EDDs who wish to partner with Tribal entities to understand the legal rights, duties, and responsibilities entailed by Tribal Nation sovereignty, as well as the centrality of Tribal sovereignty to questions of identity and belonging in Indian country and the United States. Though it is not necessary to become an expert, a strong working understanding and respect for the complexity and gravity of this framework can help EDD staff begin to establish trust with potential partners.
Background: EDD-Tribe Relationships
The U.S. Economic Development Administration (EDA)’s Planning Program requires that all partnership planning grantees, EDD or tribal, write and maintain an individual Comprehensive Economic Development Strategy (CEDS). This includes EDDs and Tribes with overlapping boundaries. Each of the approximately 400 EDDs and number of Native American/Alaska Native Planning Grantees maintains an individual CEDS outlining their five-year program of economic development goals and activities. More than 150 EDDs have service areas that overlap with Tribal Reservation, Off-Reservation Trust Lands, or Oklahoma Tribal Statistical Areas, and dozens more share at least one border. In some cases the overlap is substantial; for example, more than half of the Northern Arizona Council of Governments’ service area overlaps with Navajo Nation boundaries. Still, the two each complete their own CEDS. Dozens of EDDs have existing relationships with tribal entities in and around their service areas to promote and enhance regional economic development. The extent of these relationships ranges from informal contact at the staff level to tribal representation as EDD members or on an EDD board of directors. For example, the Southeast Conference based in Juneau, Alaska includes several tribes and Alaska Native associations among its membership, and the Principal Chief of Osage Nation sits on the Board of Directors of the Indian Nations Council of Government, an EDD serving the Tulsa, Oklahoma region. A recent Economic Development District Community of Practice (EDD CoP) survey of EDD Executive Directors and review of 402 recent CEDS plans across the country found that at least 70 EDDs have existing relationships or are seeking to build relationships with local Tribal communities. Tribal members often sit on EDD CEDS committees, or partner on specific projects like broadband deployment, RLFs, hazard mitigation planning, and food ecosystems development. A number of EDDs have offered technical assistance to Tribal Nations for their CEDS process or other planning efforts. The two charts below display a snapshot of goals and strategies for tribal engagement voiced in CEDS plans.
There is also frequent government-to-government consultation between EDDs and Tribal Nations for projects that invoke National Historic Preservation Act (NHPA) or National Environmental Policy Act (NEPA) Section 106 reviews. Section 106 requires that agencies identify historic properties, assess effects to historic properties, consider alternatives to avoid, minimize, or mitigate any adverse effects, and document their resolution, including through a stakeholder engagement process with Indian Tribes, among others.
Planning Context
As noted above, many EDD service areas overlap with Tribal Reservations. Beyond overlapping administrative boundaries, tribes play a critical role in the formation of regional cultures and economies. Transportation infrastructure, freight flows, people, wildlife, and services cross freely over these lines, collectively creating regional economic activity and physical, cultural, and ecological dependencies. Because of these interdependencies, siloed efforts amongst EDDs and Tribal Nations cannot result in truly comprehensive regional plans and can lead to missed opportunities, overlapping programs, and unrealistic analyses of regional needs. At worst, they could result in the pursuit of projects or strategies that are at cross-purposes. The situation also precludes the possibility of fulsome and equitable public engagement for projects and programs of regional significance. In contrast, regional cooperation between tribes and EDDs can create force multiplier effects, where the resources and opportunities of adjacent areas feed into and build on each other. BUILDING COMMUNITY The interests that Tribal Nations represent are not merely economic in nature but include nurturing the social and cultural flourishing and continuation of their communities, histories, and traditions. As such, outreach to these communities should consider holistic approaches and highlight shared goals beyond simple economic impacts. At their core, EDDs are convening organizations that bring people and communities together to solve complex regional challenges. Creating communities of trust and mutual understanding is critical to that mission, both for specific projects and for the long-term resilience of regions and places. While all the tips and tools in the following section are important, it is critical that community is at the center of this work.
With this context in mind, the following is a list of engagement tips for EDDs looking to start (or renew) a relationship with Tribal Nations in or adjacent to its service area. These tips were sourced from staff at EDDs with strong Tribal relationships as well as from experts on Tribal engagement in the EDD Community of Practice team and from federal partners.
Tips for Outreach
Respect for tribal sovereignty must be a guiding principle for any EDD-tribe relationship. Unlike localities, counties, or other governmental bodies, Tribal Nations have the right to total self-determination and governance within their Reservation boundaries. EDDs seeking to partner with tribes must understand that the tribal entity enters that partnership voluntarily and retains full autonomy over governance decisions within its borders. It is also crucial to be mindful of the significance of the historical context of government relations with Indian tribes and to familiarize yourself with the particular history of that relationship with the tribe you seek to partner with. Understanding that history, as well as the tribe’s particular customs and rituals, can help to bridge cultural divides and potential skepticism or mistrust.
It is important not to oversell or mislead emerging partners about the potential for collaboration allowed under the law and enabling statutes for regional organizations. For example, the state enabling statutes governing some EDD host organizations require that their board be comprised solely of representatives from counties or localities. Other EDDs face no such restrictions. This applies to tribal governance procedures as well: it is important to recognize that each tribe has a unique governance structure and degree of public sector capacity. A clear understanding of the legal and organizational structure and requirements of a particular EDD and the Tribe it seeks to engage is critical to ensure a transparent relationship.
Tribal representatives frequently juggle many duties beyond the particulars of an outside engagement process and may face constraints on their human and financial capacity. This can create barriers to collaboration on projects that require significant investments of time or staff capacity. Clearly expressing the timelines and demands of a collaboration at the front end is critical, as is avoiding setting up unnecessary deadlines or requests. Things as simple as regular meetings may be burdensome for tribal partners who may have to travel long distances to attend.
It is also important to recognize that tribal governance processes may create a slower timeline for decision-making than is typical with EDD partners. Tribal officials may need to consult with others, including elders, the tribal council, or the head of the tribal government between engagements or steps in project processes. Understanding the timelines for tribal decision making processes at the start can help EDDs avoid setting unrealistic expectations or inviting unnecessary conflict.
Many EDDs report that successful tribal relationships began with a single, small collaboration and then grew at the speed of trust. For example, the Section 106 consultation process can be a jumping off point for relationship building between tribes and EDDs that have participated in it in the past. Once these small engagements begin to establish trust, EDDs can more easily approach Tribal Nations to offer technical assistance, collaborate on grants, or co-establish services. Successful completion of small projects can lay the foundation for a tribal entity to see the EDD as a trusted partner with a particular expertise and many shared interests.
To foster an enduring partnership with a Tribal Nation that shares a mutual interest in regional economic development, it is critical to institutionalize the partnership as soon as is appropriate. The most common approach taken by EDDs is to invite Tribal leaders to sit on committees, including the CEDS committee, workforce development board, or others that represent shared interests. Some EDDs have established Tribal Advisory Committees that regularly weigh in on the impact the organization is having on tribal lands and peoples. Institutionalized partnerships are important for maintaining relationships beyond the span of any single EDD staff member’s career or Tribal Member’s time in office.
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Ryan Collins joined NADO in 2024. He lives in Athens, Ohio, and is passionate about ensuring rural communities thrive and prosper across the country. Ryan has always identified as a helper and has focused his career on serving others in both the public and private sectors. Before joining NADO, Ryan worked as a Policy Manager with the National Digital Inclusion Alliance. There he focused on Federal Policy issues and making them more accessible to members. Before that Ryan worked with one of NADO’s member organizations Buckeye Hills Regional Council (BHRC) as a Broadband Coordinator and then as a Program Manager, where he led Ohio’s Southeast Regional Digital Inclusion Alliance, managed BHRC’s State and Federal Appalachian Regional Commission programs, and worked in several other programs. In his free time, Ryan enjoys reading, playing Dungeons and Dragons along with Magic the Gathering, building models, hiking, and spending time with his children (his cats Saturn and Cosmo.)
Regional Development Researcher Andrew Coker joined the NADO team in March of 2023 after spending two and a half years as the Regional Economic Resiliency Coordinator at West Central Arkansas Planning and Development District. Andrew holds a bachelor’s degree from Hendrix College and a master’s degree from the University of Arkansas Clinton School of Public Service.
At NADO, Andrew conducts research on the newest economic and community development best practices from Economic Development Districts across the country. He helps produce easily digestible information on complex regional issues through case studies, tip sheets, and research reports. Andrew also hosts training and professional development opportunities including conference sessions and virtual webinars for member regional development organizations.
Andrew is one of our Missouri-based team members and enjoys reading and training for his next triathlon.
Jack Morgan came to the NADO team in 2022 after seven years with the National Association of Counties (NACo) as a Program and Senior Program Manager. Prior to NACo, Jack was a Policy Analyst for Friends of Southwest Virginia. Jack holds a bachelor’s in geography from Emory & Henry College and a master’s in geography from Appalachian State University.
As a NADO Senior Program Manager, Jack leads capacity-building and peer-learning work supporting energy communities in economic transition, regional resilience, and recreation economies. He also helps with the EDA-Austin training program Emerging Leaders.
Jack is certified by the American Institute of Certified Planners (AICP) and is a member of the American Planning Association (APA) in the Regional & Intergovernmental Planning division. He also serves on the Emory & Henry College Alumni Board.
Taking road trips, reading non-fiction, and indulging in top-notch barbecue and coffee round out Jack’s days. He loves maps, mountains, and of course, all things sports.
Karron Grant joined the NADO team in 2023 as Administrative Specialist and is the first face (or voice) you’ll see or hear when reaching out to NADO. As Administrative Specialist, Karron manages our database and coordinates NADO event operations. He ensures members’ needs are met, contact information stays current, and NADO’s office is running efficiently.
Karron came to NADO after four years in the classroom teaching at The New Century School and Old Mill Middle North where he received the Patriot of the Year award. He attended Towson University and the University of Maryland Global Campus and holds a bachelor’s in international studies and humanities.
Visiting art galleries and museums, playing basketball and bowling, and taking in movies and music are some of Karron’s interests and hobbies.
Deputy Executive Director Laurie Thompson has been with NADO for 25 years. Laurie helps keep the NADO and NADO Research Foundation wheels turning through management of the daily operations of the Research Foundation, securing financial resources and overseeing grants management, and helping execute NADO’s Annual Training Conference each year.
Laurie holds a bachelor’s in public affairs and government from Mount Vernon College and a master’s in health services administration from The George Washington University. Prior to NADO, Laurie spent time as a Field Specialist and an Eagle Staff Fund Director at First Nations Development Institute.
When she’s taking a rare reprieve from her NADO work, Laurie enjoys traveling domestically and internationally to visit friends and family.
Jamie McCormick joined the NADO team as a Policy Fellow first in 2019, then moved into her current role as Legislative Associate in 2021. As Legislative Associate, Jamie keeps NADO members apprised of any policy and regulatory issues and communicates NADO’s policy priorities to federal stakeholders and partner organizations. She is also the first stop for members with inquiries on policy issues. The planning and execution of NADO & DDAA’s annual Washington Conference is also managed by Jamie.
Jamie holds a dual bachelor’s in political science and international relations from The State University of New York College at Geneseo and a master’s in international development studies from The George Washington University. In addition to her roles at NADO, Jamie also worked as a Legislative Assistant for the Northeastern Retail Lumber Association.
Outside of her NADO work, Jamie is an active volunteer with the VOLO Kids Foundation and a fundraiser for YMCA youth programs. She is also NADO’s resident baker regularly providing treats for those in NADO’s D.C. office. Traveling, taking her pup on walks, and hiking in the northeast keep Jamie busy.
Brett Schwartz began at NADO in 2012 as a Research Fellow after earning his J.D. from the University of Baltimore School of Law. The following year, he was promoted to Program Manager and has now been leading as an Associate Director since 2018. Brett is responsible for managing NADO’s Economic Development District Community of Practice (EDD CoP), as well as researching and monitoring the latest trends in regional economic development and resilience, including best practices for the Comprehensive Economic Development Strategy (CEDS). With more than a decade of experience on the NADO team, Brett is a dynamic relationship builder helping connect and build capacity among the national network of regional development organizations.
Brett also holds a bachelor’s degree from Georgetown University and a master’s from Trinity College Dublin, as well as a certificate in mediation training. He’s a member of Catalyst Grantmakers of San Diego and Imperial Counties and was a participant in the 2021-22 Field Trips to the Future Cohort.
Brett is one of NADO’s West Coast team members residing in San Diego, CA where he enjoys spending time outdoors, attending concerts and festivals, and soaking up life as a parent of two young children.
Communications Manager Katie Allison joined the team in 2023 to lead the strategic communication efforts of NADO. Katie creates and develops print and online materials, communicates NADO’s updates to members via weekly emails, and maintains content for nado.org and NADO’s social media channels. She also works with different departments to generate new ideas and strategies to effectively describe and promote the important work NADO is doing for EDDs and RDOs across the country.
An experienced nonprofit communications professional, Katie has worked for organizations in western North Carolina for nearly a decade. She holds a bachelor’s in communications from Wingate University where she was a four-year student athlete. Katie has also completed Vision Henderson County, a comprehensive leadership development program that promotes informed and committed civic volunteerism.
Katie stays busy trying to keep up with her two young sons whom she enjoys exploring the Blue Ridge Mountains with. Traveling to new and favorite places and cheering on the Atlanta Braves are some of her family’s favorite pastimes.
Senior Program Manager Ciara Ristig has been a member of the NADO team since 2021, and helps with NADO’s EDD Community of Practice, EDD staff capacity building and other grants on a range of subjects, including equity and solar energy. Before NADO, Ciara worked as a Planner for the County of Santa Barbara and an Assistant Project Manager for REM Consult. Ciara holds a bachelor’s in urban studies and French from Bryn Mawr and a master’s in urban studies from Ecole d’Urbanisme de Paris.
When she’s not traveling, you can find her outrigger paddling and serving on the board of the Blue Sky Center in New Cuyama, CA, near her home base of Santa Barbara.
Carrie Kissel has been a member of the NADO team since 2005 when she began as a Research Fellow. She later moved into the roles of Program Manager in 2006, and then Associate Director in 2011. Carrie holds a bachelor’s in anthropology from Ball State University and a master’s in public anthropology from American University. As Associate Director, Carrie oversees NADO’s work in rural transportation and rural wealth creation. She provides technical assistance and support to rural regions on transportation and economic development issues and develops training and peer exchange events on transportation issues and rural wealth creation as an economic development strategy.
Carrie is a member of the Transportation Research Board (TRB) and secretary of TRB’s Rural Transportation Issues Coordinating Council. She is also a member of the American Anthropological Association and the National Association for the Practice of Anthropology.
Reading, gardening, hiking, and kayaking are a few of Carrie’s hobbies, and she organizes a book club in her community.
Melissa Levy has worked at NADO as a Regional Development Researcher since February 2023 and is the Principal Consultant at her own firm specializing in wealth-based economic development consulting. With a career spanning nearly 30 years, Melissa brings a breadth of knowledge to her role as a Regional Development Researcher. Melissa provides in-depth research, coaching, and training on regional economic resilience, rural wealth creation strategies, and economic development.
Melissa is a North American Food Systems Network trained AgriCluster Resilience and Expansion (ACRE) facilitator and a WealthWorks coach, facilitator, and trainer. In addition to her professional work, Melissa serves on the Vermont Urban and Community Forestry Council, on the board of the Hinesburg Community Resource Center, and on the Hinesburg Economic Development Committee.
A true outdoorswoman, Melissa enjoys cross country and downhill skiing, paddleboarding, hiking, biking, and kayaking, as well as yoga, and teaching Tai Chi.
Program Manager Krishna Kunapareddy began her role with NADO in February of 2023 after 14 years of service at Boonslick Regional Planning Commission in Missouri. Krishna manages NADO Research Foundation’s Planning and Environmental Linkages and Center for Environmental Excellence projects. In addition to researching and writing, Krishna also conducts virtual workshops on innovative tools and techniques related to transportation planning.
She holds an undergraduate degree from Andhra University and a master’s from JNT University in India, as well as a master’s in city and regional planning from the University of Texas at Arlington. Krishna is also a certified Smart Cities Academy Practitioner and holds the Location Advantage certificate from geographic information system software company ESRI.
In her spare time, Krishna volunteers with Mentors4College helping high schoolers better plan for their post-high school paths. She is also a dedicated advocate for documented H4 Dreamers.
Krystal DeLeon joined the NADO team in October of 2020 as Database & Grants Manger, but in January of 2022 transitioned to her current role as Operations Manager. Krystal keeps NADO running through behind the scenes work of invoicing, solving any database issues that may arise, producing membership reports, and much more. Her organizational skills and thorough knowledge help the NADO team operate more efficiently across all departments.
Prior to NADO, Krystal was the Conference Services Coordinator for State Services Organization. She is a Certified Meeting Professional (CMP), a licensed realtor, and holds a bachelor’s in psychology from Liberty University. When she’s not keeping NADO’s operations in order, Krystal enjoys running and rock climbing, and adventuring with her husband and son.
Senior Program Manager Bret Allphin joined NADO in April of 2022 bringing with him a wealth of knowledge after a 20-year career with Buckeye Hills Regional Council in Marietta, Ohio. In addition to his bachelor’s in political science and master’s in public affairs, Bret is licensed Geographical Information Systems Professional (GISP). He is NADO’s go-to team member for all things mapping while also supporting members with transportation and economic development technical assistance services.
An avid sports aficionado and former collegiate athlete, Bret enjoys cheering on his Cincinnati Reds, hitting the trails on his mountain bike, and improving his golf game whenever possible. Bret is an involved community member in Marietta dedicating much of his spare time to serving on local nonprofit boards.
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Joe McKinney serves as Executive Director of the National Association of Development Organizations (NADO). Headquartered in Washington DC, NADO provides advocacy, education, research, and training for the nation’s 500+ regional planning and development organizations.
Joe has thirty-one years of experience having served in city, county, regional, national association, and government management since 1991. He holds a bachelor’s degree in Public Policy Analysis from the University of North Carolina at Chapel Hill and is a candidate for a master’s degree in Public Administration from UNC-Chapel Hill.
McKinney has provided congressional testimony on numerous occasions regarding the importance of regional development organizations in helping shape the nation’s economic growth. He is nationally recognized for promoting innovative solutions in areas such as planning and economic development, workforce development, transportation and transit, and aging services.