Transportation Investments and Tourism Development at the Pine Ridge Indian Reservation Corridors in Shannon and Jackson Counties, South Dakota

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Transportation Investments and Tourism Development at the Pine Ridge Indian Reservation Corridors in Shannon and Jackson Counties, South Dakota
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                     Transportation Investments and Tourism Development at the
                     Pine Ridge Indian Reservation
                      Corridors in Shannon and Jackson Counties, South Dakota
                       Prepared for the Federal Highway Administration

                      Summary Report
                       May 2003

                       ICF Consulting
                       9300 Lee Highway
                       Fairfax, Virginia 22031
                       Tel 703-934-3000
                       Fax 703-934-3740

                       Under direction of AECOM Consult
                       2751 Prosperity Avenue, Suite 300
                       Fairfax, VA 22031
                       Phone: 212-973-2900
                       Fax: 703-641-9194

                      OVERVIEW
                       This study focuses on the Pine Ridge Indian Reservation in South Dakota, an area with limited
                       private economic activity and a transportation network that suffers from chronic under funding
                       of construction and maintenance needs (as determined by the Bureau of Indian Affairs). The
                       transportation conditions facing Pine Ridge Reservation do not currently support opportunities
                       for economic development. Specifically, the sub-system of the reservation transportation
                       infrastructure needs improvement in order to provide both efficient linkages to the regional
                       system and internal connectivity. Not only does the resulting lack of accessibility hinder
                       residents' access to goods and services, but also the ability of the area to realize the economic
                       gains that improved accessibility can support.

                       This study establishes a framework for analyzing the linkages between transportation
                       investments and economic development by focusing the analysis on tourism, a key sector that
                       offers great potential for economic development and that is dependent on improvements to
                       transportation infrastructure. The study pursues a five-step approach that focuses on
                       determining the transportation needs of the tourism sector and evaluating the economic
                       impacts of sector development that are linked to highway investments.

                       Existing socio economic conditions

                       Pine Ridge Reservation, situated in the southwestern region of South Dakota, is home to the
                       Oglala Lakota/Sioux. The reservation boasts a rich culture and history, as well as stunning
                       natural scenery. The north part of the reservation includes the South Unit of Badlands National
                       Park, which is an area of dramatic ridges, peaks, and mesas.

                       Despite the cultural and natural assets of the reservation, socio-economic indicators
                       demonstrate a profound need for economic development. In 1989, Shannon County, which is
                       entirely within the boundaries of the reservation, was the lowest-income U.S. County with 63%
                       of the population below the poverty line (1). By 1999, this had improved only marginally, with
                       53.4% of the population continuing to live below the poverty line, compared to 13.2% for the
                       state as a whole (2). According to a 1995 Statistical Brief by the U.S. Census, 18.2% of native
                       American households living on the Pine Ridge Reservation lack complete kitchen facilities, and
                       58.6% do not have a telephone in their homes (3). Furthermore, there are limited opportunities
                       for residents and visitors to spend money on the reservation, resulting in excessive leakage
                       from the economy and limited circulation of money within the economy. The Rapid City SMA is
                       the center of the Region's economy, accounting for 92% of total personal income and 93% of
                       total employment in the three-county region of Jackson, Pennington and Shannon (4).

                       With limited resources, few reservation employment opportunities, excessive leakage of dollars
                       from the reservation economy, elevated unemployment, and the majority of the population
                       living below the poverty line, improving the quality of life for the approximately 20,000
                       reservation residents represents a challenge.

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                       STUDY APPROACH

                       The study examines how transportation investments can support local economic development.
                       As depicted in Exhibit 1, rather than starting with a set of pre-defined transportation
                       improvements and estimating the associated economic benefits, the approach used in this
                       study seeks first to examine the region's economic development strategy, and then to
                       determine the transportation investments that would be needed to support this strategy. In this
                       study, investment in transportation infrastructure is treated as a necessary, but not sufficient,
                       condition for economic development. Our approach estimates the benefits of a realistic scenario
                       of economic activity that could be generated in a key sector (tourism), assuming that all
                       necessary factors have been implemented, and discusses the transportation infrastructure that
                       would be necessary to support that sector.

                       Exhibit 1:Study Approach

                       Step 1: Assess Region's Economic Development Potential

                       The first step identified potential areas of economic growth at the reservation, so as to
                       understand the potential positive impacts of investments in infrastructure. The economic
                       development projects in the reservation region that are currently at some stage of progress
                       were assessed, with the objective of determining the focus of the economic benefits to be
                       measured. This involved site visits to Pine Ridge, interviews of key local officials, and reviews of
                       relevant studies and data.

                       Findings

                       Projects identified were in the following sectors: tourism, manufacturing, waste management,
                       and services (including business, education and health). In consultation with local stakeholders,
                       [1]the following measures were identified as goals of economic development for the Pine Ridge
                       Reservation:

                           • Job creation
                           • Increase the numbers of businesses
                           • Increase revenues to tribe
                           • Increase 'turnover' or 'circulation' of dollars within the reservation
                           • Improve access to services, e.g. education and health

                      Step 2: Towards An Economic Sector Strategy
                       The second step focused on identifying a sector that would offer economic development
                       benefits to Pine Ridge. To effectively examine the links between transportation investments and
                       economic development, this sector should represent an area in which transportation
                       improvements could play a key role. In consultation with local stakeholders, economic
                       development projects and plans for the study area were reviewed. Once a sector was identified
                       based on a review of local economic data, additional research of comparable data was
                       conducted to determine the potential of the selected sector to generate economic gains.

                       Findings

                       In consultation with the stakeholder group, it was determined that this study should focus on
                       the tourism sector and its linkages to transportation improvements. A review of economic
                       development projects and plans demonstrated that the preponderance of initiatives were in the
                       tourism sector. Furthermore, analysis of relevant data supported the hypothesis that tourism
                       offers the potential for economic benefits to Pine Ridge.

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                       Capitalizing on assets: Tourism Development

                       There is a strong regional tourism market in Southwestern South Dakota from which Pine Ridge
                       can draw. The combination of such nearby destinations as Badlands National Park, Crazy Horse
                       Memorial, Mt. Rushmore, the Black Hills and Wall Drug (a mega tourism shop) attract more
                       than two million visitors each year. As shown in Exhibit 2, these tourists have higher levels of
                       expenditures than do tourists in any other region in South Dakota.

                       Exhibit 2:Visitor Expenditures by Volume and Regional Share

                                      Region             2001 Volume($)    Regional Share (%)

                       1. Glacial Lakes and Praries     66,206,801        11

                       2. Southeast South Dakota        1,333,233,526     22.2

                       3. Great Lakes                   75,329,141        12.5

                       4. Black Hills, Badlands and Lakes 326,512,090     54.3

                       Entire State                     601,281,558       100

                      Source: Madden
                       Furthermore, Pine Ridge itself boasts notable cultural and natural resources, which include the
                       rich Oglala Lakota/Sioux culture, the stunning South Unit of Badlands National Park, the
                       historically significant site of the Wounded Knee massacre, the Prairie Winds Casino, and the
                       proposed Lakota Heritage and Education Center.

                       Despite such on-reservation and nearby assets, tourism is limited at Pine Ridge, and the
                       economic benefits to Pine Ridge from tourism are minimal. Although the South Unit of Badlands
                       National Park, which is in the reservation, offers views that are equal to those of the North Unit,
                       which is not in the reservation, the North Unit receives 27 times more visitors than does the
                       South Unit. Much of the reason for this disparity can be traced to the fact that the North Unit's
                       infrastructure supports tourism, while the South Unit has almost no such infrastructure.

                       The lack of visitation at Pine Ridge converts into limited spending, a pattern compounded by the
                       lack of opportunities that exist for tourists to make purchases. Unlike nearby tourist areas,
                       there are few hotels, motels, restaurants, gift shops or other tourism-related goods and
                       services located on the reservation. Current visitor sales for lodging, eating and drinking
                       establishments (including non reservation spending) in the Pine Ridge Counties of Shannon and
                       Jackson are $480,241 and $6,467,501, respectively. This compares to $151,685,199 for the
                       adjacent Pennington County, where Mount Rushmore, the North Unit of Badlands National Park
                       and Wall Drug (a retail tourism related store) are located. Indeed, Wall Drug alone, which lies
                       within 20 minutes of the northern border of the reservation, takes in more than $10 million a
                       year and draws some two million annual visitors (5).

                       Past and current initiatives show that local stakeholders envision the potential of tourism as an
                       economic driver at Pine Ridge. These initiatives include: 1) Lakota Heritage and Education
                       center, which would also serve as a visitor center to the South Unit of Badlands National Park;
                       2) expanded Prairie Winds Casino; 3) establishment of a second casino, near I-90; 4) guided
                       driving circuits, such as the Crazy Horse Scenic Byway; and 5) appropriate treatment of the
                       Wounded Knee site.

                       The tourism sector represents an area in which transportation improvements could play a key
                       role. Local stakeholders also requested that accessibility to basic goods and services not be
                       ignored in this study, as it is such an important element in both economic development and
                       transportation. Infrastructure improvements and economic growth that support tourism would
                       also bring substantial benefits to basic accessibility.

                       Assessing the potential of the tourism sector: projected visitation

                       The number of visits is the key driver of both the transportation analysis and the calculation of
                       economic benefits for this study. Therefore, considerable time was spent in projecting the
                       number of tourists that could be expected given a fully developed tourism sector. Sources of
                       this projection included: 1) analyzing current visitation to regional tourism attractions, (6); 2)
                       reviewing related forecasts from feasibility studies for the Lakota Heritage and Education Center
                       and the Prairie Winds Casino expansion; and 3) obtaining comparable statistics from other
                       Indian reservations and state tourism agencies, e.g. Hualapai Nation, AZ, Navajo Nation, AZ;
                       and Great Lakes Inter-Tribal Council, WI, Yakama Nation, WA.

                       Drawing on the above information, it was projected that by year 15, visitations would be
                       comparable to the current Badlands National Park visitation of approximately one million
                       visitors per year. As discussed under Step 3 (below), this visitation estimate was then used to
                       derive an estimated Average Daily Traffic (ADT). The projected traffic volume was then used to
                       determine the adequacy of the current road infrastructure to accommodate increased tourism
                       traffic and to assess the infrastructure upgrades that would be necessary.

                       Step 3: Assess Transportation Needs And Investments Relevant To Economic Sector

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                       The inadequate transportation conditions facing Pine Ridge Reservation do not currently support
                       economic development. Although there is a good regional network of roads serving the larger
                       area, including Interstate 90 and the planned Heartland Expressway (a project that focuses on
                       widening SD 79 from a two to a four lane facility), the sub-system of the reservation's
                       transportation infrastructure needs improvement in order to provide efficient linkages to the
                       regional system and to provide internal connectivity, particularly east-west. There is a chronic
                       short- and long-term under-funding of construction and maintenance needs. [2]

                       To determine the transportation investments that are needed to support the economic benefits
                       associated with a mature tourism sector, discussions were held with the key transportation
                       stakeholders, including representatives from the Bureau of Indian Affairs Indian Reservation
                       Roads program, Oglala Sioux Transportation, Federal Highway Administration, and South
                       Dakota Department of Transportation (SD DOT). In addition, the following key transportation
                       planning documents that are relevant to the area were reviewed: the Statewide Transportation
                       Improvement Plan (STIP), the Indian Reservation Roads Transportation Improvement Plan (IRR
                       TIP), the Heartlands Expressway Feasibility Study, and the Crazy Horse Scenic Byway Proposal.

                       Based on these consultations and document reviews, and in combination with an understanding
                       of the locations of key potential tourism attractions, it was determined that the following routes
                       would form the basis of a transportation network that would serve tourism on the reservation:
                       SD 18, 73, 44, 79 and BIA 2, 27, 28, 33 and 41.

                       To gauge the impact of the increased tourism visitation on the network, the analysis involved
                       estimating the average daily traffic (ADT) at the upper limit of visitation. That upper limit is
                       expected to occur in the peak tourism month (August) in the final year (year 15) of this study's
                       projections (please refer to Exhibit 3).

                       Exhibit 3: Estimating Peak Monthly Traffic Volume

                       1. Estimate Year 15 Annual Traffic Volume

                      Estimating Annual Traffic
                      Volume: Year 15
                        Trip Type             No. Trips

                       Person Trips

                       Day             957,479

                       Model           105,120

                       Camp            42,516

                       Total           1,105,115

                       Auto Trips

                       # per auto      204

                       Total # autos 541,723

                       2. Estimate Year 15 Peak Season Monthly Traffic Volume.

                      Estimating Monthly Tourist Traffic Volume: Year 15
                                    Jan       Feb    Mar    Apr    May     June    July    Aug     Sep     Oct    Nov    De

                       Monthly    5,417 5,417 5,417 10,834 32,503 108,345 135,431 146,265 59,590 21,669 5,417 5,4
                       Visitation

                       Seasional    0.01      0.01   0.01   0.02   0.06     0.2    0.25    0.27    0.01    0.01   0.01   0.0
                       Weights

                       ADT          181       181    181    361    1,083   3,611   4,514   4,718   1,986   722    181    18

                       3. Determine monthly ADT

                      Maximum Monthly Traffic
                       Trip Type               ADT

                       Tourist        4,718

                                      472

                       TOTAL          5,190

                       The projected increased traffic volume of 5,200 ADT was then applied to the key state and local
                       roads mentioned above so as to ascertain whether these roads, in their current conditions,
                       could sustain such an increase in traffic, and the levels of investments that would be needed to
                       provide adequate levels of service to tourists, residents, and other users.

                       Regional/State Roads

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                       At the regional level, the impacts of increased ADT in terms of necessary improvements and
                       investments were discussed with South Dakota DOT, taking into account improvements that
                       were already planned and detailed in the statewide transportation improvement plan.

                       Local/BIA Roads

                       Given the current under-funding of construction and maintenance of BIA IRR roads, it was
                       expected that increases in ADT at the sub-system level (BIA on-reservation roads) would
                       require substantial investments both in terms of construction and maintenance to ensure
                       adequate levels of service.

                       The impacts of increased ADT at the sub-system level were investigated using a model
                       developed by BIA that generates estimated costs-to-improve. These costs are a function of
                       traffic volume, road functional class, surface type, and terrain. Together, these factors are
                       combined to arrive at an "adequacy design standard". The estimated 'costs-to-improve'
                       represent the investments that are needed to improve the roads to specified adequacy design
                       standards.

                       For the purpose of this study, the model estimated the costs-to-improve based on an increase
                       in tourism traffic volumes, higher road functional class, improved surface type, and revised
                       adequacy design standards. Given the higher ADTs projected, all key roads were assigned
                       asphaltic cement concrete surfaces and elevated to Class 2 (from Class 4) in terms of their
                       functional systems. These estimated costs-to-improve associated with the tourism sector were
                       then subtracted from BIA's previously established baseline estimated costs-to-improve (which
                       were based on the expected growth in traffic volume over the period without the potential
                       effects of the projected growth in tourism) to yield marginal construction costs invested in Year
                       1. Final total costs were determined by adding the additional maintenance costs over the fifteen
                       -year period to the additional construction costs.

                       Findings

                       Regional (System)

                       Based on feedback from SD DOT, it was determined that the regional system of roads (SD 18,
                       73, 44, 79) could adequately support the projected increase in traffic. Per SD DOT, the
                       threshold for major road improvements (e.g., widening from 2 to 4 lanes) is traffic volume
                       above 6,000. SD DOT believes that the projected increases in traffic from a mature tourism
                       sector may eventually require improvements to turning lanes and signage, and these potential
                       needs can be examined once the traffic flow increases.

                       Local (Sub-System)

                       Using the BIA 'estimated costs-to-improve' model, the marginal costs-to-improve for BIA
                       Routes 2, 27, 28, 33 and 41 were projected as $61,326,000 (using a 7% discount rate). It was
                       also estimated that $11,982,000 would be needed over the 15-year period to fill the current
                       funding gap in maintenance of $3200 per mile (BIA current maintenance costs are $1300 per
                       mile compared to needed maintenance costs of $4500 per mile). As shown in Exhibit 4, this
                       study estimates that a total of $73,308,000 in transportation investments (construction plus
                       maintenance) would be required to provide adequate service.

                       Exhibit 4: Construction and Maintenance Costs Associated with Tourism Traffic
                       ($000ms)

                                                     BIA 2   BIA 27   BIA 28   BIA 33    BIA 41   Total

                       Construction Costs           14,392 23,879     2,029    13,516   7,510     61,326

                       Maintenance Costs 7% discount 4,273   3,774    265      1,463    2,206     11,982

                       Total                        18,664 27,653     2,295    14,979   9,716     73,307

                       Features of an improved road network would include better pavement quality, road dimensions
                       and characteristics, lighting, and signage.

                      Step 4: Analyze Economic Benefits of Tourism
                       To estimate the economic benefits of a mature tourism sector to the reservation, a spreadsheet
                       model was used that estimates visitor spending in the region and uses multipliers to project
                       secondary effects. The analysis sought to derive an estimate of: 1) the number of jobs created,
                       additional income, and additional sales revenue generated from the additional tourists, and 2)
                       the secondary effects on the local economy.

                       The study estimated the economic impact of visitor spending on the reservation economy that
                       could be associated with a growing tourism sector over a 15-year period. For this part of the
                       analysis, the Michigan Tourism Economic Impact Model (MITEIM) was used. This model is
                       especially well suited to assess the effects on increased tourism in rural areas with limited
                       economic development. [3]

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                       Developed at Michigan State University, the model relies on specific profiles of visitor spending
                       (either default values or project-specific profiles can be used) for each type of traveler, each of
                       which is a "visitor segment." The types are divided according to whether the visitor stays at a
                       hotel, camps, or is simply a day visitor. Surveys show that these segments have different
                       spending profiles. The spending profiles are used to estimate total direct spending by visitors
                       and are then combined with a set of sector-specific multipliers to produce an estimate of
                       secondary and, then, total economic impacts of visitor spending. The model estimates spending
                       in up to 12 categories for as many as 12 visitor segments.

                       In sum, using the number of visits projected, the breakdown of visitor segment, and the
                       average spending per visitor (by segment), the model applies economic ratios and multipliers to
                       derive an estimate of direct, secondary, and total effects measured in terms of jobs, sales, total
                       income, and value added.

                      Determining model inputs
                       Using a series of assumptions for each input, the study projected the number of visits over the
                       15-year period, the breakdown of visit segments, and associated spending per visit. The
                       following assumptions were made for this study:

                            • Visits:the number of visitors increases as more tourism facilities and attractions are
                              developed, arriving at final-year visitation that is comparable to the current visitation
                              of approximately 1 million at the Badlands National Park. (Note that this study does
                              notproject that the reservation will receive the far-higher number of visitors that go to
                              Mt. Rushmore).
                            • Visit segment:the percentage of total visitors who spend one night or more at the
                              reservation increases over the 15-year period, as the reservation offers more options
                              to overnight visitors.
                            • Spending:the average spending per person increases over the 15-year period, as the
                              local economy becomes more complex and offers more opportunities for visitors to
                              spend.

                       Findings

                       As shown in Exhibit 5, at the end of the 15-year analysis period, the cumulative economic
                       benefits of a mature tourism sector are estimated at $153,026,000 (using a 7% discount rate).
                       By 2020, job created would be 1,375.

                       Exhibit 5: Economic Benefits of a Mature Tourism Sector ($000ms)

                                                                  Year 1 (2006) Year 15 (2020) 15-Year Total

                       Visits (party night)                       111,611       404,948         4,189,073
                       Total Visitor Spending ($000's)            12,737        47,436          446,425
                       Total Sales ($000's)                       15,123        51,931          500,245
                       Total Jobs                                 409           1,375           n/a
                       Total Income ($000's)                      5,257         18,020          175,292
                       Total Value Added ($000's)                 8,634         28,948          281,558
                       Total Value Added (discounted @ 7% $000's) 8,069         10,492          153,026

                       To capture the increasing economic benefits over the period, it is anticipated that the tourism
                       sector on the Pine Ridge Reservation would mature to offer a range of goods and services that
                       could include the following: restaurants; hotels; arts and crafts shops; other goods and services
                       located in the main centers of economic activity (e.g., retail); development of related industries
                       that are needed to support the tourism industry through backward linkages (e.g., linen services
                       and food producers); and tourism-related services (e.g., travel services and tour operators).

                       Though the businesses and institutions offering goods and services are not tourism attractions
                       by themselves, their development is key to supporting a thriving tourism sector. Thus, as the
                       economy becomes more complex and offers more opportunities for tourists to spend, the
                       economic benefits rise over the 15-year period, generating the extent of direct and secondary
                       effects estimated by the analysis.

                      Step 5: Linking Economic Benefits To Transportation Investments
                       Improvements in transportation infrastructure represent one of the key investments that would
                       support development of a successful tourism sector. The study assumes that without the
                       identified highway improvements, a mature tourism sector at Pine Ridge would not develop.
                       Capturing the full benefits of tourism is therefore linked to and dependent on these
                       transportation improvements. However, as highway economic development studies have
                       shown, improved highways need to be part of a suite of investments, programs, and policies
                       that together can generate sustained economic development benefits. As such, the study also
                       examines the additional features of a successful tourism sector.

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                       Findings

                       To develop a tourism sector that attracts one million tourists per year, local BIA roads on the
                       Pine Ridge Indian Reservation will need to be upgraded and maintained. Therefore, realizing the
                       full economic benefits of a mature tourism sector is, in part, dependent on transportation
                       improvements that form a core tourism asset network (see Exhibit 6).

                       Exhibit 6: Pine Ridge Reservation and Vicinity: the Badlands are on the Northern
                       Border of the Reservation and the Black Hills, Rapid City and Mt. Rushmore are just
                       Northwest of the Reservation. I- 80 is Just North of the Reservation Serves Rapid City

                       By enhancing accessibility to the Pine Ridge Indian Reservation and internal connectivity within
                       the reservation, transportation improvements can help the reservation capitalize on its
                       comparative advantage in tourism. Improved accessibility will support an increased number of
                       tourists and total spending within the local economy, enhance residents' access to basic goods
                       and services, and support the long-term development of other industries, thereby promoting
                       economic development.

                       Nonetheless, transportation improvements, by themselves, will not bring about the projected
                       economic benefits. Other actions that will need to be taken include: full development of
                       "anchor" destinations; implementation of a communications and marketing strategy; and
                       creation and organization of local tourism related institutions. As a result, the full costs of
                       developing the tourism sector are greater than the $73 million in transportation investments
                       that this study estimates as necessary.

                       On the other hand, the full benefits of those transportation investments are also not captured
                       here. Other benefits from such investments (not analyzed in this study) include: better access
                       to basic goods and services, including health and education services and greater support for
                       non-tourism economic activities. As a result, the full potential benefits of the transportation
                       investments that are needed to support a mature tourism sector would be greater than the
                       $153 million that this study estimates from tourism alone.

                      SUMMARY

                       Insufficient transportation infrastructure is one of the key obstacles to the development of a
                       tourism industry in the Pine Ridge Reservation. Elements of this insufficiency include limited
                       access to key tourism regions within the reservation, a severe lack of informational signage and
                       other marketing tools targeted to tourists; and poorly maintained and inadequate road
                       conditions on the reservation. The problems with transportation combine with a lack of well-
                       developed tourism facilities to produce a highly under-performing sector relative to its potential,
                       in terms of economic benefits.

                       This study finds that, assuming implementation of a suite of supportive initiatives, a mature
                       tourism sector at Pine Ridge could attract more than one million visitors each year, translating
                       into an estimated total economic effect of more than $153 million over a 15-year period. By
                       year 15, tourists would generate more than one million auto trips/year. An average of 5,200
                       vehicles day would be added to the reservation road network during the peak tourism month.

                       Local transportation infrastructure enhancements that would be needed to provide adequate
                       levels of service include upgrading the functional class of key roads and performing adequate

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                        maintenance throughout the life-cycle of the improved roads. The costs of these transportation
                        investments are estimated at $73.3 million.

                      REFERENCES
                            1. Aoki and Chatman. An Economic Development Policy for the Oglala Nation, Harvard
                               Project on American Indian Economic Development, Harvard University, 1997, Book 2,
                               Page 7; citation from County Income and Poverty Estimates; 1990 Census Estimates:
                               South Dakota, 1989.
                            2. United States Department of Commerce, Census Bureau. Census 2000.
                            3. U.S. Department of Commerce. Housing of American Indians on Reservations -
                               Equipment and Fuels. Bureau of the Census, Economic and Statistics Administration,
                               April 1995.
                            4. Propst, Dennis, Stynes, Daniel and Sun, Ya-Yen. Economic Impacts of Badlands
                               National Park Visitor Spending on the Local Economy, 2000 Michigan State University,
                               January 2002.
                            5. New York Times, 1999 as posted on the Wall Drug website, http://www.walldrug.com/

                        [1]A key feature of the study was the establishment and involvement of a stakeholder advisory
                        committee. Members included economic development and transportation officials from the
                        Oglala Sioux Tribe (OST); the superintendent of Badlands National Park; the Director of the
                        local Empowerment Zone; representatives of the Bureau of Indian Affairs Indian Reservation
                        Roads; the Director of the Lakota Fund, a non-profit micro-enterprise venture capital fund.
                        Local representatives of FHWA were also involved, as was South Dakota Department of
                        Transportation.

                        [2]The Bureau of Indian Affairs Indian Reservation Roads (IRR) program oversees the local
                        road system.

                        [3]The model has been applied previously to visitation at Badlands National Park.

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