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S. HRG. 109–66, PT. 2

YOUTH SUICIDE PREVENTION

HEARING

BEFORE THE

COMMITTEE ON INDIAN AFFAIRS

UNITED STATES SENATE

ONE HUNDRED NINTH CONGRESS

FIRST SESSION

ON

OVERSIGHT HEARING ON THE CONCERNS OF TEEN SUICIDE AMONG

AMERICAN INDIAN YOUTHS

JUNE 15, 2005

WASHINGTON, DC

PART 2

(
COMMITTEE ON INDIAN AFFAIRS

JOHN McCAIN, Arizona, Chairman

BYRON L. DORGAN, North Dakota, Vice Chairman

PETE V. DOMENICI, New Mexico

CRAIG THOMAS, Wyoming

GORDON SMITH, Oregon

LISA MURKOWSKI, Alaska

MICHAEL D. CRAPO, Idaho

RICHARD BURR, North Carolina

TOM COBURN, M.D., Oklahoma

DANIEL K. INOUYE, Hawaii

KENT CONRAD, North Dakota

DANIEL K. AKAKA, Hawaii

TIM JOHNSON, South Dakota

MARIA CANTWELL, Washington

JEANNE BUMPUS, Majority Staff Director

SARA G. GARLAND, Minority Staff Director

(II)
(III)

C O N T E N T S

Page

Statements:

Carmona, Richard, M.D., Surgeon General of the United States ................. 3

Dorgan, Hon. Byron L., U.S. Senator from North Dakota, vice chairman,

Committee on Indian Affairs ....................................................................... 1

Flatt, Clark, president and CEO, Jason Foundation ..................................... 22

Garreau, Julie, executive director, Cheyenne River Youth Project, Cheyenne River Sioux Tribe ................................................................................. 18

Grim, Charles, director, Indian Health Services ........................................... 3

Johnson, Hon. Tim, U.S. Senator from South Dakota .................................. 7

McCain, Hon. John, U.S. Senator from Arizona, chairman, Committee

on Indian Affairs ........................................................................................... 3

Rough Surface, Twila, Standing Rock Sioux Tribe ........................................ 14

Smith, Hon. Gordon, U.S. Senator from Oregon ............................................ 5

Stone, Joseph B., American Psychological Association ................................. 15

Walker, R. Dale, director, One Sky Center, Oregon Health and Sciences

University ...................................................................................................... 20

APPENDIX

Prepared statements:

American Academy of Child and Adolescent Psychiatry and the American

Psychiatric Association Joint Statement ..................................................... 168

American Occupational Therapy Association ................................................. 175

Booth, Sr., Terrance H., Metiakatla Indian Community .............................. 34

Carmona, Richard, M.D. (with responses to questions) ................................ 36

Estes, Tolly, Crow Creek Reservation ............................................................ 179

Flatt, Clark (with attachment) ........................................................................ 52

Garreau, Julie (with attachment) ................................................................... 65

Graham, Mike, member, Oklahoma Cherokee Nation (with attachment) ... 193

Kitcheyan, Kathleen W., chairwoman, San Carlos Apache Tribe ................ 203

Murphy, Charles W., chairman, Standing Rock Sioux Tribe ........................ 207

National Indian Child Welfare Association .................................................... 214

Rough Surface, Twila ....................................................................................... 34

Smith, Hon. Gordon, U.S. Senator from Oregon ............................................ 33

Stone, Joseph B. (with attachment) ................................................................ 71

Walker, R. Dale (with attachment) ................................................................. 150

Additional material submitted for the record:

Steroid Use Among Females, Centers for Disease Control and Prevention,

Department of Health Human Services ...................................................... 229

(1)

YOUTH SUICIDE PREVENTION

WEDNESDAY, JUNE 15, 2005

U.S. SENATE, COMMITTEE ON INDIAN AFFAIRS, Washington, DC.

The committee met, pursuant to notice, at 9:30 a.m. in room 485

Senate Russell Building, Hon. Byron Dorgan (vice chairman of the

committee) presiding.

Present: Senators McCain, Dorgan, Smith, and Johnson.

STATEMENT OF HON. BYRON L. DORGAN, U.S. SENATOR FROM

NORTH DAKOTA, VICE CHAIRMAN, COMMITTEE ON INDIAN

AFFAIRS

Senator DORGAN. We will begin the hearing today.

This is a hearing of the Senate Committee on Indian Affairs. My

name is Senator Dorgan. I am joined by the chairman of the committee who has asked that I convene the hearing and appreciate

very much your being here today and appreciate the leadership of

Senator McCain. We have had the opportunity to work together for

a long while and we have worked together on a lot of very important issues.

The hearing this morning is for the purpose of discussing an

issue that is very important and very sensitive. When I talked to

Senator McCain about holding this hearing, he was very interested

in having us do that. He has asked me to chair this hearing and

I appreciate very much his graciousness in doing it.

This is a hearing in many ways that all of us wish we were not

attending, to discuss a subject that perhaps we would wish that we

had not had to discuss, but we do. It is the issue of teen suicides.

I do not want to imply that teen suicides represent only a problem

on Indian reservations, but I do want to recognize that the problem

is more acute there than in other areas.

We know that suicide is the second leading cause of death of

American Indians, Native Americans, aged 15 to 24, 21⁄2 times the

national average. Native American children under the age of 15 are

5 times more likely to take their own life than the population, the

same age population generally. In the northern Great Plains, the

rate is 10 times higher for teenage children on reservations taking

their own life than other children of the same age in this country.

There is in some areas an epidemic of teenage suicide. It would

be more comfortable perhaps not to talk about it publicly, but it

would be the wrong thing to continue watching this happen, seeing

the broken hearts and deciding to do nothing about it.
2

The Standing Rock Reservation in North Dakota and South Dakota which covers both States has had 12 suicides in the last 6

months. I have spoken on the floor of the Senate. I have spoken

on the floor of the Senate maybe four or five times about a young

woman named Avis Little Wind, a 7th-grader, and I have used her

name with the permission of her family, a young woman who felt

that life was so hopeless that she took her life, this 7th-grader took

her life. Her sister had taken her life 2 years previous to that. She

lay in a bed for 90 days, missed 90 days of school.

Mental treatment was not readily available. I went to that reservation and talked about this young 7th-grade girl, talked to her

classmates in school, talked to the school officials, talked to the

mental health officials, talked to the tribal officials, just to try to

understand what has happened, not just in this situation, but in

others.

Because in this same situation on the same reservation, I held

a hearing in Bismarck, ND and a young woman who on that reservation came to testify at the hearing broke down and began sobbing during the testimony. She said, you know, I just have to beg

to try and find a car to see if I can help give a kid a ride to a clinic

someplace. She said, I have a stack of allegations of child abuse on

the floor in my office that have never been investigated because I

have no resources.

And then she said, I do not even have the vehicle to drive a troubled kid to get some help. And then she began sobbing. She quit

her job about 1 month after that hearing.

The point is we have very serious problems. Dr. Grim testified

at a hearing I held in Bismarck, ND, again with the permission of

the chairman of the committee, for which I am grateful. Dr. Grim,

I think, made the point, and it is a really important point, he said,

suicide is not a single problem. It is a single response to multiple

problems. Neither is it a strictly clinical or individual problem, but

one that affects and is affected by entire communities.

Some families of children who had taken their lives came to see

me after the last hearing, and some children who were friends of

children who had taken their lives came to see me. One of the

things that I remember about the classmates was they said, you

know, so-and-so, naming one of their friends, really did not mean

to die. He just wanted some attention to the things that he was

going through, the problems he was facing in his life. He wanted

some attention to those problems. We do not think that he wanted

really to die.

So look, we have some serious issues that we are facing on this

committee. We are trying to reauthorize the Indian Health Care

Improvement Act and we are going to do that this year. My hope

is, and I believe the hope of the chairman, is that perhaps as we

do that a portion of that, a piece of that might also begin to address

this issue as we learn more about it and determine how we can try

to apply some more attention and some more resources to this

issue, and say to those young children who are too often now thinking about taking their lives, that you are not alone. This is not

hopeless. You are not helpless. We are here and we want to do

something to address this very difficult and very sensitive issue.
3

So again, let me thank all of you for being here. I recognize that

in calling this hearing we are dealing with a difficult topic, but I

think it is time, long past the time for us to discuss it publicly and

evaluate what we can do to reach out to these children.

Senator McCain.

STATEMENT OF HON. JOHN MCCAIN, U.S. SENATOR FROM

ARIZONA, CHAIRMAN, COMMITTEE ON INDIAN AFFAIRS

The CHAIRMAN. Thank you very much, Senator Dorgan. And

thank you for your leadership and the commitment you have made

on this issue.

There is very little I can say which would add to your very compelling opening comments, so I will not, except to say that I am

pleased that Vice Admiral Richard Carmona, the Surgeon General

of the United States, could be here today. Admiral Carmona, I

know you have faced numerous challenges in your career as a professor, a health professional, a deputy sheriff, and even a SWAT

team leader. Throughout your career, you have demonstrated exceptional leadership, particularly in addressing psychological and

mental trauma in communities. I am encouraged that you are taking a leadership role in addressing Indian youth suicide.

I thank you again, Senator Dorgan, and I appreciate your very

compelling and strong leadership on this issue. Thank you.

Senator DORGAN. Senator McCain, thank you very much.

I might point out that we will have a vote in the Senate probably

somewhere between 10 a.m. and 10:30 a.m., we expect, so at that

point I will recess the hearing just for 15 minutes to go and vote.

In the meantime, we have two panels of witnesses. The first

panel is Dr. Carmona. Senator McCain has described in some detail, Dr. Carmona, your very interesting background. We appreciate

your public service. You are accompanied by Charles Grim. Dr.

Carmona is the Surgeon General of the United States. Dr. Grim is

the Director of the Indian Health Service. Dr. Grim testified at a

previous hearing on this subject. We held a hearing in Bismarck,

ND.

We appreciate both of you being here. Dr. Carmona, we will include your full statement as a part of the record, and you may proceed orally.

STATEMENT OF RICHARD CARMONA, M.D., SURGEON GENERAL OF THE UNITED STATES, ACCOMPANIED BY CHARLES

GRIM, DIRECTOR, INDIAN HEALTH SERVICE

Mr. CARMONA. Thank you, sir. Senator McCain and Senator Dorgan, thank you for the privilege of being with you today and allowing me to address this very important issue.

My name is Rich Carmona. I am the Surgeon General. I certainly

do appreciate this opportunity. I am joined today by my colleague

Rear Admiral Charles Grim, also Assistant Surgeon General and

Director of the Indian Health Service.

As you know, the mental health of our Nation is a critical component of our Nation’s public health. Suicide is one of the most tragic

events that a family can endure. Suicide costs us more than 30,000

lives a year. That is almost 1 person every 15 minutes. Once every

45 seconds, someone engages in suicidal behavior.
4

Even if the life is spared, the heartache and pain are so severe

that the spirit may never fully heal. The science tells us that the

suicide rates in Indian country are generally higher and are characterized by younger people engaging in fatal and nonfatal suicidal

behavior at much higher rates than the overall U.S. population.

For 5 to 15 year-olds, the suicide rate is more than twice the average of the national average and there is an even greater disparity

in the later teenage years and into young adulthood. The suicide

rate for American Indian and Alaska Native youth aged 15 to 24

is more than 3 times higher than the national average. In fact,

young people aged 15 to 24 make up 40 percent of all suicides in

Indian country.

The reality is that in many of our tribal communities, suicide is

not just an individual clinical condition, but also a community condition. To address it appropriately requires public health and community interventions, as much as clinical interventions. It also requires resources to understand and support the interventions. The

Administration’s 2006 budget request for IHS includes $59 million

for mental health. That is a $4-million increase over 2005.

This leads me to the next critical question: What are we doing

to prevent suicide in Indian country? My predecessor, Surgeon

General David Satcher, shined a bright light on the too often darkened pain of suicide. In 1999, he issued the Surgeon’s General Call

to Action to Prevent Suicide. It brought the best science together

with the best experience on the subject of suicide prevention. Dr.

Satcher was also instrumental in developing the national strategy

for suicide prevention. The strategy is the national blueprint for action for suicide prevention.

Today, it is an ongoing joint effort of SAMHSA, the CDC, NIH,

PHSA and in Indian country, the Indian Health Service. I am

proud to report that for the general population, the long-term trend

in the United States has been toward a decline in the suicide rate.

However, suicide in Indian country is not declining.

One of Dr. Grim’s first acts as Interim Director of the IHS in

2002 was to convene a tribal consultation on behavioral health.

Representing over 200 tribal organizations, the consultation provided recommendations for long-term goals to revitalize and promote behavioral health in Indian country. In the past 3 years,

every one of those goals has been addressed.

But this marks only the beginning of a much longer process to

bring leadership programs and resources to this ongoing crisis. For

example, the Jicarilla Apache of Northern New Mexico have engaged in a successful effort to develop a community-based intervention strategy. It brought together tribal leadership, community

members, youth, as well as university and IHS clinicians and researchers to design and implement the program.

The result is that over the past decade, suicidal activity has fallen by approximately 60 percent among the Apaches and has been

maintained at that level. This success is more evidence that effective programs require clinical, educational, community, interagency, and intergovernmental input.

Work like this is ongoing, led from the top by President Bush

and Secretary Leavitt, our bosses. We are working to address the

risks for suicide. The first international meeting of the Indian
5

Health Service Director’s National Behavioral Health Initiative will

be coming up this fall, led by Rear Admiral Grim. The charge is

to provide strategic leadership and implement ongoing work groups

for action.

As I mentioned, the National Strategy for Suicide Prevention is

being implemented across the Nation, including Indian country. Of

course, the funds available made under the Garrett Lee Smith Memorial Act that President Bush signed in October 2004 will help

enable States, Indian tribes, colleges and universities to develop

suicide prevention and intervention programs.

In closing, there are many positives that can result from discussions like the one we are having today. By talking about suicide

and suicidal behavior, we take it out of the darkness, shine a light

on it. It should always be okay to talk about being depressed or

about having suicidal thoughts. Young people should be able to go

to their parents, teachers and other caring adults for help with depression and even anger, without feeling like they will be labeled

weak or bad or broken.

Paramedics and emergency room doctors are often heralded as

life-saving heroes. Each of them deserves praise, that is true. But

so does everyone who has ever held out a hand, given a hug, or

spoken words of encouragement when a person considering suicide

needs it most. Everyone has an important role in this cause and

we must all band together for hope.

With that, I will end my testimony. I would ask to be able to submit my entire written statement into the record. Thank you. I look

forward to our discussion this morning.

[Prepared statement of Dr. Carmona appears in appendix.]

Senator DORGAN. Dr. Carmona, thank you very much.

We have been joined by our fellow Senator from Oregon. Let me

say that all of us understand that his family has been visited by

this tragedy and has been a catalyst for him to lead the U.S. Senate and the Congress in a very constructive direction to address

these issues. I am very proud of the work that he has done, as are

all of my colleagues. Let me see if he would like to make an opening statement.

STATEMENT OF HON. GORDON SMITH, U.S. SENATOR FROM

OREGON

Senator SMITH. Senator Dorgan and Mr. Chairman, thank you

for holding this hearing. I have an opening statement, but I do not

think I can get through it. So let me ask that it be included in the

record. Let me also thank you for helping to highlight this issue.

When President Bush signed this into law, the Garrett Lee

Smith Memorial Act, which the Senate unanimously passed, the

substantial piece of legislation designed to help young people in college, in high school, in Indian tribes specifically, to get the help

they need so that they can cope with an illness which is just as lethal as physical illness.

President Bush signed this on a day in the midst of a very difficult political campaign. He did it quietly. He did it quietly because of the sensitivity of the issue and the desire on my wife’s and

my part that it not be in any way politicized. There were present

on that occasion some of the President’s political opponents, but not
6

his enemies, specifically Senator Kennedy among them. But by

doing it quietly, perhaps there was one disadvantage. That is that

many people do not know about what the Federal Government is

now trying to do.

So again, Mr. Chairman, thank you for having this hearing, with

this clarion call saying to tribes and to States and universities,

apply for these funds; develop suicide intervention programs because this is a problem that can be addressed and successfully if

done in a timely way.

There is nothing worse in life than life without hope. Some people of our citizenry are unable to find hope in living because of the

makeup of their brains, of their chemistry and there is help that

can be found to help them to do that.

So I think my only message this morning, Mr. Chairman, is, I

think Senator Dorgan is on the Appropriations Committee, the

Garrett Lee Smith Memorial Act authorized $82 million for 3

years. The first $10 million was appropriated in the last Congress,

and $27 million is what is required to stay on course. I would just

simply ask all of our appropriators to make sure we get $27 million.

If we are truly serious about being pro-life, I can think of few appropriations that could do more to help our Native American children and all of America’s children who suffer from bipolar afflictions, manic-depression, schizophrenia or whatever the cause, to

find the way to get the help they need to contribute to our great

Nation the way that they can, even with mental disorders.

So with that, Mr. Chairman, I will just include my statement in

the record.

[Prepared Statement of Senator Smith appears in appendix.]

Senator DORGAN. Senator, thank you very much. Certainly as

one appropriator, I am pledging to do everything we can to fully

fund this requirement. It seems to me you cannot understand this

problem and decide to do less than is humanly possible to deal with

it. I hope our colleagues will agree on the Appropriations Committee.

Dr. Carmona, I quoted Dr. Grim that this does not arise from one

cause. I mentioned, for example, the one young woman who was

dealing with these children’s issues on one reservation who broke

down and sobbed because she just had no resources. With the resources that are available at this point, do you have some confidence that ultimately on these reservations there will be adequate

mental health services staffing for the psychologists, social workers, psychiatrists and others to be able to respond to these needs?

Mr. CARMONA. Sir; I am happy to address that. My answer

maybe predates me being Surgeon General because I have had the

privilege and opportunity to live and work in Indian country for a

couple of decades in Arizona, and have gained a great appreciation

and fondness for the culture, for the people, for their passion and

also for the deficiencies in the communities.

I think we are on the right road to remedy this very longstanding

situation, which as you mentioned and as my colleague Admiral

Grim has mentioned, is multi-factorial. It is people who have been

robbed of their culture. It is people who are living a different life
7

than their ancestors are used to. It is being disconnected from their

families. It is being disconnected from mainstream America.

It is so many variables, but we understand many of the variables

because many of our people in the Public Health Service live

among Indian country. Many of the programs that are in place now

and growing based on funding that you have mentioned and the

National Strategy for Suicide Prevention are working in the right

direction.

It is not all about clinicians. It is really about improving health

literacy; that the people understand the genesis, the cause of the

problems; that we who have the privilege to serve them understand

the uniqueness of the culture; that we work hand in hand with our

Indian partners to develop strategies that will address many of the

issues.

And not just in response to, but to prevent, to change culture, to

change environments so that people do not feel that despondent in

the environment; that they see hope where there was otherwise despair. That is not just psychologists or psychiatrists, but it is community health workers. It is faith healers within the community

and so on.

So I think we are developing robust programs. We are heading

down the right path, but we should not forget that it has taken us,

well, a couple of centuries to get where we are today. We are working as quickly as we can with great passion to remedy this problem. I do not think there is a better leader for the Indian Health

Service than Admiral Grim, who I do not think a week goes by that

we are not discussing ways to move these strategies forward for the

general public health, as well as mental health in Indian communities.

Senator DORGAN. Dr. Carmona, I have some additional questions,

but my colleague, Senator Johnson, has just arrived. It is my understanding that he has to leave for another committee. He shares

in his State a portion of the Standing Rock Reservation which I described earlier. Let me call on Senator Johnson for his comments.

STATEMENT OF HON. TIM JOHNSON, U.S. SENATOR FROM

SOUTH DAKOTA

Senator JOHNSON. Thank you, Senator Dorgan and Senator

McCain for holding what I think is a critically important hearing

on just a tragic, tragic issue that affects young people in general,

but particularly impacts Native American young people.

I do have another obligation that I am going to have to leave

soon to attend, but I do want to acknowledge that participating in

the hearing today and making just enormously positive contributions to our circumstances in South Dakota are Julie Garreau, who

is Director of the Main. She will be sharing her thoughts on what

is going on in the Cheyenne River Reservation relative to activities

for young people and how they are trying to address that terrible

issue there.

Twila Rough Surface of the Standing Rock Sioux Tribe is here as

well. She has been very much involved in these issues. Betsy

Mitchell is President of the Cheyenne River Sioux Youth Project.

We also have with us representatives from the Project’s partner organization, Running Strong for American Indian Youth.
8

The South Dakota Health Department’s statistics on suicide for

2004 list suicide as the second-leading cause of death for South Dakotans aged 15 to 24. On average in our small State, 750,000 people, we lose 23 young people in that age group to suicide each year,

a rate of one almost every 2 weeks. The suicide rate among Native

American males in particular runs two to three times higher than

the general rate in the United States as a whole.

There are many factors that go into this tragic circumstance, but

it is important that we on this Committee and in Congress in general provide the resources that those who are in the front line of

combating this awful circumstance need to have. I know that Senator McCain, Senator Dorgan and the members of this Committee,

Senator Smith as well, take this issue very much to heart. I look

forward to working in a bipartisan fashion with the IHS and with

our tribal leadership in our respective States to address this issue.

Thank you.

Senator DORGAN. Senator Johnson, thank you very much.

Dr. Carmona, I mentioned that in the Northern Great Plains the

rate of teen suicide on reservations is 10 times, according to the

statistics we have seen, 10 times the national average. We also find

clusters. I mentioned that on the Standing Rock Reservation, there

have been 12 suicides in the last 6 months. Can you or Dr. Grim

tell me, when you begin to identify a cluster of teen suicides, do

you have teams that are sent out? What kinds of teams? What are

those resources?

Mr. CARMONA. I would be happy to start, then I will pass it to

my colleague, Admiral Grim.

We do. U.S. Public Health Service officers, our Commissioned

Corps readiness force, can be deployed at a moment’s notice to any

unmet health need, and not just mental health. We do it all over

the world, but we are especially sensitive to the needs of the Indian

Health Service and the tribal leadership who are experiencing

these problems.

One of the things that we really want to do is, rather than just

always respond to clusters, but be able to build capacity within the

tribal leadership and leadership within any tribe to be able to look

forward and be able to have some predictive ability when they see

children who may be developing that type of ideation.

Certainly, we need to respond to these tragedies, but we feel it

is much better to develop capacitance within the tribal leadership

to be able to identify those risk factors and be able to prevent those

things from happening. So we are looking at both sides, but certainly prevention, we want to spend a lot of time on, too.

I will ask Admiral Grim to please comment.

Mr. GRIM. I would just say that the Surgeon General adequately

described the ability of the Commissioned Corps of the Public

Health Service to respond. We have called on the readiness force

on multiple occasions when we have had suicide clusters within Indian communities. We bring in mental health professionals, social

services professionals, logistics folks to help get all the people in

and out.

We work with tribal leadership. We wait until they ask. It is not

something we thrust upon them. We work closely with tribal leadership and their councils. We work closely with them as they try
9

to overcome those issues. Whenever we feel that we have addressed

the immediate surge capacity need that that community has, we

step out with the larger number of people.

We try to leave some capacity there as well. When that many

mental health and social services people have come in, they oftentimes bring in new programs, new sorts of treatments that perhaps

the community did not have before. They help the local staff there

in the local Indian Health Service or tribal program to just raise

the capacity at that time.

After the surge capacity leaves, we continue to keep an eye on

that. We have developed a behavioral health management information system over the last several years that we have begun to deploy that now allows us to spot suicide clusters at a much earlier

stage as we look at ideations and attempts.

Senator DORGAN. Let me ask both of you, if you would, to submit

for us following this hearing any evaluation you might have of

what we might contribute to the Indian Health Care Improvement

Act as we reauthorize it that might address this issue, recognizing

we passed legislation previously on the issue of suicide prevention.

But if there are things that you think we could do, particularly addressing the Indian issue, but not exclusively that, we would appreciate it.

The fact is, most of us have in some way or another become acquainted with this issue. It is always a tragedy. When I was in my

twenties, I walked into a room and found a friend who had taken

his life. It took me a long while to just get over that, the tragedy

of it. But when I see and hear about these young children who take

their lives, it just breaks your heart. I think there must be ways

for us to devote more time, more attention, more resources to try

to intervene and intervene at the right time to be helpful.

I think Senator Smith said it right. We tend to take a look at

people who have an acute medical problem such as something that

you can see, a huge wound bleeding, broken limbs. That is obvious,

and we will immediately bring all of our medical resources to address something that is obvious and visual. But there are many in

this country who live with afflictions that are not quite so visual

and not quite so obvious. We spend less attention, less time trying

to heal them.

So at any rate, I appreciate very much your being here. I am

going to call on my colleagues for questions as well.

Senator McCain.

The CHAIRMAN. Thank you very much, Senator Dorgan.

Dr. Carmona, Senator Dorgan just mentioned that the suicide

rate on Indian reservations is 10 times that of the non–Indian population. Do you accept that?

Mr. CARMONA. Senator, depending on which reservation you are

speaking of, but certainly it is multiples of the U.S. incidence, depending on where you are looking.

The CHAIRMAN. In the Northern Plains, as Senator Dorgan pointed out. As you mentioned in response to a previous question by

Senator Dorgan, there are multiple reasons which you listed. What

I do not understand, and you as the Surgeon General of the United

States may have a view of this, is that I understand all those conditions that exist which lead to this terrible crisis that we are dis-
10

cussing, but don’t those conditions also prevail, say, in inner-cities

in America? Don’t they prevail in other parts of America where

there are pockets of poverty, crime, et cetera, and yet you do not

see that level of teen suicide?

How do you rationalize that? What is the difference that would

make this such a serious problem in one area of poverty, deprivation, breakdown of families, et cetera, and not prevail in other

areas of similar conditions?

Mr. CARMONA. Senator, it is a great question and one that

confounds all of us. We have a good deal of information about

urban problems, and where we see suicide clusters or suicide ideation in youngsters because of despondency, because of economics,

because of social status, because of being ostracized from their communities.

We do not have enough information yet, and we require more research on the uniqueness of Indian country and the tribal problems, because they are unique. Geographically they are unique.

Culturally they are unique. The history is quite unique because it

goes back centuries where they have been disenfranchised in some

cases from their own cultures. It is a struggle every day for these

young men and women growing up in a bicultural or multi-cultural

society where elders may be attempting to retain their own culture.

So my colleagues who are quite expert in this recognize that

there are variables that are very unique to Indian country that

need to be studied further before we could actually answer definitively your question.

However, we are able to say that the rates are higher, the situation is much more complex, and because of that we have put more

resources into research through CDC tracking with epidemiologists

and surveillance programs; through our NIH and SAMHSA doing

basic science and clinical research in those areas; working with

tribal leadership to ferret out the specific variables, risk factors

that are unique to Indian country.

Admiral Grim.

Mr. GRIM. I would just add, too, that one of the three primary

things that we are working on is to expand and enrich the data research around Indian country, not only the risk factors, but the

protective factors, why some tribal communities do not have this

problem and why others do. We are working with SAMHSA. We

are working with NIMH. We are also working with Canada and

their indigenous population and their professionals.

The conference that the Surgeon General mentioned that is

scheduled to occur in September in New Mexico is going to bring

together people from all these organizations to start to develop a

research agenda for the indigenous population of our country. We

hope with a long-term approach to it and putting money into it immediately that we are going to start better understanding.

We know the things that you can just state about it. It occurs

in younger people. It occurs with some impulsivity instead of planning. We know things like that, but we do not know a lot of the

multi-factorial causes that are both risks and protections.

I want to publicly thank Senator Smith for getting a bill through

in the Senate, for unanimously passing it to make more money

available for this particular thing that particularly affects Indian
11

country. I think, Senator Dorgan, at a hearing that you held in Bismarck, it was very telling when you asked how many people have

been touched by suicide. It was in a room much larger than this

that was also filled almost to capacity, and you asked how many

people have been touched by suicide, either someone you knew or

a family member, and almost every single person in that room

raised their hand.

So it is one of our three major focus areas to expand that research base to be able to answer those questions, Senator McCain.

The CHAIRMAN. I hesitate to speculate, but if you have conditions, say, in an inner-city in America, of poverty, despair, alcohol,

drugs, et cetera, and the American reservation has the same conditions, and yet the suicide rate on the reservation is far higher than

that of the inner-city, I do not know how you can draw any other

conclusion that it has something to do with the history of Native

Americans and their exploitation and placement in American society which leads to greater despair.

I do not indulge in psycho-babble here, but it seems to me that

the only real difference is the history of Native Americans in America. Does that make any sense, Dr. Carmona?

Mr. CARMONA. Senator, it definitely does make sense. There is no

question that there has been marginalization. There has been discrimination. There has been tribal America that has been ostracized. That manifests itself in a number of different ways.

We today, the leadership today are feeling the burden of centuries of these problems that are now being clinically manifest in

one manner with the suicides and suicide clusters in youth. So we

are desperately seeking to identify scientifically the specific variables.

I agree with the intuitive approach. I feel the same way from my

experience living among and working with my colleagues in Indian

country. But yet we have to take it to a higher level and actually

put the scientific scrutiny to it to be able to specifically identify

variables that we can then address to be able to develop programs

that we can actually measure success with over time.

So I am absolutely in agreement with you and share the same

sentiments intuitively.

The CHAIRMAN. Thank you very much, Senator Dorgan.

I thank the witnesses.

Senator DORGAN. Senator Smith.

Senator SMITH. I think Senator McCain has really hit on the real

dilemma we have. Is suicide nature or nurture? I think the point

I was making earlier is that many mental illnesses are clearly nature. I think Senator McCain’s point is it is possible, maybe even

probable, that the rate is higher among Native Americans because

of the environmental factors in which they live.

I would be surprised if mental illnesses are any more prevalent

among Native Americans than other Americans, unless you have

evidence to the contrary. In other words, a Caucasian or an African

American child is probably numbered in the same percentages that

would have bipolar illnesses or manic-depression. Does the evidence suggest that?

Mr. CARMONA. I think the point you made, Senator, regarding

nature and nurture is appropriate. I know of no evidence that
12

would suggest that there is inherently a difference of incidence, bipolar, schizophrenia or any others. However, again, we all understand that the environment has huge ramifications in this problem

and we are trying to identify the specific environmental factors

that lead to this dysfunction, to this psychological instability in our

tribal America.

Senator SMITH. I suppose my point is, to Senator McCain’s, is

that in addition to the medical intervention, the testing, the programs of interdiction, we have the added responsibility of making

sure they have decent schools; that they have the potential for upward mobility; that they have an environment in which to live in

which hope abounds instead of the depressive kinds of circumstances that many Native Americans feel.

That is our challenge as a Nation to do better here, because this

is a shameful thing in our country, that this rate is higher among

Native Americans than other Americans.

Mr. CARMONA. Senator, I truly thank you for bringing out what

to us is the obvious. I would say you are preaching to the choir because we see that every day. There is no question that these youngsters as you go through the reservation, where the high school

dropout rates are terrible, the disease burden is astronomical even

at a young age, alcoholism, drugs. Life expectancy is much less.

Opportunity is much less. When they look out on the horizon of

life, it should not be surprising that what they see is despair and

not hope.

I appreciate your pointing out that what we really need to do, as

Admiral Grim and President Bush have directed, that we approach

this in a multi-factorial way. We have to appreciate the environment. We have to appreciate the schools, the homes, the family situation, access to care. All of those things contribute ultimately to

the health and growth and development of our youngsters on the

reservation.

Senator SMITH. I think obviously these are larger issues we need

to work on. But isn’t it also true that suicide is higher in Native

American communities because of their access to care? They do not

have psychiatrists. They may not have the counselors in place to

be helpful early enough.

Mr. CARMONA. Certainly intuitively people have said that. I do

not know of any literature that would suggest that there is a link

because of that, but those are some of the variables that we need

to look into.

We are doing everything we can now to increase the amount of

health professionals and paraprofessionals, especially community

health workers and healers in the tribal communities working with

the tribal leadership, because often the opinion leaders in the community who may not have true medical professional degrees, but

yet they have inherent credibility in their own communities. They

are a stabilizing factor in those communities, whether it is a faith

healer or a medicine man.

But with increased health literacy, knowledge that the problem

exists and us helping to give the tools to the leadership to be able

to recognize these problems and try and correct them before the

problem develops, I think this is where we are spending a lot of

our time now, in partnership with the tribal leadership.
13

Senator SMITH. Doctor, do you know of any research, and in asking this question I think I know the answer because I do not think

records were kept, but is there any research or historical evidence

that prior to the westward movement of the European peoples into

America and the conflicts between them and Native Americans,

was their incidence of suicide in any way documented prior to that

time among Native Americans?

Mr. CARMONA. I am aware of no such records, sir.

Senator SMITH. Thank you.

Senator DORGAN. Senator Smith, thank you very much.

A vote has just begun in the Senate, so we will take a 15-minute

recess. The Committee will reconvene at 10:30 a.m.

Let me thank Dr. Carmona and Dr. Grim. Thank you very much.

Would you please submit for the committee your evaluations of

things that we might consider for the Indian Health Care Improvement Act dealing with this issue.

Thank you very much. The committee is in recess.

[Recess.]

Senator DORGAN. The committee will come to order.

The second panel of witnesses at today’s hearing will be Twila

Rough Surface, a member of the Standing Rock Sioux Tribe who

lost a family member to suicide and who is also an employee of the

tribe’s Family Protective Service.

As I call their names, if they would please come forward. We

would appreciate their attendance: Joseph B. Stone, a member of

the Blackfeet Tribe of Northern Montana, who is a practicing psychologist in Oregon and Washington; Julie Garreau, a member of

the Cheyenne River Sioux Tribe and director of the Billy Mills

Youth Center, the Main, in Eagle Butte, SD; R. Dale Walker, a

Cherokee from Oklahoma and director of One Sky Center, which

is a national resource center focusing on mental health prevention

and treatment for Indians; and Clark Flatt, president and CEO of

The Jason Foundation, named for his son who committed suicide

at the age of 16 in 1997, from Hendersonville, TN, which is working with the Bureau of Indian Affairs on suicide education and prevention programs.

Let me say to all of you how appreciative I am of the fact that

you are willing to come today and to present public testimony. As

I have indicated at the start of this hearing, perhaps for you as

well, this is a hearing that you would sooner not attend and a subject you would sooner not discuss, but in many ways you are more

qualified and in a better position to discuss publicly these issues

with us in order to help develop some responses to them than almost anybody else in the country, so we appreciate your willingness to do that.

We will begin with Twila Rough Surface, a member of the Standing Rock Sioux Tribe. Twila, thank you for traveling to Washington

to be with us. We welcome you.

All of the statements will be made part of the permanent record.

You may summarize your statements. Second, the hearing record

will be kept open for a period of time, 2 weeks following this hearing. If there are those in attendance at the hearing that would

wish to submit additional testimony to be a part of the formal

hearing record of the Committee on Indian Affairs, I would invite
14

you to do that and send it to us here in Washington, DC, to the

committee. We will make your testimony a part of the permanent

record as well.

Again, Ms. Rough Surface, your entire statement will be made a

part of the record and you may proceed.

STATEMENT OF TWILA ROUGH SURFACE, REPRESENTING THE

STANDING ROCK SIOUX TRIBE

Ms. ROUGH SURFACE. Thank you. Good morning. I would like to

thank Senator Dorgan for the invitation to state my concern for the

young people of my tribe. My name is Twila Summers Rough Surface. I am an enrolled member of the Standing Rock Sioux Tribe.

I have lived on the reservation my entire life. I am a mother, a

grandmother, a wife, and I come from a family of 5 brothers, 3 sisters, with 14 nieces and 20 nephews.

I recently lost a niece to suicide on February 2, 2005. She was

my sister’s third child. The following events, I believe, contributed

to the eventual death of my niece. On January 7 of this year, her

brother, my nephew, was killed in a car accident. During the grieving period, her mother had nobody to come and talk to her regarding the death of her son. So I can only speculate that my niece saw

all the hurt and could not handle the loss, so she decided to take

her own life. My sister was overwhelmed by the deaths, and also

tried to take her own life.

Senator DORGAN. How old was your niece?

Ms. ROUGH SURFACE. She was 23. And my sister was overwhelmed and she tried to take her own life. After the attempt, my

sister related the following, that she thought that the only way to

make the hurt go away was to take her life so she would not feel

the pain and the hurt. Luckily, a family member found her in time.

The loss of my nephew not only had an impact on our family, but

on his friends as well. One of his good friends who had been selected to be a pallbearer at his funeral committed suicide the day

my nephew was buried. His other best friend, he missed him very

much and he was talking to my brother and he said he missed him

a lot. On April 7, he also committed suicide.

The effects of the deaths in my family have touched many and

continues to be a concern. I must mention that at no point did any

mental health professionals contact our family. I feel that if there

had been intervention with grief counseling and support for my sister and her children, my niece may have had a chance to grow to

be an elder of the community.

The overall rate of suicide among our youth has increased. The

rates remain unacceptably high. Adolescents and young adults

often experience stress, confusion and depression from situations

occurring in their families, schools, and communities. Such feelings

can overwhelm young people and lead them to consider suicide as

a solution.

Few schools and communities have suicide prevention plans that

include screening, referral, and crisis intervention programs for

youth. Programs designed to assist children and families dealing

with severe trauma are not readily available on Standing Rock.

The families are economically disadvantaged and with a 40- to 75-
15

mile trip to see counseling, it is virtually impossible to access these

options.

Transportation and access to a telephone is essential to regular

therapy. However, this is not a luxury the majority of our families

have. In our IHS Great Plains office, through the Indian Health

Service, we only have one psychologist and he takes on about

3,000-some cases just for him. He travels to the South Dakota site

and he only has 2 hours to spend down there. He cannot see as

many people there either, to help.

We do have two workers that have bachelor’s degrees, but they

are not trained to do assessments and things like that, so it is very

hard for our tribe to get these resources. We do not have effective

clinical care for the mental, physical and substance abuse disorders, and easy access to a variety of clinical interventions and

support for help-seeking. We do not have support from ongoing

medical and mental health care relationships, and we do not have

grief counseling, and not enough police.

I believe suicide is preventable. Most suicidal individuals desperately want to live. They are just unable to see alternatives to

their problems. Most suicidal individuals give definite warnings of

their suicide intentions, but others are either unaware of the significance of these warnings or do not know how to respond to them.

Surviving family members suffer the trauma of losing a loved

one to suicide and are at higher risk for suicide and emotional

problems. We as a Nation need to be aware to learn the warning

signs, get involved, become available, show interest and support, be

willing to listen, be non-judgmental, offer empathy, offer hope that

alternatives are available and outreach services, take action, remove means, and get help from individuals or agencies specializing

in crisis intervention and suicide prevention.

In conclusion, I would like to thank you for listening and request

immediate assistance for the Standing Rock Sioux Tribe.

[Prepared statement of Ms. Rough Surface appears in appendix.]

Senator DORGAN. Ms. Rough Surface, thank you very much for

being with us today and for your testimony. I will have some questions, but we will hear from the other panelists.

Dr. Joseph Stone, a member of the Blackfeet Tribe of Northern

Montana, is a practicing psychologist in Oregon and Washington.

Dr. Stone, thank you for being with us.

STATEMENT OF JOSEPH B. STONE, REPRESENTING THE

AMERICAN PSYCHOLOGICAL ASSOCIATION

Mr. STONE. Thank you, sir.

I would like to thank the chairman, Ranking Member Dorgan

and members of the committee for the opportunity to address this

hearing today.

I am Joseph Stone. I am an enrolled member of the Blackfeet

Tribe of Northern Montana, and descendant of the Turtle Mountain

Chippewa of North Dakota and the Lakota of South Dakota. I am

an honorably discharged veteran of the U.S. Navy. My professional

credentials include licensures as a psychologist in Washington

State and Oregon; licensures as a mental health professional in

Washington; and certification at level III as a chemical dependency

professional.
16

On behalf of the tribal members of the Confederated Tribes of

Grand Ronde for whom I serve as the behavioral health program

manager and clinical supervisor, the tribal council sends their

greetings to the committee and thanks the committee for their attention and provision of resources to the issue of youth suicide prevention in native communities. The members and tribal council of

the Confederated Tribes of Grand Ronde are committed to the

health and well being of their youth and other native youth. They

encourage the work of this committee.

We have talked a lot about the statistical profile of what is occurring in the tribal communities, so I am not going to belabor that

point too much. What I would like to do is speak briefly to some

of the issues that were raised by the committee just a few moments

ago.

What we see is the outcome of a historical context, a context of

historical trauma and what we have begun to consider post-colonial

stress. Research in this area is new, but it is beginning to occur.

Post-colonial stress it seems to have to do with the capacity of children to regulate their arousal and the ability of families and family

members impacted by the chronic stress over the course of generations to help those children regulate their arousal.

If a child grows up and they cannot regulate their arousal because their parents have been too impacted by chronic stress and

thus too busy surviving, then that child has a compromised behavioral immunity or vulnerability then to further psychological or

emotional or physical developmental insult, and therefore a lack of

resilience to issues like suicide and other mental health disorders.

In working with the tribal communities as a psychologist, I

would like to present about 8 days worth of work that occurred at

a tribe I worked at a few years ago. On Sunday evening, we had

suicide number one, a male tribal member age 21 jumped off a

bridge. He was never referred to my waiting list. I had 40 active

clients, 20 to 25 counseling sessions a week, and no time for community outreach to help reduce the stigma of seeking mental

health services. He was not willing to seek referral to the community mental health center. The family perceived a lack of adequate

culturally appropriate sensitivity and skill on that staff.

He was not willing to discuss his issues with the medical providers because of the sense of shame and stigma that he felt. He reported to family members suicidal ideation, despondency, anxiety

over fiscal matters, a severely depressed mood, ongoing suicidal

ideation and substance abuse issues. He had recently been trained

as a diver and had a chance to make some money. What happened

is he stopped his car, went to the bridge, mounted the bridge as

though is were the transom of a boat, and flipped over backwards

as though a diver was going into the water to dive for sea cucumbers. We do not know if it was a genuine attempt to kill himself

or if he was simply acting out of a substance abuse-induced haze.

That does not matter.

What happened then was by Wednesday, a second male tribal

member in Canada had killed himself by self-inflicted hanging.

This was hundreds of miles away, but he had heard about it. There

was a lack of professional service for him, no community outreach,

and the family did not know how to seek help or referral. They re-
17

ported he was despondent and anxious over finances and over a

failed romance. He had depressed mood. When he found out about

the first suicide of his relative, he said he had found a way out of

his pain.

The psychological effects reverberated in our tribal community.

There was fear, grief, a sense of foreboding. Who would be next?

Feelings of powerlessness and helplessness. During that period of

time, several of my regular clients reported increased suicidal ideation and intention. I had increased phone contact from community

providers, tribal police and other tribal professionals about their

concerns; monitored increased professional self-doubt about our capacity to help; sought outside intervention and support.

We had a serious suicide attempt number three 1 day and 1

week after the first suicide, a 17-year-old pregnant female, a close

friend of the first tribal member killed herself with a massive overdose of Tylenol and other pills. She did not succeed; lost her child;

killed most of her liver. During that week, I had three other attempts.

No. 1, was a 17-year-old tribal member. He had issues of depression and substance abuse. He was arrested and reported to the

county that he was suicidal. He attempted to kill himself by running into the wall at the jail and breaking his neck. There was no

assessment or treatment through the community.

No. 2, a 12-year-old tribal male had trouble at the school, hit his

teacher, tore up his classroom. He came and saw me at my office.

He said he was suicidal. I said, how would you kill yourself? He

said, I would jump off a bridge. My words not his, the same bridge

the first man had jumped off of. He had crossed it on a daily basis.

No intervention from the community mental health program. I had

him and his grandmother call me on an hourly basis.

No. 3, 1 week and 3 days following the first suicide, I am going

home from work. I get to a corner. There is a 9-year-old kid 40 feet

up a tree. A police officer on duty and myself climbed into the

lower branches of the tree so we could attempt to break his fall in

case he actually jumped. We managed to talk him down. We did

not have training to do that, but we just kept at it until he came

down.

What I would like to recommend is that we look very strongly

at designating suicide prevention as the top preventive focus for

the Indian Health Service; dedicated funding to support urban

American Indian mental health and suicide prevention; establishing a national center of excellence for suicide prevention in tribal

communities, operated and managed by Native American and

American Indian experts and professionals; develop school-based

mental health services to promote a positive school environment

and help prevent youth suicide.

Professional mental health providers should be able to make direct services to residential treatment for native children. We need

to increase the collaboration between the county and the State system gatekeepers and tribal mental health providers to ensure adequate access. Exclusion of Native American clients who are suicidal

from the system by State and county gatekeepers must be examined and that process must be changed.
18

We need to increase the number of qualified mental health professionals in the field to a number proportionate in the general

population. Funding for the American Indians in the psychology

program should be doubled, with at least two additional university

sites. We need to increase funding for training social workers and

counselors.

We need to provide an additional $170 million as recommended

by the Friends of Indian Health to IHS to address the level of need

for health and mental health care. We need to benchmark the

funds available to the Indian Health Service versus those funds

available to other publicly funded health care systems; ensure the

number of IHS mental health providers meets the ratio of mental

health and care providers for the general population and that each

IHS area can subsequently ensure that there exists communitybased mental health and suicide prevention programs.

Thank you.

[The prepared statement of Mr. Stone appears in appendix.]

Senator DORGAN. Dr. Stone, thank you very much for your testimony.

Next, we will hear from Julie Garreau, and I hope I am pronouncing your name correctly, Julie, a member of the Cheyenne

River Sioux Tribe and director of the Billy Mills Youth Center, the

Main, in Eagle Butte, SD. Welcome, and you may begin.

STATEMENT OF JULIE GARREAU, EXECUTIVE DIRECTOR OF

THE CHEYENNE RIVER YOUTH PROJECT, CHEYENNE RIVER

SIOUX TRIBE

Ms. GARREAU. Thank you. Good morning, Senator Dorgan and

members of the committee. My name is Julie Garreau. I am a

member of the Cheyenne River Sioux Tribe and executive director

of the Cheyenne River Youth Project.

On behalf of the Cheyenne River Youth Project and the young

people of Cheyenne River, I would like to thank you for holding

this series of hearings about youth suicide prevention in Indian

country. We certainly appreciate the opportunity to share our

thoughts and to participate.

In addition, I would like to thank Senator Johnson, who helped

to secure Federal funding for our teen center which is currently

under construction.

I understand that I was invited to participate in this hearing because the Cheyenne River Youth Project has an inspiring story to

tell, a story that spans the course of 17 years; that involves success, joy and heartbreak. But I was not sure what part of that story

to tell because it has truly been an incredible journey. I have many

stories that I can share with you, all of which are very personal,

in fact so personal that I often become very emotional, especially

when I think about those young people who have lost all hope and

felt they had no other option but suicide.

In 2002 and 2003, on Cheyenne River we lost 17 of our young

people to suicide. In a community as small as ours, it is all very

personal because they are our neighbors, our relatives. We know

their mothers, their fathers, their grandmas and their grandpas.

They are my nieces and my nephews.
19

It truly is an indictment against all of us, our families, our communities and our tribes, when we lose our children to suicide and

other tragedies. We are failing our children, but it does not have

to be that way if we can make a combined effort to combine our

resources and partners to make a difference.

I believe the Cheyenne River Youth Project is an example of

what a grassroots organization can do for its community. The key

to preparing our kids to confront the challenges of youth lies within

local initiatives. We all know the history of the reservation, when

we were told what to wear, what to eat, how to dress, how to think,

and even how and when to pray. Although that history is tragic,

it is that reservation system that may now be our salvation because we are remotely located and come from close, small, closeknit communities.

Our story is only inspiring because it is about people taking care

of themselves, a local initiative, a personal solution. This is the

story of a small group of people doing everything possible in their

community to make a difference for their children. Once we had

done all we could through our own resources, we sought partnerships with community organizations and eventually outside support.

I would rather try to take it on ourselves, and we tried, but because we live in an impoverished economic condition and due to our

rural location, we understand that it is impossible. In our history,

we have encountered stumbling blocks, but instead of expending

our energies deciding where to place the blame, we are finding solutions. We have succeeded because we have not deviated from our

mission, which is to love and support the children and families of

Cheyenne River. Quite honestly, I would rather not be here today.

I would rather not leave my community to testify or to fund-raise,

but the reality of our situation is that we need help. Our children

need your help.

I truly love my home, my work, and most of all the children and

families that we are privileged to work with. I think the greatest

example I can give you about why the Cheyenne River Youth

Project is a success is the teen center we are currently constructing. The teen center is a reflection of listening to the children and

building upon those ideas. When we decided that it was time to

move forward in our plans to design and construct a teen center,

we understood from years of experience that we needed to consult

our teenagers. From that consultation, we have incorporated an

internet cafe, a library, a computer lab, art and dance studio, and

a counselor’s office into the plan, because our children told us what

they needed.

We have made listening to our community an artwork. A teen

center is not the only answer, nor is it the solution for every community. There are so many other needs, drug and alcohol counseling, better foster care and juvenile justice systems, and more mental health counselors. Nevertheless, our teenagers are excited about

this new youth center. We have seen it in their faces and heard it

in their voices. Even before it is built, it is giving them what they

need most, which is hope. Now, when they look on the horizon of

Cheyenne River, they see a teen center, which again represents

hope.
20

I thank you very much for your interest in our organization’s efforts. I think that we are truly doing some amazing things on

Cheyenne River and I think we are part of a really great future

for our kids.

Thank you.

[Prepared statement of Ms. Garreau appears in appendix.]

Senator DORGAN. Ms. Garreau, thank you very much for your

testimony.

Ms. GARREAU. You are welcome.

Senator DORGAN. We appreciate your work and your inspiring

story. I will have some questions as well.

Dr. Dale Walker is the director of One Sky Center. He is a Professor of Psychiatry and Public Health and Preventive Medicine,

and director of the Center for American Indian Education and Research and Oregon Health and Sciences University. We very much

appreciate your willingness to be with us, Dr. Walker, and you may

proceed.

STATEMENT OF R. DALE WALKER, DIRECTOR, ONE SKY

CENTER, OREGON HEALTH AND SCIENCES UNIVERSITY

Mr. WALKER. Senator, thank you very much.

I want to also add that your comments to open the meeting were

remarkable. They were personal and we can tell you have been

there. That is much appreciated. Sometimes we who testify have to

do that work to make those voices heard. Your efforts to help bring

this to the attention of the public is vital and greatly appreciated.

I would add also that Senator Smith’s opening conversation

about suicide and difficulties of families in this country are landmark in importance.

I am so happy and humbled to be here with you. I want to tell

you a little bit about who we are and what we have done, and what

we have found out about, and then some recommendations.

The One Sky Center is 2 years old. We have been working with

SAMHSA as a grant that is uniquely funded, actually, by two centers, both prevention and treatment centers within SAMHSA. It

was the vision to have a national resource center to provide information and cultural competence and best practices for all Indian

communities across the country. It has been a vision that I have

had for my 28 years of work in this area, that we need to have a

centralized body to gather this information.

Until now, we have been unable. SAMHSA itself spends between

$40 million and $50 million each year on American Indian projects.

The ability to collect the information in a way that we learn and

gather the data so that it is available to other Indian communities

has not been there. We have now put that information in place. A

major part of that information and our visits over the last two

years, I have been out to over 100 Indian communities to see what

is happening, to provide technical assistance, to provide training,

and also to explore consultation.

The issues that have happened in the last 6 months are critical

and extraordinary. The fact that there are suicide and violence

issues in schools in Indian communities is something that we are

vulnerable to across this country. All Indian communities have the

symptoms and the risk factors that you have heard today and are
21

vulnerable to the continuation of loss of life, incarceration and continued family and domestic destruction.

There is no doubt in my mind after seeing all of the places that

I visited, the intensity, severity and degree of difference in other

communities that exists in Indian communities. Earlier today we

were talking about why would that be. I think that indeed the historical relationship of 400 years, and over 600 treaties that define

access to care and education for Indian people and location of Indian people have been a part of the issues that we should all be

concerned about.

In addition, how people receive care has become quite visible, the

access to care. I was asked to do a site visit with Standing Rock

and provided the community assessment approach to doing that,

which is a unique and very important way to do suicide prevention

intervention work, where the community has its input and its ideas

are forefront in resolving the problems and issues.

If you look at Standing Rock and you see the size of the high

schools and junior highs or middle schools and the grade schools,

it is important to note some issues. If you just look at the facts for

a moment, what you find out is that well over 300 children have

attempted suicide in their lifetime, attempted. Where does their

treatment go after they have attempted? What access? You just

heard that if indeed there was an attempt, what kind of follow-up,

what kind of community and family interventions are made to support that attempt?

If you look further and broader, you find out that 40 percent of

the children have talked about suicide as an outcome in their life.

It is no doubt to me that the access to care is an issue. One of the

recommendations that we talk about is strengthening the behavioral health care capacity. It has been said that the Indian Health

Service can provide adequately 40 percent of the need. If that is

the case, what are we doing with the other 60 percent?

I recommend that we pay attention to full funding for the Indian

Health Service, and we also pay attention to full funding for mental health and addictions care within the Indian Health Service.

Even at that level, Senator, we need more resources. An interagency collaboration led by Health and Human Services has been

a remarkably important next step in cross-agency support. I would

think that if we could somehow from your point of view encourage

this continued interaction of interagency cooperation, that that

would be a vitally important step as well.

I have been a part of that growth and development over these

2 years and think that is one of the most wonderful dedications of

Federal services for support for Indian people that I have seen in

my 28 years of work.

A demonstration project, as Dr. Stone has suggested, a national

center for suicide, is an important step as well. We have been providing the leadership to develop a community interface so that you

can go to any of the communities and tribes and urban Indian centers to do this kind of evaluation from their point of view. That is

critical, and we have to continue.

We have also provided assistance for Standing Rock to seek funding under emergency funding for their services and if indeed that

occurs, the One Sky Center will be there also to provide the care
22

and the assistance and consultation to get that project moving

along.

The issue of a national evaluation of treatment must go hand in

hand with any resources. Dr. Stone defined benchmarking of services. We need to get the information out to all 562 recognized tribes

and the 34 urban Indian health programs so that they all will be

skilled and they will have the monies to support the access to care

that is needed.

I would like to thank the Committee and also this panel because

it is an honor to be here with all of you as well. Thank you.

[Prepared statement of Dr. Walker appears in appendix.]

Senator DORGAN. Dr. Walker, thank you very much.

Finally, the last witness will be Clark Flatt, president and CEO

of the Jason Foundation. Mr. Flatt is the president and CEO of the

Jason Foundation, a foundation begun after the suicide death of

Mr. Flatt’s youngest son Jason, aged 16, in 1997. It has received

national recognition for its community assistance resource line, a

24-hour, 7-day-a-week resource line staffed by a clinical specialist

in partnership with the foundation.

Mr. Flatt, we appreciate very much your willingness to be here

and share your comments with us. You may proceed.

STATEMENT OF CLARK FLATT, PRESIDENT AND CEO, THE

JASON FOUNDATION

Mr. FLATT. Thank you, sir.

Mr. Chairman and members of the committee, it is indeed an

honor to be here. This is as much a fact-finding experience for me

of being able to meet and talk with some of the people on the panel

and some of the people in the audience that we have been wanting

to talk with. You have really put together a good panel and a good

resource here.

My name is Clark Flatt, as you said, president and CEO of the

Jason Foundation. I was asked to come here today to share my personal story about our organization, The Jason Foundation, specifically our funding strategy and our current work with the Bureau

of Indian Affairs, specifically the Office of Law Enforcement Services, District Five.

One month from tomorrow, July 16, will be the eighth anniversary of the tragic death of my youngest son Jason, to what I have

even heard mentioned here, which we have been calling for years

a terrible silent epidemic. In the general population, this silent epidemic is now the third leading cause of death for our young people

aged 15 to 24. It is also the second leading cause of death for our

college-age students.

This silent epidemic as we call it has seen an over 300-percent

increase in the last 40 years among the general population of our

youth. Even though it has been mentioned and sometimes touted

that this trend has now leveled off and started to decline slightly,

when we look at it, it is still almost 300 percent from where it was

40 years ago, which is a rate that nobody could say is acceptable

in anyone’s eyes.

This silent epidemic that took my son’s life, of course, is youth

suicide. Nationally, the NHSDA reported in 2002 that in a study

done in 2000 of the general population, there was an estimated
23

daily average of over 2,700 suicide attempts each day in our Nation

from young people age 12 to 17. From these stats and others that

have been mentioned here today, specifically with the Indian nation, it was these types of stats that prompted us, my family and

a small group of friends back in 1997 to start The Jason Foundation in Hendersonville, Tennessee.

The Jason Foundation literally began on, as they say, the kitchen

table. A few months after my son’s death, we decided to get together and brought some friends and some professionals together

and decided that this silent epidemic of youth suicide that took my

son, that Jason would become a silent statistic. We would begin to

talk about how this impacted our family, how it impacted the community, and how it impacts even the extended community beyond

just where we live.

Our first mission was very simple. It was to do parent education

seminars. I had gone to every seminar that I could go to, the PTO,

PTA, community, church, to learn about drugs, HIV, homicide,

school violence, anything that can make me a better parent to protect my children. No one in the 16 years of Jason’s life ever discussed suicide as a problem that would face my problem and literally take my son’s life.

So we started a very, very aggressive local program to educate

parents. This grew very quickly. Today, we offer specialized programs which is a school-based program that is to be built within

the health and wellness curriculum of a school. It is not an extra

program or after-school program. It is actually a curriculum.

We also do staff training seminars which are used a great deal

across the Nation in in-service training for educators for continuing

education credits. Also, we still do the parent seminars, which is

a big part. Our budget in 1997 was for two months, $2,700, which was a

really aggressive thing for us at that time. Our budget for this year

in 2005 is $9.7 million, so we have grown quite a bit over the last

71⁄2 years. We now have a corporate office that from the kitchen

table has grown to a little over 4,000 square feet in Hendersonville,

TN. We have 25 regional offices across the Nation. We have contracted to open 24 more offices before the summer of 2006, covering

28 States that will have a Jason Foundation office literally within

their States and serving a great deal more.

One thing that as we talked and I was sharing with some of the

people that we talked about was how we did some of these things.

We very much believe in collaboration. Collaboration is the key. We

have a national clinical affiliate which is one of the things that

makes our program different, which is Psychiatric Solutions, Incorporated, out of Franklin, TN. They are now the largest provider of

in-patient health care in the Nation. They have served as our national clinical affiliate and give us the basis for our programs that

helps us in our development across the Nation.

We also have the AFCA, which is the American Football Coaches

Association. One of the things that was mentioned earlier is the

stigma. When we decided to come out and talk about Jason, people

did not talk about suicides that are happening. It was a personal

tragedy and you went on. I have talked with Senator Smith about

his. The situation to break this out, we needed to have a voice out
24

there. The American Football Coaches Association has provided

that voice. We have over 50 coaches across the Nation that do

PSAs for us and help us as ambassadors across the Nation in opening doors and getting our programs presented to the right people

in the States.

Also, the USA Wrestling Organization does the same thing with

their network. They have one of the best middle school and high

school networks in the Nation. We then went on to have a national

corporate affiliate which are proud to announce is Wal-Mart, which

is doing a tremendous effort with us in awareness across the Nation. We also work with 31 attorneys general.

I was asked today to specifically comment on JFI’s funding strat- egy of how we do this. Of the $9.7 million budget this year, JFI

has only one government grant, and that is for $77,500 that is a

block grant from the Tennessee Department of Mental Health and

Developmental Disabilities. It helps us with a specialized program

within Tennessee where we provide our school-based programs and

teacher in-service training for over 700 schools. All other funding

that we receive for The Jason Foundation is through corporate

gifts, in-kind support, private and public grants, fund-raising activities and individual gifts.

When I began The Jason Foundation, we spoke with several successful and some not so successful non-profits. I approached it as

a business decision. The one thing that almost ran with every one

of the ones that were not so successful, they had a small funding

base and almost every one of them were tied entirely to State or

Federal funding. They had failed. So we decided on our board of directors not to go that route. We have been able to, as I think JFI

has demonstrated, that if corporate America can see a well-defined

need and see how their involvement can make a difference, they

will invest in an organization that is well run and that can show

accomplishments.

Last, I would like to comment on our collaboration which is part

of this hearing here with the BIA Office of Law Enforcement Services, specifically with district 5. John Olivera, which is the National

Child Abuse director for the BIA, heard me speak in Los Angeles

and came up and asked me to consider doing a program in youth

suicide prevention, which I discouraged him at that point, until he

shared with me some of the stats, where it is 21⁄2 times as bad as

what we have shared here about the general population. It is 21⁄2

times that on Indian reservations and in Indian country.

So after talking and much prodding, we decided and signed an

agreement of operation in January 2005. We started the basic information gathering by talking to tribal leaders and community

workers, specifically in district five. Our plans are to take the JFI

programs for the schools and for the teachers and staff training

and parent seminars, and to take those and make them more ethnic and responsible to the community, and then provide those to

the communities. Again, as we operate throughout the Nation, we

never charge for any of our programs in our service areas that we

do for schools, churches or youth organizations.

As has been addressed and in closing here, one of the things that

we have seen, and I really believe the challenge is not identifying

the at-risk youth. That is not a challenge. We have the programs,
25

not only The Jason Foundation, but other fine programs out there,

have the programs that can be put in to and made ethnically responsible that will help identify these at-risk students. My concern

is, and it has been echoed here, what do we do once we recognize

those at-risk youths?

The services we have seen there at this point are not adequate

of being able to respond. Our fear is that if we start recognizing

more youth that are at risk and we do not get them help, as was

brought forth by Ms. Rough Surface as far as the things not coming

in, that we will even make the problem worse.

We are working on two programs, a tele-counseling program

which is modeled after, I know you do some work in tele-medicine.

We have looked at that and worked with the people doing the cardiac care part. We really believe that even though it is not optimum, that we can do using experts in adolescent psychiatry to help

locally train therapists to be able to provide services in these remote areas.

Also mirroring some other programs, the mobile counseling centers, we have already gone to the point of outfitting it where they

could go to different points of the reservation 4 days a week and

go back to the IHS hospital that we hope to collaborate with, where

there would be referral sources and looking more in to the points

of what we could do for extended care of some of the families they

talk to.

We are very much in the infancy range of all these programs, but

we are excited about working with the other fine organizations

here and we appreciate the opportunity to testify here. I would in

closing say that the key lies, as we said here, I believe with the

grassroots organizations throughout the communities. Those are

the ones that make the difference. Those are the ones that are in

tune with the communities. And those are the ones that we need

to center upon.

Thank you for this opportunity.

[Prepared statement of Mr. Flatt appears in appendix.]

Senator DORGAN. Mr. Flatt, thank you very much. I appreciate

your testimony and your work on behalf of the memory of your son

in ways that we hope will, and are convinced will save other lives.

Dr. Walker, you used a term of 45 percent. I think you were talking about the Indian Health Service. Describe that term to me

again.

Mr. WALKER. Yes; several years ago when the Indian Health

Service was trying to develop its budget and projections, they tried

to look at the need in the community. They went through an assessment process on all of the regions. If you collectively looked at

it in an additive way, 45 percent of the services they were able to

provide. It is not defendable, if you will. It really tells the problem

in being true.

If I could say an example of that I think is if you look at Standing Rock. Those kids that are in the schools, when the counselors

are told that the kids are feeling suicidal, they are referred over

to mental health for evaluation. There are only two mental health

people, one in North Dakota and one in South Dakota, who line up

the support and services. It is a 4-month waiting list. Two people

are not enough. So the services and the ability to get the number
26

of people there is not adequate. The people who are doing the work

are excellent.

Senator DORGAN. Mr. Flatt described, once you have identified

the person, a young person at risk, then what do you do with him.

In the case of Standing Rock, for example, with the waiting list you

have described, the inadequate services that Ms. Rough Surface described, to the extent that some child is sent someplace to get some

help, in most cases they are sent to a hospital to a psychiatric unit

about 70 miles or 80 miles away. Testimony from that tribe indicates that most of these children are back home within 1 day or

two, with a little bit of medicine and no follow-up.

So that describes the problem, Mr. Flatt, that you have alluded

to, that if you have identified someone at risk, then you have to

have the mental health services, the general health services available to treat it and deal with it.

Ms. Rough Surface, you described the tragedy in your family.

You said that there just are not enough mental health services, one

psychiatrist, 3,000 cases. Did you mean 3,000 people and one psychiatrist? At any rate, you just indicated that there is not the ability to have professional help because the help is not available.

I think one of the other things that you had in your testimony,

I think it was yours, just for example the lack of telephone service

in a number of homes. A home that does not have a telephone is

not a home that can easily reach out and go track somebody down.

Can you describe that?

Ms. ROUGH SURFACE. Yes; IHS is the primary mental health provider for the majority of families on the reservation. Accessing

other services requires a drive of up to 75 miles or more. Families

have little choice but to depend on the limited services of the IHS.

There are several discrepancies of services in the area of mental

health. One such gap includes the absence of an on-call mental

health liaison mechanism to assist families during emergency situations involving a suicide episode. The lack of support services compounds the event with additional trauma to family members. The

majority of incidents which require intervention occur after working hours.

Dr. Kevin Furst at Standing Rock IHS, gives the following explanation for the policy that there are not enough qualified mental

health providers to provide adequate coverage. We only have one

doctoral-level professional. Dr. Furst also reports here on Standing

Rock that there is one psychologist for every 3,740 mentally ill persons.

Senator DORGAN. Okay. That is the statistic I was looking for.

Ms. ROUGH SURFACE. Yes; they have two bachelor-level staff, but

they are not qualified to do suicide assessments, although they

have done them in the past.

Senator DORGAN. Thank you.

Dr. Stone, you mentioned the need for school-based mental

health services. What is the effectiveness of the school-based mental health services and how prevalent is that service?

Mr. STONE. The prevalence rates I could not quote directly to

you, but I will look that information up and get it and submit it

to you.
27

I think the critical element of school-based services, as Mr. Flatt

had reported, accessing children in the schools is very important,

but the critical element is not necessarily just school-based services, but collaborative school-based services, so that the school is

collaborating.

Senator DORGAN. Collaborative with what?

Mr. STONE. Collaborating with the Indian Health Service, and

then further collaborating with other agencies that have responsibility for the mental health care of tribal people. That would include counties and State agencies also.

So we really have to have a robust collaboration among professionals and an educational effort among professionals to understand the issue of suicide, to recognize the factors of suicide, to

help identify the kids who are possibly suicidal, and also to provide

preventive activities to those kids and families that may help them

to deal with issues of alienation, with issues of self-esteem, with

issues of depression, possibly before they get into the acting-out

phase.

So I think it is clear that interagency collaboration is very important.

Senator DORGAN. All right. Thank you very much.

Ms. Garreau, with respect to the Cheyenne River Youth Project,

you are now building a teen center, but you have had the Cheyenne

River Youth Project in operation for some while. Is that correct?

Ms. GARREAU. Yes; it has.

Senator DORGAN. Have you seen a diminishment of suicide attempts? Tell me the impact that you have been able to see or experience with respect to youth as a result of this project.

Ms. GARREAU. Our organization was established in 1988. In

1994, we created a suicide crisis referral hotline, which we operated from 1994 through 2000. At that point, we lost funding and

so we were not able to do it anymore. In working with the tribal

psychologist, within the first year he had estimated that we had affected the number of completions and attempts by 38 percent.

So we know that, and I think it worked because they were local

people who manned the hotline. We had close connections to community organizations and agencies. We worked with the psychologist to where we could actually schedule somebody when they needed it. When they would call on the hotline, we had times when we

could schedule them to go in and see a psychologist.

So we did see an effect almost immediately. I think as far as the

teen center, I think what we provide is a support system for our

kids. I do not have any definitive numbers, but what I do know because I have been there since the beginning, actually being the

founder of the organization, I can tell you how many kids that we

have affected positively who have gone on to become, and most of

our kids are at risk. All of them come from family situations where

they struggle getting to school every day, focusing on their homework, where their meals are going to come from.

What we try to do is we are a support system. So if they need

help with homework, we are there for them. If they just need to

talk, we are there for them. We provide them social opportunities.

We also provide tutoring. With the new teen center, we have had

a youth center for kids ages four to twelve, but we did not have
28

a place for them to transition into. So hopefully in the spring of

2006 we will have the grand opening for our teen center so that

our children will have, once they outgrow our first youth center,

they will be able to move into the teen center and continue to have

that positive influence.

Senator DORGAN. Thank you for your work.

Mr. Flatt, you heard Dr. Walker talk about 45 percent. I think

this describes that when you look at the universe of health care

need, 45 percent of it is covered with existing funding and 55 percent is not covered. That obviously means that people with all

kinds of problems are not getting the health care, in some cases

mental health care they need.

Now, you have been enormously successful raising private sector

funds for your foundation, and I commend you for that. I know how

hard that must be. You have obviously reached out and found a

network of private sector funding. Yet what you are doing is really

important. I am really pleased you are connecting to Indian Health

and so on.

We still need full funding and we need to move toward full funding for the needs in the Indian Health Service. Dr. Grim, a man

for whom I have great admiration, he has testified here a number

of times and testified at the Bismarck meeting. He cannot answer

the questions I ask, and I understand why he can’t. He works for

the Administration. I asked the question, Dr. Grim, how much

money did the Indian Health Service ask for? Tell me what your

request was of the Office of Management and Budget? That is the

eye of the needle through which funding requests go. It goes from

the Indian Health Service to the Office of Management and Budget, which is part of the White House, and then into the President’s

budget and back.

So we know what the President’s budget asks for with respect to

the Indian Health Service, but Dr. Grim cannot answer the question: How much did you request? And so, because he works for

them, and to do so would undercut the President’s budget. So I formally asked him for it, but I do not ever expect to get it.

The question is, however, do you agree that notwithstanding all

the private sector initiatives, and especially yours, which I am so

proud of what you have done, we really do need to focus on better

funding through the Indian Health Service for a wide range of

things, especially mental health.

Mr. FLATT. Yes, sir; definitely. I think that it needs to be both.

I think that you need to tie the private sector funding, which I am

a big champion of. I believe that is the moneys that will be if it

is built in a correct way, will be there year after year. It breaks

my heart when I hear stories like she said of starting a program

that is successful and because, especially on State levels where

budgets are here today and gone tomorrow, where a great program

is working and showing results has to shut down because their

only funding source was that governmental source.

The best scenario would be to have the private sector and the

governmental funding together. Just with the money, I can tell in

the short 6 or 7 months we have been working with BIA, the IHS

could use a lot more money than they are asking for and still

would have a lot to go. They are doing a noble job with the moneys
29

that they are getting, but yes sir, it cannot be done on the private

sector at that large scale.

But I do think that they should be a collaboration. I agree with

several of the people who talked here, and that is what we were

talking with Dr. Perez earlier. We have been trying to get together

for a couple of months now, of trying to get the private sector to

work with IHS and to share together resources and to share together different things that we can do together.

So yes, sir, I wholeheartedly, and we work very hard with the

Garrett Lee Smith Memorial. In fact, Congressman Bart Gordon

from Tennessee was the one who championed that on the House

side, which we had spoken with him about getting involved. We are

so proud that he was that member to do that.

So yes, we need that funding. We need more than that funding.

But I would like to see, so that we do not have stories like this,

that we bring in the private sector, sell them on the idea of getting

involved, especially on the local areas. There is a lot of the clinical

support that can be done and would love to be done by local affiliates. And then you get a buy-in that goes on and on and on beyond

possibly just a governmental grant.

Senator DORGAN. Dr. Walker talked about access to care and location. I think you were describing, as we know especially in North

Dakota, but in most parts of the country, the location in many

cases of where Native Americans live is far from the hospitals, the

primary centers of care.

So because of that, we have in one reservation, for example, a

dentist who performs dentistry out of a trailer house for 5,000 people. Well, is that dental health? Well, whoever is there is doing I

am sure the best job they can, but the resources are not sufficient

and the location of the reservation is often far from these other facilities. That, too, is a very significant problem. That is why the Indian Health Service has to be better funded.

If we are only meeting one-half the need, and I do not know

these statistics. I just asked our staff to dig into that some. But if

we are only meeting one-half the need that exists, that means the

other one-half are suffering, perhaps mental health issues; perhaps

resulting in suicide; perhaps cardiac problems. The list is endless.

So we just have to do better, in my judgment. Dr. Walker, you

might want to expand on the access issue. I think that even if we

have the will here, you have to have the will to identify, the will

to understand who is at risk. You have to have access on an emergency basis when you need it, regular access to the services you

need.

Mr. WALKER. I could not agree with you more. The issue of access and understanding how you get access are quite important in

Indian communities. One level is to try to support the funding

process to its requested level.

I understand ‘‘requested by whom’’ is maybe a part of that question, but need has to be served. That is a treaty obligation. If it

is not being served, I would question the treaty.

The other part of that may be my more optimistic side, is that

there are multiple agencies that do provide services, both State and

Federal, that are not within the IHS, but could be potential resources. One of those is Medicaid and Medicaid reimbursement for
30

care. We know that the rates and the ability to get access to care

in the two States of North and South Dakota are different from one

another in the way that they do their services, even in the timing

that they have their services available.

Wouldn’t it be nice if we could encourage agencies that do provide social services and support, housing, criminal justice support,

at multiple State levels and Federal level to begin to work on these

problems and get together to provide a service of care.

You know well, Senator, that there are different points of view

and different very misunderstandings of Indian needs. Many States

will say that is a Federal problem; we do not do that. There are

35 States that have Indian communities, Indian reservations. All

of those States have to have an equal and balanced understanding

of how they get access to care.

Now, you are right in the isolation. Standing Rock is an interesting area because there are eight communities somewhat distant

from one another in an area the size of one-half of New Jersey. You

are trying to provide geographic care and assistance to eight communities. Somehow when you set up appointments in one area and

you expect the patient to be there, but they are unable to communicate that they cannot be there. There are many broken-down appointments and follow-up just based upon the geography, as you

say.

I would add, though, that is actually true in the urban settings,

too. We have a lot to learn in that area.

If I might, I want to add one other extra point. That is that we

have these emergencies of Standing Rock and Red Lake. If you look

at think about over the year, there might be 10 of those a year that

are extra-emergent; that stand up and say do something. The One

Sky Center has tried to be the on-call center to be there. It is a

commitment beyond what we were originally funded to do, but it

is a moral commitment that we have to make to be there.

We have worked closely with the Indian Health Service and

SAMHSA to provide as much support as we can, but if we really

want to develop a demonstration project to develop emergent care,

and why would one want to do that? The example would be both

at Standing Rock and Red Lake. When your health care providers

are members of the community, it is their families who are committing suicide and suffering from homicide. It is not the time for

them to be therapists. It is the time for them to be grieving family

members.

We have to provide a backup system and support to help that

emergent care. While it is not a huge issue from point of view of

happening every day, we cannot visit Standing Rock, do our evaluation, shake hands with them, and wish them well. We have a

committed partnership and that lasting relationship has to be supported.

Senator DORGAN. Dr. Walker, thank you very much.

I want to thank all of the witnesses who have come from some

distances to be with us today.

Let me thank also Senator McCain. He had another hearing this

morning, but I thank him for his cooperation and his work and his

attention to this issue as well.
31

I think that, as I said when I started, this is a very sensitive

topic. There are some who have counseled me privately not to have

public hearings on this because it diminishes some in the eyes of

others. That is not my intent at all. I think that when asked what

is the most important thing in your life, if you do not answer ‘‘your

children,’’ there is something fundamentally wrong with you. I

think everyone in this country answers ‘‘their children.’’ They will

do anything for their children. We all want life better for our children. Whatever is in second place is a long ways behind. It is about

our children.

You have, Mr. Flatt and others, I, too, have lost a wonderful

daughter to heart disease, not to suicide, but I can only imagine

the added horror of having a child not only gone, but having a child

that has taken his or her own life.

In terms of responding to the needs of our children, I think the

passion that has been demonstrated by the testimony today is really important. We are going to get this done, make progress. We are

going to try to reach some goals here if people pull together and

understand there is an urgency.

I do not mean to suggest somehow that there is something different about Indian country. These are the first Americans. These

are the people who greeted the immigrants. And yet in many cases,

they live in third world conditions on too many reservations with

full-blown crises in housing, health care and education, and with

circumstances where those who are afflicted with problems cry out

for help and do not find it.

It seems to me you start with building blocks deciding the first

thing we are going to do is make sure that we reach out to our children. When you find areas of the country where you have 21⁄2 or

3 times the rate of teen suicides, or in the Northern Plains 10

times the rate of teen suicides of the rest of the country, there is

an urgency and a crisis for us to understand what is happening

and to begin to mobilize efforts to do something about it.

All of you in your way are doing that and your travel to Washington, DC is important. I hope in the long term we will save lives

of children in this country.

I would encourage you to do the same as I did the previous

panel, the Surgeon General. If you have some suggestions for Senator McCain and I of what you think we might add to the Indian

Health Care Improvement Act as we consider introducing that and

moving it forward now in this Congress, we are determined to get

this done and get it signed by the President, please send us your

recommendations as well following this hearing.

In the meantime, I want to thank all of you for some very important testimony and I appreciate your participation.

This hearing is adjourned.

[Whereupon, at 11:40 a.m., the committee was adjourned, to reconvene at the call of the Chair.]

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APPENDIX

ADDITIONAL MATERIAL SUBMITTED FOR THE RECORD

PREPARED STATEMENT OF HON. GORDON SMITH, U.S. SENATOR FROM OREGON

Mr. Chairman, I’d like to begin by thanking you for recognizing the serious problem of youth suicide among our Native American population, and for convening today’s hearing to call attention to this issue and the steps that can be taken to prevent it from happening.

Suicide is the second leading cause of death among Native American youth aged

10–24. And according to CDC, in 2002 there were 106 suicides in this age group,

80 percent of whom were male. In my home State of Oregon, 63 young people in

this age group died by suicide in 2002, 5 percent of whom were young Native Americans. Mr. Chairman, it is time for the Federal Government to respond to this alarming trend, as we cannot afford to wait any longer.

Fortunately, there is hope. On October 21, 2004, President Bush signed the Nation’s first youth suicide prevention bill into law—the Garrett Lee Smith Memorial

Act, named in memory of my son who died by suicide in September 2003. Garrett’s

law recognizes that youth suicide is a public health crisis linked to underlying mental health problems, and specifically targeted funds to help enable Native American

tribes to develop suicide prevention and early intervention programs. Garrett’s law authorized $82 million dollars over the next 3 years for youth suicide prevention and early intervention programs including voluntary, confidential

screening programs like TeenScreen, a program my wife Sharon and I have been

enthusiastic supporters of in our hometown of Pendleton, OR.

The Federal Substance Abuse and Mental Health Services Administration

[SAMHSA] is charged with implementing Garrett’s law and will be awarding grants

shortly. These grants will be used to develop and implement State-sponsored statewide or tribal youth suicide early intervention and prevention strategies in schools,

educational institutions, juvenile justice systems, substance abuse programs, mental

health programs, foster care systems and other child and youth support organizations.

Of the $10 million we appropriated for fiscal year 2005, $5.5 million will find

State and tribal youth suicide prevention efforts. According to SAMHSA, this money

is expected to fund 14 awards, with a maximum award of $400,000 and at least one

grant will be made to a Native American tribal organization. I’m pleased to report

the first grant awards will be announced at the end of the summer.

For fiscal year 2006, the Garrett Lee Smith Memorial Act is authorized to receive $27 million, as advocated by the suicide prevention community. Securing full funding through the appropriations process will be a major step forward in helping

States and tribes make real progress in preventing youth suicides.

However, enactment and securing full funding of the Garrett Lee Smith Memorial

Act is just the beginning, a first step down a long road toward developing our Nation’s mental health infrastructure.

Mr. Chairman, mental illness is a treatable disease, especially if detected at an

early stage. Full funding for Garrett’s Law will improve early identification of young

Americans with mental illness and help facilitate their access to treatment, espe-
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cially among our Native American youths who are at particularly high risk. I am

confident the Garrett Lee Smith Memorial Act will help save Native American children and families from experiencing the pain of suicide.

I sincerely appreciate the efforts you and this committee are undertaking on behalf of our Native American population to highlight the importance of this issue,

and we are fortunate to have such a distinguished group of witnesses with us today.

I am especially pleased to welcome Joseph Stone, who is a member of the Black

Feet Tribe and provides mental health services to tribes in Oregon; and Dale Walker, director of One Sky Center at the Oregon Health and Science University in Portland, OR, which helps tribes develop effective mental health and substance abuse

treatment programs. It is a pleasure to have both of you here and I truly appreciate

your sharing your experiences with us today.

Mr. Chairman, in closing I would like to leave you and my colleagues with this

final thought: Today, while we are discussing the broad spectrum of the possible approaches that can be taken to proactively help prevent these tragedies among our

Nation’s young people, we must not forget that mental illness and suicide are indiscriminate killers. Mental illness doesn’t care if you’re rich or poor, from a loving

family or a broken home. The only thing that matters is diagnosing the problem

early and getting treatment to those who need it in time to make a difference. This

is an area I’m sure all my colleagues can agree upon, and I look forward to working

with you Mr. Chairman to help young Native Americans and their families combat

this terrible problem.

Thank you.

PREPARED STATEMENT OF TERRANCE BOOTH, SR., METLAKATLA INDIAN COMMUNITY, METLKATLA, AK

I am a former tribal council member, Metlakatia Indian Community, Metlakatia,

Alaska. I served on the tribal council for 8 1⁄2 years and during my time served we

in our community had youth suicide take place. More attention needs to be given

to the Native American Youth. Primarily, poverty reductions steps need to be in

place for all of the American Indian Reservations. Each year as the new USA Census report comes out one does not see the elimination of poverty among American

Indians it remains about the same each time Census Report is issued. Eliminating

poverty and improving the social and economic conditions of American Indians will

greatly improve their tribal settings. As it is now with such poor state of tribal settings it is no wonder thoughts of suicide prevail among our youth.

Terrance H. Booth, Sr. (Tsimshian Tribe)

PREPARED STATEMENT OF TWILA ROUGH SURFACE, STANDING ROCK SIOUX TRIBE

Good Morning, I would like to thank Senator Dorgan for the invitation to state

my concern for the young people of my tribe.

My name is Twila (Summers) Rough Surface, I am an enrolled member of the

Standing Rock Sioux Tribe and lived on the reservation my entire life. I am a mother and a grandmother and come from a family of 5 brothers, 3 sisters with 14 nieces

and 20 nephews.

I recently lost a niece to suicide on February 2, 2005. She was my sisters’ third

child. The following events, I believe contributed to the eventual death of my niece.

January 7, 2005, her brother was killed in a car accident. During the grieving period, her mother had nobody to come and talk to her regarding the death of her son.

I can only speculate that my niece saw all the hurt and couldn’t handle the loss,

so she decided to take her own life. My sister was overwhelmed by the deaths and

also tried to take her own life. After the attempt my sister relayed the following

‘‘She thought the only way to make the hurt go away was to take her life so she

would not feel the hurt and pain.’’ Luckily a family member found her in time.

The loss of my nephew had a great impact on his friends. One of his friends who

had been selected to be a pallbearer at his funeral committed suicide on the day

my nephew was buried. His best friend also said he missed him very much and on

April 7, 2005 he committed suicide The effect of the deaths in my family has

touched many and continues to be a concern. I must mention that at no point did

any mental health professionals contact our family. I feel if there had been intervention with grief counseling and support for my sister and her children, my niece may

have had a chance to grow to be an elder of the community.

The overall rate of suicide among our youth has increased. Rates remain unacceptably high. Adolescents and young adults often experience stress, confusion, and

depression from situations occurring in their families, schools and communities.
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Such feelings can overwhelm young people and lead them to consider suicide as a

‘‘solution.’’ Few schools and communities have suicide prevention plans that include

screening, referral, and crisis intervention programs for youth. Programs designed

to assist children and families dealing with sever trauma are not readily available

on Standing Rock.

Families are economically disadvantaged and with the 40–75-mile trip to seek

counseling it is virtually impossible to access these options. Transportation and access to a telephone is essential to regular therapy, however this is not a luxury the

majority of our families have.

We do not have:

• Effective clinical care for the mental, physical, and substance abuse disorders.

• Easy access to a variety of clinical interventions and support for help seeking.

• Family and community support.

• Support from ongoing medical and mental health care relationships.

• Grievance counseling.

• Not enough police.

Suicide is preventable. Most suicidal individuals desperately want to live; they are

just unable to see alternatives to their problems. Most suicidal individuals give definite warnings of their suicidal intentions, but others are either unaware of the significance of these warnings or do not know how to respond to them. Surviving family members, suffer the trauma of losing a loved one to suicide, and are at higher

risk for suicide and emotional problems. We as a nation need to be aware:

• Learn the warning signs.

• Get involved.

• Become available.

• Show interest and support.

• Be willing to listen.

• Be non-judgmental.

• Offer empathy.

• Offer hope that alternatives are available.

• Out reach services.

Take action, Remove means and get help from individuals or agencies specializing

in crisis intervention and suicide prevention.

In conclusion, I would like to thank you for listening and request immediate assistance for the Standing Rock Sioux Tribe.
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QUESTIONS OF DR. CARMONA, SURGEON GENERAL, AND DR. GRIM,

DIRECTOR, INDIAN HEALTH SERVICE

Question: What is the status of fiscal year 2005 funding through SAMHSA for

two programs authorized under the Garrett Lee Smith Memorial Act?

Answer: The request for applications for the State-sponsored Youth Suicide Prevention and Early Intervention grants and the Campus Suicide Prevention grants

have been received and are currently undergoing peer review. SAMESA expects to

make awards for these programs by September 30.

Question: In September, 2003, Dr. Grim created a National Suicide Initiative at

IHS to provide national leadership on this tragic issue. One of the major areas of

this initiative involves research. What is the status and results of this initiative

with respect to data collection?

Answer: Surveillance, data collection and data analysis are integral to data based

research efforts, but just as importantly they are components to a comprehensive

community or public health response to suicide. In support of data collection and

analysis, and under the direction of the Indian Health Service Division of Behavioral Health (DBH), the Office of Information Technology (OIT) released a suicide

surveillance tool in the Resource and Patient Management System (RPMS) Behavioral Health System (BHS) v3.0. This suicide surveillance tool, a 21–item form, allows behavioral health providers to record suicide events. The suicide reporting form

is also available in the graphical user interface to BHS v3.0, Patient Chart, which

supports direct provider entry of clinical information. Direct provider entry of clinical information enhances both the accuracy and privacy of clinical data—two very

important factors in the collection of suicide data.

It is believed to be the most comprehensive tool and surveillance undertaking for

suicide anywhere.

Also, under the direction of the DBH, the Indian Health Performance Evaluation

System (IHPES) Program developed a corresponding web-based suicide reporting

form. The web-based suicide surveillance tool replicates the functionality and content of the RPMS-based tool. The web-based form allows non-RPMS users to: (1) access the tool via the DBH website; (2) complete documentation and data entry activities for suicide related events; and (3) submit the completed suicide activity to

a central data base located at National Programs.

DBH/OIT will release the RPMS suicide reporting form in the IHS Electronic

Health Record by the end of fiscal year 2005. Deploying the form in the EHR will

allow primary care providers to also record suicide events. This will provide more

comprehensive data and facilitate baseline fiscal year 2006 suicide data for American Indian/Alaska Native patients receiving care at IHS direct, tribal and urban

facilities Suicide data (including data entered via the RPMS-or web-based reporting

tools) will be available via the DBH website. I/T/U behavioral health program managers will be able to view data specific to their Area (rates per 100,000) as well as

data from other areas. All data will be in aggregate form and will not contain any

patient identifiers. The system will contain three layers of security including: (1)

IHS firewall and network security; (2) user id and password protection; and (3) Secure Socket Layer (SSL) security. SSL security is the same security used by financial institutions to allow ‘‘on-line’’ banking activities. There are currently 250 sites

using the current BH applications.

Question: What sorts of partnerships have IHS and BIA formed to address the

youth suicide issue on reservations? What kind of partnerships do you think would

be useful?

Answer: At the national level, IHS Division of Behavioral Health (DBH) representatives are collaborating with the BIA Office of Law Enforcement Services

(OLES) representatives to develop a Memorandum of Understanding (MOU) to improve access to health and mental health care for American Indian and Alaska Natives (AI/AN) who are incarcerated in BIA and tribally contracted/compacted adult

jails and juvenile detention centers. The intent of the MOU is to promote the establishment of local IHS, BIA and Tribal interagency agreements to coordinate services

and establish Indian Country policy regarding screening (e.g., for suicide ideation),

intake, assessment, medication management, and other health and mental health

procedures (e.g., protocols for actively suicidal inmates) for incarcerated individuals.

One issue in AI/AN communities is that tribal or IHS clinics are usually open 8–

5, and an individual who is actively suicidal may need to be transported hundreds

of miles to a regional hospital. In situations where local secure safe room are not

available a suicidal youth may end up being incarcerated in the local adult jail for

protection (which is against BIA OLES policy). Better IHS/BIA collaboration should

create additional secure space for individuals who are actively suicidal.
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IHS Headquarters Office of Clinical and Preventive Services (OCPS) has established a multi-disciplinary School Health Committee, which is obtaining information

concerning school health issues in Bureau of Indian Affairs Schools, Tribal Contracted/Compacted schools, and those State public schools whose student population

is predominately American Indian. The overall goal is to assist those schools to promote healthy lifestyles for AI/AN students (e.g., reducing risk factors relating to suicide ideation) and to effectively provide an environment that is conducive to learning and encourages students to achieve. In the Billings Area, the IHS, BIA, tribal

representatives and the Jason Foundation are collaborating to provide a culturally

appropriate suicide prevention curriculum for school administrators and staff to recognize signs and symptoms of suicide and other suicide prevention services. This

type of collaboration could be easily duplicated in other parts of Indian country. Another area that IHS and BIA partnerships could be developed is providing suicide

prevention e.g., peer mentoring and life skills education in schools including Youth

Regional Treatment Centers. Better collaboration at the local level would also lead

to improved follow-up care plans and policies for suicidal individuals who have been

hospitalized in State, regional, or private hospitals.

Also, some of the IHS Area Offices behavioral health staff are involved in establishing an Area-wide suicide surveillance and prevention system in collaboration

with the Bureau of Indian Affairs (BIA) and States.

Question: At the committee’s May 2 field hearing in Bismarck, Dr. Grim spoke

of his experience at Red Lake High School. He told us that he saw the Red Lake

Community drawing strength from not only mental health professionals but also

tribal spiritual leaders. Please comment on the role of traditional health care practices in prevention and treatment of suicide and related mental health issues.

Answer: It is the policy of the Indian Health Service [IHS] to facilitate the rights

of American Indian and Alaska Native people to their beliefs and health practices

as defined by the tribe’s or village’s traditional culture. The current IHS policy is

meant to complement and support previously stated IHS policy for implementing

the American Indian Religious Freedom Act of 1978 (Public Law 95–341, as amended). The IHS recognizes the value of traditional beliefs, ceremonies, and practices

in the healing of body, mind, and spirit. The IHS encourages a climate of respect

and acceptance in which traditional beliefs are honored as a healing and harmonizing force within individual lives, a vital support for purposeful living, and an integral component of the healing process.

According the World Health Organization (WHO), the term ‘‘traditional medicine’’

refers to ways of protecting and restoring health that existed before the arrival of

modem medicine. In practice, the term ‘‘traditional medicine’’ refers to a number of

components including mental healers and herbal medicines. A majority of native

populations depend on traditional medicine for primary health care. The work force

represented by practitioners of traditional medicine is a potentially important resource for the delivery of health care and medicinal plants are of great importance

to the health of individuals and communities.

The Director’s Traditional Medicine Initiative emphasizes the alliance of traditional and western medicine practices between community traditional healers and

IHS health care providers. Through this initiative, the agency seeks to foster formal

relationships between local service units and traditional healers so that cultural values, beliefs, and traditional healing practices are respected and affirmed by the IHS

as an integral component of the healing process.

During 1995, 1996, and 2001, discussion circles were held in Indian Country to

seek advice from traditional healers and tribal leaders on how to address traditional

medicine. In response to concerns identified in the discussion circles, decisions regarding traditional healers are to be based upon what the local community considers

appropriate. The IHS will honor the preferences of local communities in identifying

traditional healers and determining how and if they should be incorporated into the

medical model. It is the local community’s responsibility to approach and orient local

health care providers about tribal and/or community culture and traditions.

Question: Please discuss IHS’s efforts with SAMHSA to conduct training for tribal communities in suicide prevention and response.

Answer: The IHS and the Center for Mental Health Services (CMHS/SAMESA)

Inter-Agency Agreement supports programming and service contracts, technical assistance and related services for suicide cluster response and suicide prevention for

American Indian and Alaska Native tribal and urban populations. The Agreement

involves two areas: (1) the development of a community suicide prevention ‘‘tool kit’’

website. The tool kit will include culturally appropriate information on suicide prevention, education, screening, intervention, and community mobilization which could

be readily available in American Indian and Alaska Native communities via web
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and other digitally based media for ‘‘off the shelf’’ use and further development

throughout the country. And, (2) The training and deploying of a network of at least

12 behavioral health personnel (Tribal and/or Federal), one from each IHS Area, to

serve in the CMHS/IHS national Suicide Prevention Network (NSPN). These individuals will be trained to provide onsite visits to communities in need of suicide prevention and/or intervention assistance. To date, prevention/intervention tools have

been developed and a focus group was convened to review the materials at the annual IHS/SAMHSA Behavioral Health Conference in San Diego on June 28, 2005.

Feedback from this meeting will aid in the refinement of the tool kit materials. It

is the intention of the IHS to implement the toolkit in all their area offices by the

end of the summer.

In Albuquerque, NM, on June 13–17, 2005, a 5-day training was held to prepare

over 20 participants to deliver onsite assistance to communities in crisis; those that

are experiencing suicide clusters or need suicide prevention assistance. The training

included: (1) Youth Suicide Prevention Initiative, which is based on the Center for

Substance Abuse Prevention’s (CSAP) Gathering of Native Americans (GONA)

Model Program and also involved concepts of peer mentoring, facilitator training,

and team and trust building; (2) Critical Incident Stress Management (CISM),

which included concepts of defusing and debriefing; (3) QPR (Question, Persuade,

and Refer)—a suicide prevention basic skills train the trainer technique; and (4)

presentations on traditional healing ceremonies and resiliency. A second Youth Suicide Prevention Initiative training will be held in Billings, MT, on August 1–3, 2005,

and will provide participants an opportunity to engage their facilitation skills in delivering suicide prevention models/processes to approximately 60 youth, with an estimated 8 adolescents attending from Standing Rock and Red Lake communities.

IHS is collaborating with BIA at the local level to coordinate this training.

Another suicide prevention effort that IHS and SAMHSA are collaborating on is

the development of a Suicide Prevention Scan. The Indian Health Service and First

Nations and Inuit Health Branch of Health Canada (FNM/HC) Memorandum Of

Understanding (MOU) Suicide Prevention Working Group was developed to address

concerns and share solutions regarding the disparity of suicide rates among the indigenous people of North America. It was a direct result of the MOU between the

HHS and Health Canada, signed in Geneva, Switzerland, in 2002. The purpose of

this MOU is to ‘‘share knowledge through an agreed upon annual schedule of work

which may include the exchange of information and personnel, the conducting of

workshops, conferences, seminars and meetings.’’ The Scan (a comprehensive directory) of promising and best suicide prevention practices, or programs, is currently

being developed by One Sky (on behalf of the U.S. and funded by CMHS) in collaboration with FNIHB, Assembly of First Nations (AFN) and the Inuit Tapariit

Kanataini (ITK) organizations.

One area that IHS, SAMHSA, and BIA could collaborate on is the incorporation

of suicide prevention programs (e.g., life skills education or peer mentoring programs) in schools with high AI/AN populations.
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