T he US Constitution provides that Native American tribes are sovereign-dependent nations and their interactions with the federal government, including the cession of the tribal lands that formed America, are governed by a complex set of treaties. For decades, federal law and public policies have defined the formal, legal relationship between agencies such as the US Department of Agriculture Forest Service (USDA FS) and federally recognized Indian tribes. However, this formalized partnership has never been an easy one, long strained by misunderstanding, misgivings, missed opportunities, and political expediency. When President William J. Clinton issued Executive Order 13175 (“Consultation and Coordination with Indian Tribal Governments”; since approved and upheld by the two subsequent Administrations) in 1996, could any different outcome be expected? An opportunity to forge a new partnership arose in 2001, when during the revision of the Ouachita and Ozark St. Francis National Forests (hereafter, “Forests”) respective land and resource management plans, the Forests were asked to conduct face-to-face consultations on the Arkansas and Oklahoma homelands of the federally recognized Oklahoma Tribes (Absentee Shawnee, Caddo, Cherokee, Choctaw, Chickasaw, Citizen Potawatomie, Creek, Delaware, Eastern Shawnee, Kaw, Quapaw, Seminole, Shawnee, and Osage, among others; hereafter, “Tribes”). The management of cultural and natural resources is extremely important not only to the Forests but also to many Tribes that were removed from their homelands, making the development of a viable forum permitting both formal and informal dialogues between the USDA FS and the Tribes vital. The first of these consultative meetings, organized in 2002, was given the name “To Bridge A Gap” (TBAG) by Bobby Gonzales, Native American Graves Protection and Repatriation Act (NAGPRA) coordinator for the Caddo Nation, to signify the differences among the various people, cultures, governments, and participating agencies. The success of the first TBAG meeting led to its rapid expansion to include the entire Southern and Eastern Regions of the USDA FS, all 39 Oklahoma Tribes (and tribes from other states), other government agencies, numerous academic institutions, private industry, and archeological/ engineering consulting firms. Now entering its 14th year (Table 1), the annual TBAG meeting represents an official government-to-government interaction planned and funded by all parties and focused on mutual interests in the management of archaeological, natural, and cultural resources of the Forests. TBAG provides a venue for Tribes to develop bonds of trust and communication and establish practical ways of restoring ecosystems while seeking to benefit all participants. These interactions and opportunities are expressed in the TBAG logo (Figure 1). The ultimate goal of TBAG is to provide a permanent platform with a central setting for Tribes to meet with other stakeholders and interested parties. For Tribes, some of the benefits that immediately began to accrue involved the introduction to federal employees who are mandated to protect and preserve public resources and cultural heritage, including the location and protection of sites related to those Tribes with patrimony interests on federal lands. Other recent positive Tribal outcomes from TBAG include the achievement of National Historic Preservation Act Section 101D2 Status for Tribal Historic Preservation Offices, the granting of special use permits for collection of Forest resources for ceremonial purposes, a discussion of Traditional Cultural Properties and Rock Art studies, and NAGPRA repatriation and reburial issues. Tribal Elders can now more readily provide the Forests guidance in NAGPRA-related repatriations of human remains and funerary objects. In addition, Osage and Caddo Elders meet privately to discuss protocols on repatriation of human remains recovered from federal lands within their joint homelands. The USDA FS may be the biggest beneficiary of the TBAG meetings. USDA FS staff members develop personal relationships with sovereign dependent Nations and individuals who review and consult on specific projects and operations. Locally, the Forests have received Tribal feedback on land exchanges and developed master agreements to improve the consultation process and solicit Tribal input. Regionally, consultations have expanded to include the Daniel Boone National Forest (for the Shawnee), Alabama and Mississippi National Forests (Chickasaw and Creek), and Allegheny National Forest (Delaware). Heritage Resource Technician training programs are provided
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