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An Examination of Tribal Nation Integration in Homeland Security National Preparedness
Don Reed, Ph.D.
“The most important failure was one of imagination.”
- The 9/11 Commission Report
Margaret Muhr, MA
Dore Bietz, BS
National Tribal Assistance Coordination Group Workshop
November 5, 2015
Perspective – Native American Experience“We know that we can’t turn back the clock…But, understand…It is hard, very hard, to know that the land that was once ours will never ever again be our hunting grounds. We understand that we must change – and we are changing – but remember: it once was our land, our life, and it is hard.”
David Courchene, 1969President, Manitoba Indian Brotherhood
2
“The Nation is integrating tribal partners more systematically into preparedness…Despite these improvements, serious challenges remain for tribal and Federal partners to implement these new policies successfully.”
Department of Homeland Security, 2014National Preparedness Report
“This is the task at hand, to move toward a more perfect union. And when we do, we’ll always be able to say, that the State of Indian Nations is strong, and the future prosperity of America is secure.”
Jefferson Keel, 2013President, National Congress of American Indians
Problem – The Post-9/11 World is ChangingTrends
• Globalization• Climate Change• Shifting Demographics• Demand and
Competition for Natural Resources
• Technology Advances• Social Networking
3
OutcomeIncreased
Networked Dependency
OutcomeExpanded
Domains of Conflict
OutcomeBoundaries
Blurred(War vs Crime)
OutcomeSecurity Buffers
Eliminated (Time,
Distance, Borders)
Evolving Homeland
Security Environment
Emerging Actors And Threats
Threats• Human• Ascendant & Rogue
States• Transnational Networks• Super-empowered
Groups & Individuals• Illicit Trafficking• Homegrown Extremists
• Environmental• Natural• Manmade
OutcomeComplex
Catastrophes
OutcomeCascadingNetworkFailures
OutcomeExpansion of
Self-Organizing
Human Threats
OutcomeDisasters
More Frequent,
Widespread
No Stakeholder is Immune
Solution – The Post-9/11 Approach
4
National Preparedness Integration
Actions taken to plan, organize, equip, train, and exercise to build and sustain the capabilities necessary to prevent, protect against, mitigate the effects of, respond to, and recover from those threats that pose the greatest risk to the security of the Nation.
Tenets:• Integration into a holistic whole – federal, tribal,
state, local, non-government• Shared responsibility of all stakeholders – “all-of-
nation” approach• Risk-based, integrated planning – prevention,
protection, mitigation, response, recovery• Mutual increased security and reduced
vulnerability
The Gap – Tribal Nation Integration
5
Gap Between Policy and Practice• People (est. 2.9M) –
• Historically disenfranchised and impoverished
• History of radical activism• Vulnerable to both exploitation
and homegrown radicalization
• Land (est. 55M acres) –• Isolated and economically depressed • Crossed by state/national critical
infrastructure networks• Potential conduits for illegal trafficking –
money, drugs, weapons, humans
• Tribal nation integration countered by proliferation and rewriting of court decisions, legislative acts, executive orders and government policies• Issue is uncertain, complex, and polarizing nature (Roe, 1994) • Narratives of stakeholders offer better understanding
Social & Economic
Factors
AIM, Alcatraz, Trail of Broken
Tears, Pine Ridge
Youth Gangs, Republic of Lakota / Mazacoin,
Wayuu Islamic Autonomy
25 Nations, 165 Miles of International Border / Dams, Water, Electric,
Transportation
Study – Collecting the Stories
• To understand the impacts of national preparedness policies on federally-recognized tribal nations, as revealed in stakeholder narratives
• Government (conventional) narrative: • Federal Emergency Management Agency (FEMA) – lead role in national
preparedness policy development and implementation• Bureau of Indian Affairs (BIA) – role in administering tribal national disaster
preparedness• U.S. Northern Command (USNORTHCOM) – unique military support role in national
preparedness
• Tribal nation (counter) narrative:• Federally-recognized tribal nations – unique status in relation to the federalist
model for national preparedness• Nongovernmental organizations – work on behalf of tribal nations for national
preparedness (Tribal Emergency Management Association (iTEMA), National Tribal Emergency Management Council (NTEMC)
• Metanarrative for recommendations on how to recast policy on tribal nation integration into national preparedness
6
Narrative Policy Analysis
iTEMA
NTEMC
• 21 Study Participants
• Subject Matter Authority
• Open-ended, Standardized
Questions
Study – The Research Questions
• Primary
• How have tribal nations experienced the effects of national preparedness policy in homeland security since 9/11?
• Sub-questions
• What have tribal nations experienced in national preparedness, and how have they experienced it, as a result of homeland security policies implemented since 9/11?
• What have been tribal nation responses (stories to be told) to these experiences?
• What meanings (turning points) do stakeholders ascribe to these experiences?
• What are the implications of these experiences?
7
Results – Government Narrative
8
Impact of SRIA good
Complexity of threats
Sheer number and wide
diversity of tribal nations
Yes on tribal nation EMAC
“Pan Indian” view exists in government
Cultural differences and lack of
understanding exists between
government and tribal nations
Pro forma approaches
No single tribal voice
Need for greater resourcing and
inclusion of tribal nations
Disaster thresholds too high for
tribal nations
Tribal nations 10-12 years
behind nation
Government policies not
always effective
Tribal liaison a collateral
dutySplit on
tribal nation ESF
What the Government Participants Said
Results – Tribal Nation Narrative
9
What the Tribal Nation Participants Said
Need for resources
Impact of SRIA good
Greater focus on threats,
tribal nations not immune
Greater inclusion =
“seat at the table”
“The playing
field is not level”
Disenfranchisement, special trust relationship
Historical grievances,
broken treaties
Mutual respect and
understanding
Lack of full-time
emergency managers
Do not “treat us
like children”
“One-size-fits-all” will
not work
“To plan for evil is to invite
evil”
“Don’t tell tribal nations
what to do, ask them what they
need”
Disaster thresholds not
appropriate
Partnerships not always
effective
Have to compete
with states
Preparedness is a luxury
Yes on tribal nation EMAC
Yes on tribal nation ESF
Conclusions – Metanarrative
• Future studies consider larger study population• Further studies of the nature and quality of tribal nation preparedness
partnerships at the federal, state, and local levels• More in-depth studies of narrative policy analysis themes (uncertainty,
complexity, polarization) and tribal nation themes (people, resources, approaches)
• Explore legislative / policy means to give tribal nations “greater seat at the table,” e.g., Council of Governors, greater liaison representation
• Explore greater policy clarification of federal department roles regarding tribal nations; minimize conflicts, duplication of efforts, overwhelming tribal nations
• Explore legislative means to give tribal nation tax base equivalents; reduce reliance on enterprise revenue streams or government grants for preparedness
• Explore legislative means to provide alternative flexible disaster relief thresholds for tribal nations; e.g., per-capita based approaches, or regionalization of disaster declarations
• Explore legislative / policy means to establish a national tribal nation EMAC• Explore policy means to establish greater, more effective integration of tribal
nation needs and interests in the ESFs in the NRF 10
Recommendations
Conclusions – Social Change Implications
• Give voice to tribal nations in national preparedness
• The nation has a moral obligation to fulfill its commitment to tribal nations under the terms of the social contract
• Government has a practical imperative to fully integrate tribal nations into the collective effort for national preparedness
• The two are intertwined; threats and disasters are not limited by boundaries; gaps are vulnerable to exploitation by hostile actors, cascading network effects of disasters
• Tribal nation preparedness interests are synonymous with national preparedness interests
11
An Examination of Tribal Nation Integration in Homeland Security National Preparedness
Don Reed, Ph.D.
“The most important failure was one of imagination.”
- The 9/11 Commission Report
Margaret Muhr, MA
Dore Bietz, BS
National Tribal Assistance Coordination Group Workshop
November 5, 2015
Contact
Donald (Don) J. ReedEmail: [email protected]: 719-556-8227
Study: http://scholarworks.waldenu.edu/dissertations/598/
13
Solution – The Post-9/11 Approach
14
National Preparedness Integration
Preparedness = “actions taken to plan, organize, equip, train, and exercise to build and sustain the capabilities necessary to prevent, protect against, mitigate the effects of, respond to, and recover from those threats that pose the greatest risk to the security of the Nation.” Tenets:• Integration into a holistic whole – federal, tribal, state, local, non-
government• Shared responsibility of all stakeholders – “all-of-nation” approach• Risk-based, integrated planning – prevention, protection, mitigation,
response, recovery• Mutual increased security and reduced vulnerability
Results – Participant Identified Issues
Emergent themes:
Parent Node Child Node
Data Points
Government Narrative 481 FEMA BIA USNORTHCOMTribal Narrative
210165106457
Tribal Nations Tribal NGOsTribal Nation Experiences
302155536
Preparedness Impacts Preparedness Threats Preparedness Needs Preparedness Integration Challenges/ObstaclesTribal Nation Responses Preparedness Experiences Unique Policy Conditions/Complexities Partnerships Effective Yes Partnerships Effective No Partnerships Effective Depends Tribal Nations Self Actions Taken Initiatives Working Initiatives Not WorkingStakeholder Ascribed Meanings Tribal Preparedness Program Familiarity Yes Tribal Preparedness Program Familiarity No Tribal Preparedness Program Familiarity Depends Current State of Capacity, Capability, Funding How Improve Capacity, Capability, Funding Impact of 2013 SRIA Good Impact of 2013 SRIA Bad Impact of 2013 SRIA Depends Tribal Nations Understand Admin Requirements Yes Tribal Nations Understand Admin Requirements No Tribal Nations Understand Admin Requirements DependsStakeholder Ascribed Implications Federal Disaster Relief Thresholds Too High Yes Federal Disaster Relief Thresholds Too High No Federal Disaster Relief Thresholds Too High Depends Other Criteria/Approaches Yes Other Criteria/Approaches No How Prepare Tribal Nations for Impacts or Threats What Policies/Criteria needed Role for National Tribal EMAC Yes Role for National Tribal EMAC No Role for National Tribal EMAC Depends Role for Tribal ESF in NRF Yes Role for Tribal ESF in NRF No Role for Tribal ESF in NRF Depends
6411515720041076156219035203022714191440913116164
20036282143384205181013
Tribes / TribalLack Funding / ResourcingEmergency / DisasterGovernmentTribal Size, Different, SovereignTribal Voice / Seat at TableStatesBordersFederalPolicyPreparednessEmergency Manage Assist CompactInfrastructureSandy Recovery Improvement ActThreatsUnderstandingTribal CouncilsTribal CulturesEmergency Support Function
15
Results – Researcher Established Themes
The 19 emergent themes from step one were coded to pre-established narrative themes
Parent Node Child Node
Data Points
Narrative Policy Themes 561 Uncertainty (knowledge of what matters) Complexity (intricacy/interdependence with other issues) Polarization (concentration of groups around extremes)Tribal Nation Themes
80316165563
People (stakeholders) Resources (materials/funding) Approaches (policy)
162164237
16
Results – Policy Themes
Combined Narratives Combined Policy Analysis ThemesEmergent Themes Uncertainty Complexity PolarizationTribes / Tribal 574 666 647Lack Funding / Resourcing
136 171 144
Emergency / Disaster 107 134 105Government 89 96 112Tribal Size, Different, Sovereign
55 48 66
Tribal Voice / Seat at Table 40 42 58States 38 43 52Borders 23 39 23Federal 40 45 44Policy 22 45 30Preparedness 37 47 34EMAC 34 19 76Infrastructure 29 41 31SRIA 28 38 32Threats 32 31 28Understand 24 21 18Tribal Councils 15 0 18Tribal Cultures 15 0 18ESF 0 0 0
Conventional Policy Analysis Themes
Uncertainty Complexity Polarization
162 254 235
24 52 30
29 56 27
26 33 49
7 20 27
0 0 19
6 15 330 20 05 17 150 0 99 19 66 0 130 13 00 15 96 0 06 0 0
5 0 7
17 7 9
10 17 14
Counter Policy Analysis Themes
Uncertainty Complexity Polarization
173 270 247
47 72 39
37 64 35
25 32 48
7 12 19
11 21 44
9 14 2311 34 1121 26 2510 25 1814 24 110 0 8
13 25 159 19 13
19 18 1515 12 9
0 0 8
7 0 00 0 0
Government Narrative Tribal Nation Narrative
Policy Analysis Themes
17
Uncertainty (knowledge of what matters)Complexity (intricacy/interdependence with other issues)Polarization (concentration of groups around extremes)
Results – Tribal Themes
Combined Narratives Combined Tribal Nation ThemesEmergent Themes People Resources ApproachesTribes / Tribal 615 870 674Lack Funding / Resourcing
139 228 147
Emergency / Disaster 117 168 110Government 97 131 111Tribal Size, Different, Sovereign
59 82 73
Tribal Voice / Seat at Table 42 61 57States 38 61 53Borders 26 63 26Federal 43 57 47Policy 39 57 32Preparedness 40 55 38EMAC 20 74 56Infrastructure 29 57 29SRIA 30 44 38Threats 32 42 30Understand 23 29 20Tribal Councils 0 23 19Tribal Cultures 19 0 0ESF 0 0 18
Conventional Tribal Nation Themes
People Resources Approaches
201 188 260
27 62 29
39 41 32
34 26 48
9 6 33
0 0 20
10 14 340 6 07 5 210 0 11
13 11 116 9 100 15 07 7 15
17 6 00 0 0
5 5 8
22 15 7
0 10 21
Counter Tribal Nation Themes
People Resources Approaches
217 198 269
53 73 38
47 49 40
33 25 47
18 0 32
19 21 52
9 13 2415 24 1524 20 2810 11 2018 16 160 0 0
13 27 1311 11 1919 25 1714 11 11
0 0 9
31 0 90 0 0
18
Government Narrative Tribal Nation Narrative
Tribal Nation ThemesPeople (stakeholders)Resources (materials/funding)Approaches (policy)