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4.7 Socioeconomics 

The following section presents the results of the analyses of direct, indirect, and 

cumulative effects to existing and anticipated economic, demographic, housing, fiscal and 

social conditions in the Study Area, as previously defined in Section 3.7. The analysis of 

future conditions in the reasonably foreseeable future takes into consideration the 

anticipated growth in visitors to the Turning Stone Resort & Casino and the associated 

increase in employment and other changes that are likely to occur with that growth, as 

well as changes in future conditions resulting from ongoing and planned actions by the 

Nation that are unrelated to the federal action. These Nation actions include ongoing 

implementation of the Nation housing program. A set of assumptions were developed in 

order to evaluate a reasonably conservative array of potential effects related to new 

housing under each alternative. These housing assumptions were developed assuming that 

future housing would be located in a similar ratio/percentage as the Nation’s current 

housing units. Different housing conditions are presented in the discussion of each 

alternative, as the housing is influenced by the taxation scenarios and the availability of 

Nation land that is needed to implement this program. It is important to note that, while 

this analysis indicates a range of potential effects to the Nation’s housing program 

associated with excluding some or all lands from conveyance into trust, these effects 

would differ under each taxation/jurisdiction scenario and would also differ depending on 

the progress of the Nation in implementing this ongoing program. For example, under the 

Property Taxes Paid scenario, the Nation may choose to construct housing on Nation land 

that may be excluded from trust and subject to property taxes or while the resolution of 

the trust decision may be in dispute. The housing program is not dependent, therefore, on 

conveying lands into trust. 

4.7.1 Economic Effects 

This section presents the direct, indirect and cumulative effects of Alternatives A through 

G on local employment, local employee earnings, and on the local unemployment rate. 

4.7.1.1 Direct Effects 

Alternatives A through G 

As described elsewhere in this document, the conveyance of lands into trust is an action 

where title to the Nation’s existing lands would be conveyed to the Federal government 

with no change in their uses. Because neither the Proposed Action nor any of the 

alternatives involve new construction or changes in land use, there would no direct 

economic effects. Changes in economic activity under the Proposed Aaction or 

alternatives are reasonably foreseeable consequences and are discussed below under 

Indirect Effects. 
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4.7.1.2 Indirect Effects 

Depending on the alternative (and scenario), the conveyance of lands into trust establishes 

the taxation and regulatory conditions under which the Nation would effectuate its 

anticipated plans for development, seek to realize its visitor growth projections, and 

commit resources to its governmental programs and services in expectation of operating 

surpluses for their subsidization. The alternatives (and scenarios) indirectly affect Nation 

employment and employee earnings as well as the employment and earnings of other local 

businesses that are supported by the Nation’s operational expenditures. 

Alternative A 

Nation Employment and Employee Earnings. In 2005, the Nation employed 4,611 

persons. Under Alternative A, the Nation is expected to employ 4,882 persons in 2011. A 

discussion of the 2011 employment projections for the Nation Enterprises and the Nation 

Government is presented below. 

Turning Stone Resort & Casino. The Turning Stone Resort & Casino employed 3,779 

people in FY 2005. It is anticipated that these jobs would be maintained as long as the 

Turning Stone Resort & Casino continues to operate. 

In FY 2011, the Nation expects the Turning Stone Resort & Casino to draw 5.56 million 

visitors, an increase of 1.1 million visitors from FY 2005. To serve these future visitors, 

the Turning Stone Resort & Casino would need to employ an additional 196 workers, a 

5.2 percent increase in the current employment levels based upon an historic average for 

the Turning Stone Resort & Casino of one employee per 1,400 visitors. 

The ongoing expansions -- the new spa, the swimming pool, and the night club -- would 

also generate an additional increase in the need for new employees. Assuming 1 employee 

per 350 square feet, the night club would generate 43 new employees. It is also assumed 

that the new spa and the pool would employ 15 new workers. 

In summary, there would be an estimated 4,033 jobs at the Turning Stone Resort & 

Casino by 2011 (see Table 4.7-1). 
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Table 4.7-1 

Nation Employment, Alternative A, 2005 and 2011 

 2005 2011 

 Employees Earnings 

(in $M) 

Employees Earnings 

(in $M) 

Turning Stone Resort & Casino 3,779 81.8 4,033 87.3 

SavOn Gas and Convenience stores 279 4.9 279 4.9 

Other Nation Enterprises 65 1.9 65 1.9 

Total Nation Enterprises 4,123 88.6 4,377 94.1 

Nation Government 488 21.2 505 22.0 

Grand Total 4,611 $109.9 4,882 $116.1 

Source: The Louis Berger Group, Inc., 2006. 

This projection of future permanent jobs at the Turning Stone Resort & Casino does not 

include an estimate of the temporary construction jobs that are generated by the 

construction of the spa, swimming pool, and the nightclub at the Turning Stone Resort & 

Casino. 

The growth in the Turning Stone Resort & Casino would increase the demand for goods 

and services provided by outside vendors. The regional economic effect of this additional 

demand is described later in this chapter. 

SavOn Gas and Convenience Stores. The SavOn gas station and convenience stores 

employed 279 workers in 2005. While the increase in visitors to the Turning Stone Resort 

& Casino could potentially cause an increase in SavOn gas station and convenience store 

sales, it is assumed that SavOn employment would remain constant in the next five years 

due to the business model of the SavOns. There are a fixed number of cashiers, gasoline 

pumps, and repair bays regardless of the demand and all SavOn gas station and 

convenience stores have pay-at-the-pump facilities. Seven of the thirteen SavOn gas 

station and convenience stores operate 24 hours a day and the remaining six are open 12 

to 18 hours a day. There are currently no plans to construct another SavOn gas station 

and convenience store. 

Nation Government. There were 488 employees in the Nation Government in FY 2005. 

The growth of the Nation Enterprises would be accompanied by an increase in Nation 

Government employment. For example, the increase in Nation Enterprise jobs would 

create additional jobs in the Nation’s human resource department, which is part of the 

Nation government. Similarly, the increase in Turning Stone Resort & Casino visitors 

would likely require additional Nation police officers. 

In FY 2005, approximately 89 percent of Nation government expenditures were supported 

by Nation Enterprises. The Turning Stone Resort & Casino accounted for 78 percent of 

the Nation’s Enterprises positive net revenues (i.e., operating surpluses) and the SavOn gas 
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station and convenience store earnings accounted for the remaining 22 percent. Based on 

this information, it is assumed that 69 percent (78 percent of 89 percent) of government 

jobs would grow at the rate of Turning Stone Resort & Casino employment and that 20 

percent of government jobs would grow at the rate of SavOn gas station and convenience 

store employment (22 percent of 89 percent). 

As a result, 339 government jobs would grow at a rate of 5.2 percent over five years and 

96 government jobs would grow at a rate of zero percent. Therefore, by 2011, 17 new 

jobs are expected to be created by the Nation government. 

Other Nation Enterprises Jobs. The number of jobs at the other Nation Enterprises is 

not expected to grow in the next five years. 

In FY 2005, the Nation’s total payroll was $110 million. Assuming that the average 

salary per worker remains constant (i.e., in constant 2005 dollars), the Nation’s payroll 

would increase by 5.9 percent in the next five years. For the purpose of this analysis, it is 

also assumed that net revenues would increase proportionally with the number of jobs. 

Non-Nation Jobs and Earnings. In 2005, the Nation indirectly supported many jobs at 

other Madison and Oneida County businesses, including (1) jobs associated with the 

spending by the Nation and its employees; (2) jobs generated by off-site visitor spending; 

and (3) jobs generated by household spending of persons who are not employed at the 

Nation but who would have left the region in the Nation’s absence (tertiary effect) (See 

Section 3.7.6). It can be expected that the anticipated Nation employment growth in the 

next five years would generate an increase in Nation spending, Nation employee spending, 

off-site visitor spending, and the number of jobs associated with this spending. 

Jobs Generated by Nation and Nation Employee Spending

In FY 2005, spending by the Nation and its employees supported 912 jobs and $31.9 

million in earnings (wages, salaries, and proprietor’s income) at other businesses in 

Madison and Oneida County (See Section 3.7.6). The vast majority of these estimated jobs 

were probably net additions to the local economy, which would not have occurred in the 

Nation’s absence (i.e., they are supported by the injection of spending that would not have 

been attracted to the region in the Nation’s absence). 

In the next five years, a modest increase in the number of jobs indirectly supported by the 

Nation is expected. The Turning Stone Resort & Casino would be required to make 

additional purchases to serve the increased demand caused by a growth in visitors. The 

vendors supplying the Nation’s demand for additional goods and services must adjust their 

production levels (e.g., hire additional employees) to satisfy the increasing demand from 

the Nation caused by the visitor growth and added entertainment operations. 

Additionally, the added employees at the Nation would in turn make consumer purchases 

to maintain their households. Businesses that satisfy this consumer demand would need to 
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adjust their production levels to satisfy this demand. (These multiplier effects are described 

in more detail in Section 3.7.6.) 

Taking into account the multiplier effect, spending by the Nation and its employees would 

generate 963 jobs at other local businesses in 2011 (See Table 4.7-2). 

Table 4.7-2 

Total Employment at Other Regional Businesses due to Spending by the Nation 

and its Employees, Alternative A, 2005 and 2011. 

 2005 2011 

 Employees Earnings 

(in $M) Employees Earnings (in $M) 

Turning Stone Resort & Casino 685 24.0 731 25.6 

SavOn Gas and Convenience stores 43 1.5 43 1.5 

Other Nation Enterprises 30 1.2 30 1.2 

Total Nation Enterprises 758 26.7 804 28.3 

Nation Government 154 5.3 159 5.4 

Grand Total 912 $31.9 963 $33.7 

Source: The Louis Berger Group, Inc..; Oneida Nation, 2006. 

Jobs Generated by Off-Site Visitor Spending

While the largest attraction for visitors is the Turning Stone Resort & Casino, visitors 

spend their money at businesses other than Nation Enterprises (“off-site spending”). For 

example, after the Turning Stone Resort & Casino opened, revenue from Oneida County’s 

hotel occupancy tax began increasing. Even after the Nation started to provide on-site 

lodging in September 1997, not all visitors chose to stay at these lodging facilities where 

the County’s hotel occupancy tax is not collected. 

Section 3.7.6 shows that, if non-local visitors to the Turning Stone Resort & Casino in 

2005 would have spent an average of $5 at non-Nation local businesses, their spending 

would support an increase of 206 jobs and $4.8 million in earnings at non-Nation 

businesses. 

The Nation’s projected increase of 1.1 million visitors in the next five years under 

Alternative A would probably lead to an increase in the off-site visitor spending effect. 

Tertiary Effect

As explained in Section 3.7.6, employment with the Nation allowed some long-term local 

residents to remain in the otherwise poorly economic performing Madison and Oneida 

County. These residents are sometimes part of households in which there is more than 
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one worker. The earnings of the second worker in the household are partly spent at local 

businesses and generate jobs and earnings through the multiplier effect. 

As discussed in Section 3.7.6, it cannot be estimated how much of the economic activity 

generated by this spending is attributable to the Nation. But, if only 25 percent of these 

households would not have been in the region in the absence of the Turning Stone Resort 

& Casino, the Nation’s tertiary effect would be $5.1 million in output, $1.4 million in 

earnings, and 41 jobs in Madison and Oneida Counties in 2005. Based on expected job 

growth under Alternative A, the tertiary effect would be likely at or above the 2005 level 

in 2011. 

Local Unemployment. Because no major job changes (job creation or layoffs) are 

expected to occur in the next five years under Alternative A, the unemployment rate is not 

expected to be changed from its current levels because of the alternative. 

A comparison of Alternatives in terms of jobs and earnings at the Nation and at other 

regional businesses that are supported by Nation and Nation employee spending is 

presented in Table 4.7-3 

Table 4.7-3 

Nation Jobs and Jobs Supported by Nation and Nation Employee Spending, 

Alternatives A through G, 2011. 

 A B C D E F G 

Turning Stone Resort & Casino 4,033 4,033 4,033 4,032 3,406 4033 0 

SavOn Gas and Convenience stores 279 279 279 48 48 279 0 

Other Nation Enterprises 65 65 57 55 57 55 0 

Total Nation Enterprises 4,377 4,377 4,369 4,135 3,511 4367 0 

Nation Government 505 505 505 446 429 505 55 

Total Nation Jobs 4,882 4,882 4,874 4,581 3,940 4872 55 

Jobs supported by Nation and Nation 

Employee Spending 963 963 960 904 786 959 17 

Grand Total 5,845 5,845 5,834 5,485 4,726 5,831 73 

Source: The Louis Berger Group, Inc. 

Alternative B 

The Nation does not have any plans to expand operations on the additional 17,630 acres 

that would possibly be acquired under Alternative B. Nation employment in 2011 under 

Alternative B would be the same as in Alternative A. Nation employment and employment 

indirectly supported by the Nation through the multiplier effect in Alternative B would 
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also be the same as discussed above for Alternative A. Local unemployment would not be 

affected. 

Alternative C 

Nation Employment and Employee Earnings. With the exception of the Black Angus 

farm and other agricultural activities, the Nation’s business operations are located on 

Group 1 and 2 lands. Under Alternative C, the future of the jobs on Group 3 lands would 

be uncertain. The Nation employs a total of 8 workers for its agricultural operations, 

which are located on Group 2 and 3 lands. The agricultural jobs on Group 3 lands could 

possibly be relocated to Group 2 lands or could be eliminated if the Nation would choose 

to sell the land or if the County would foreclose due to the Nation’s failure to pay 

property taxes. If the Nation were to pay property taxes on the lands not placed into 

trust, all jobs would most likely be maintained because the annual property taxes on 

Group 3 lands are relatively minor ($264,000) and would not significantly reduce the 

Nation’s net revenues. 

All of the Nation’s planned expansions described in Section 2 would take place on Group 

1 and 2 lands and would not be adversely affected. 

Non-Nation Jobs and Earnings. The number of jobs associated with the Nation’s 

operations and Nation employee spending, off-site visitor spending and with the tertiary 

effect would be similar to that described above for Alternative A. 

Local Unemployment. Because no major job changes (job creation or layoffs) are 

expected to occur in the next five years under Alternative C, the unemployment rate would 

be unaffected by the alternative. 

Alternative D 

Under Alternative D, Group 1 lands would be conveyed into trust and the Turning Stone 

Resort & Casino operations would not be adversely affected. Because Group 2 and 3 

lands would not be conveyed into trust, the future of the Nation Enterprises and 

Government operations and jobs on these lands would be uncertain and they would likely 

be diminished. 

In 2005, there were 802 jobs on Group 2 lands and not more than 8 jobs on Group 3 

lands. These jobs included all Nation Government jobs, most SavOn gas station and 

convenience store jobs, and all of the jobs at the other Nation Enterprises. The SavOn gas 

sation and convenience stores and other Nation Enterprises play a key role in the Nation’s 

long-term diversification strategy, which aims at avoiding overdependence on the gaming 

industry, and is integral to the Nation’s long-term strategies for self-sufficiency and 

economic development. 
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In the event that the Group 2 and 3 lands are not conveyed into trust, there is considerable 

uncertainty about the future of the existing Nation operations on these land parcels. 

There are several distinct scenarios that could occur in response to the imposition of a 

regulation and taxation regime of New York State and county and local governments. 

While it unclear which scenario would prevail, throughout the EIS, three scenarios are 

presented: 

1. Property Taxes Paid (PTP): The Nation would experience a reduction in net 

revenues because of the added operating expenses, which in turn would lead to a 

reduction in employment and in the employment growth rate. Based on the 

current assessed valuation and 2005 tax rates, property taxes on Group 2 and 3 

lands would be approximately $1.7 million. The State’s collection of excise taxes 

from wholesalers that supply cigarettes and petroleum to the Nation’s gas and 

convenience stores on Group 2 lands would also reduce the Nation’s net 

revenues. 

2. Property Taxes Not Paid – Foreclosure (PTNP-F): The Nation would be forced 

to discontinue its operations on the land. The Nation jobs on Group 2 and 3 

lands would either be relocated to Group 1 lands or would be lost. A possible 

relocation would disrupt the Nation’s operations, negatively affecting its net 

revenues, employment, and growth potential. Alternatively, the threat of 

foreclosure could lead the Nation to sell all or some of its Group 2 and 3 land 

holdings and discontinue its operations on these lands. 

3. Property Taxes Not Paid – Dispute Continues (PNTP-DC): The current situation 

of uncertainty about the Nation’s jurisdiction over Group 2 and 3 lands would 

continue, adversely affecting the Nation’s net revenues and future growth. Under 

recent federal court decisions (2006 U.S. Dist. LEXIS 35987 and 2006 U.S. Dist. 

LEXIS 36327), the Counties may not foreclose on the properties due to failure to 

pay property taxes though they have the right to collect property taxes. In this 

scenario, the Nation does not pay local property taxes and there is no remedy for 

Madison or Oneida County to enforce the collection of taxes. Furthermore, 

there is continued uncertainty regarding wholesalers’ liability for State excise 

taxes on fuel and cigarette sales to Indian retailers. 

Because it has the greatest potential for adverse effects to the surrounding communities, 

and because it is reasonably foreseeable that the Nation would not pay property taxes, the 

indirect effects of the “Property Taxes Not Paid” scenarios are evaluated and quantified in 

this section. The quantitative analysis of the direct and indirect effects assumes the 

following: (1) the Nation does not pay property taxes on Group 2 and 3 lands; (2) the 

Nation discontinues its business operations on Group 2 and 3 lands; and (3) the Nation 

continues its operations on Group 1 lands. 

Nation Employment and Earnings. Under Alternative D, Turning Stone Resort & 

Casino employment and net revenues would not be adversely affected as Group 1 lands 

would be placed into trust. 
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The Patrick Road SavOn gas station and convenience store would be the only SavOn 

operating on trust lands. It would not be subject to State and local taxation. In this 

scenario, sales and employment at the Patrick Road SavOn gas station and convenience 

store would likely increase because it would offer lower prices than any other local store. 

(It is not expected that the price differential between the Patrick Road SavOn gas station 

and convenience and other local stores would become larger). Based on the Nation’s 

estimates that fuel sales would increase by 15 percent and cigarette sales by 100 percent, 

overall sales at the Patrick Road SavOn gas station and convenience would increase by 46 

percent. For the purpose of the analysis, it is assumed that net revenues would increase 

proportionally with sales. To satisfy this demand, the Nation assumes that employment at 

the Patrick Road SavOn gas station and convenience store would increase by 20 percent in 

the next five years. 

The State’s collection of an excise tax from the wholesalers that supply cigarettes and 

gasoline to the SavOn gas station and convenience stores on Group 2 lands would lead to 

an increase in the cost of goods sold, decrease in the gross operating margins and profits 

available to support the operation, which would likely lead to closing of most of the 

stores. The need to collect and remit taxes from non-Indian customers could also be 

imposed by this taxation and regulatory scenario. For the purpose of this analysis, it is 

assumed that Group 2 SavOn gas sation and convenience stores would close. 

The reduction in the SavOn gas station and convenience net revenues (partially offset by 

the unrelated projected increase in Turning Stone Resort & Casino net revenues) would 

lead to a decrease in jobs at the Nation Government because the Nation Enterprises 

provide 89 percent of the Nation Government expenditures. The Turning Stone Resort & 

Casino and the SavOn gas station and convenience stores also support 20 percent of the 

other Nation Enterprises expenditures. For the purpose of this analysis, it is assumed that 

89 percent of Nation government jobs and 20 percent of the jobs at other Nation 

Enterprises would change proportionally with the change in Turning Stone Resort & 

Casino and SavOn gas station and convenience store net revenues. It is, however, 

reasonable to expect that the Nation would seek additional federal funding, which could 

potentially allow them to preserve more Nation government jobs, albeit at some cost to 

the Nation’s goal of self-sufficiency. 

Non-Nation Jobs and Earnings. 

Jobs generated by Nation and Nation employee spending

Taking into account the “multiplier effect,” the discontinuation of all business activity on 

Group 2 and 3 lands would indirectly lead to the loss of 59 jobs at other businesses. Some 

of these jobs would be replaced through a shift in local consumer expenditures. That is, 

some local Nation patrons would spend the funds that they previously spent at the Nation 

Enterprises at other local businesses, which in turn would support new jobs. (The 
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estimation of net new effects is discussed in Section 3.7.6.2). The jobs associated with the 

spending by the Nation and its employees are presented in Table 4.7-2. 

Jobs generated by off-site visitor spending

Because the Turning Stone Resort & Casino would be conveyed into trust under 

Alternative D, the number of visitors and the off-site visitor spending would be unaffected. 

Tertiary Effect

The tertiary effect – the jobs generated by household spending of persons who are not 

employed at the Nation but who would have left the region in the Nation’s absence - 

would be reduced if Nation employment would be diminished. (See Section 4.7.1.3 for 

more detail). 

Local Unemployment. Because no major job changes (job creation or layoffs) are 

expected to occur in the next five years under Alternative D, the unemployment rate 

would be unaffected by the alternative. 

Alternative E 

If only the Turning Stone Casino tax lot would be conveyed into trust, the future of all 

other Nation lands would become uncertain and the jobs on those lands would be at risk. 

In 2005, there were 1,175 Nation jobs in addition to the 3,436 jobs on the Casino tax lot. 

The uncertainty is characterized by a large number of possible future scenarios similar to 

those presented above for Alternative D. 

Regardless of which scenario would prevail, Alternative E would compromise the future 

growth of the Turning Stone Resort & Casino because the golf courses, the luxury lodge 

hotel, and part of the event center would not be conveyed into trust. While these resort 

components currently do not generate positive net revenues, they are complementary to 

the operations of the casino as a resort destination. They attract a significant number of 

customers to the casino, creating a fuller experience for visitors by offering diverse 

activities and amenities that can promote longer, or more frequent, visits and that cater to 

non-gaming family members. Under Alternative E, Turning Stone Resort & Casino jobs 

and all other Nation jobs would be at greater risk in the long run. 

It is not clear which scenario would prevail. The discussion of the three scenarios – PTP, 

PTNP-F, and PTNP-DC - presented above for Alternative D also apply to Alternative E. 

Given that it is unlikely that the Nation would pay property taxes, the direct and indirect 

effects of the following scenario would be evaluated in more detail below: (1) the Nation 

does not pay property taxes on the lands not conveyed into trust; (2) the Nation closes the 

Turning Stone Resort & Casino components that are not part of the Casino tax lot; and 

(3) Group 2 SavOn gas station and convenience stores cease their operations. 
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Nation Employment and Employee Earnings. For purpose of the analysis, it is 

assumed that the jobs at the Inn, the luxury lodge hotel and at the golf courses would be 

lost because they would not be on trust land. Gaming, other lodging and retail 

employment at the Turning Stone Resort & Casino would remain at the 2005 level. While 

the lodge and the golf courses currently have negative net revenues for their financial 

operations, they have the potential to attract more visitors to the Turning Stone Resort & 

Casino, which would offset part of their loss for the overall enterprise. It is, therefore, 

assumed that Turning Stone Resort & Casino net revenues would remain at the 2005 

levels. 

SavOn gas station and convenience store employment and net revenues would be the same 

as presented for Alternative D. 

The reduction in the SavOn gas station and convenience store and Turning Stone Resort 

& Casino net revenues would probably lead to a decrease in jobs at the Nation 

Government and at other Nation Enterprises as both are supported by these Nation 

Enterprises. Following the same assumptions as in Alternative D, this analysis assumes 

that 89 percent of Nation government jobs and 20 percent of the jobs at other Nation 

Enterprises would decrease proportionally with the decrease in Turning Stone Resort & 

Casino and SavOn gas station and convenience store net revenues. It is however 

reasonable to expect that the Nation would seek additional federal funding, which could 

potentially allow it to preserve more Nation government jobs. 

Non-Nation Jobs and Earnings 

Jobs generated by Nation and Nation employee spending

Taking into account the “multiplier effect,” Alternative E would lead to the loss of 176 

jobs at other businesses. While some of these jobs would be replaced through a shift in 

local consumer expenditures, most jobs would not be replaced. 

Jobs generated by off-site visitor spending

It is unclear whether off-site visitor spending would decrease or increase relative to the 

Alternative A. It can be reasonably expected that the number of visitors would decrease 

because the Turning Stone Resort & Casino would no longer operate the golf courses, the 

lodge, and the event center. The average spending per visitor at non-Nation local 

businesses (“off-site spending”) could potentially increase relative to the baseline because 

the Nation would offer fewer accommodations. 

Tertiary Effect

The tertiary effect in Alternative E would be lower than in the baseline due to the job 

losses associated with Alternative E. 

Local Unemployment. Based on the residential location of current Nation employees, an 

estimated 3,418 Nation employees in Alternative E would live in Madison and Oneida 
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Counties. This is about 528 less than in Alternative A. Furthermore, taking into account 

the multiplier effect of Nation and Nation employee spending, the Nation would support 

176 fewer jobs in Alternative E than in 2005. Because of the area’s poor economic 

performance, these job losses are likely to increase local unemployment significantly in the 

short-term. 

Alternative F 

Nation Employment and Employee Earnings. While the majority of the Nation’s 

employment sites would be conveyed into trust under Alternative F, some of the Nation’s 

agricultural lands and the quarry would not be included. There were a total of 8 

agriculture jobs and 2 jobs at the quarry in 2005. While the agricultural jobs not included 

in Alternative F could possibly be relocated to trust land, the jobs at the quarry could not. 

If the Nation would sell the land or the County would foreclose on the property, these 

Nation jobs would be eliminated. If the jobs would be lost, the number of Nation 

Enterprise and Government jobs and the Nation’s payroll in Alternative F would only be 

slightly lower than in Alternative A. 

Non-Nation Jobs and Earnings. The Nation’s economic activities in Alternative F 

would be almost the same as in Alternative A. There are no significant indirect effects 

associated with Alternative F. 

Local Unemployment. Because no major job changes (job creation or layoffs) are 

expected to occur in the next five years under Alternative F, the unemployment rate would 

be unaffected by the Alternative. 

Alternative G 

If Group 1, 2, and 3 lands would not be conveyed into trust, the future continuation of the 

operations on these lands would be subject to greater uncertainty; consequently, the 

Nation Enterprises and Government jobs on those lands would be at risk. In 2005, there 

were 4,611 Nation jobs on Group 1, 2 and 3 lands. The uncertainty is characterized by a 

large number of possible future scenarios. It is unclear which scenario would prevail. For 

the purpose of this analysis, four scenarios are presented: 

1. Property Taxes Paid (PTP): The Nation’s net revenues would be reduced 

significantly because of substantial taxes on the Casino tax lot, which would lead 

to a reduction in Nation employment. The assessed value of the Casino Tax Lot 

of $362 million is currently contested by the Nation. The Nation’s payment of 

property taxes would not protect it from being closed down by the State 

government based on its alleged illegality (see #4 below). The State’s collection of 

excise taxes from wholesalers that supply cigarettes and petroleum to the 

Nation’s SavOn gas station and convenience stores would also reduce the 

Nation’s net revenues. The imposition of a sales tax to be collected on purchases 

by non-Indian customers would limit the resources available for the Nation’s 

government programs and services. 
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2. Property Taxes Not Paid-Foreclosure (PTNP-F): County forecloses on Nation 

land because of the Nation’s failure to pay property taxes. The Nation would 

discontinue its enterprise and government operations with the impossibility to 

relocate its activities other than to the 32-acre territory. The vast majority of 

Nation jobs would be lost. Alternatively, the threat of foreclosure could lead the 

Nation to sell all or some of its land holdings and discontinue its operations on 

these lands. 

3. Property Taxes Not Paid – Dispute Continues (PTNP-DC): A continuation of the 

current situation. The scenario has two main aspects: (1) the Nation’s failure to 

pay property taxes and the County’s lack of remedy; (2) the continued 

uncertainty about wholesalers’ liability for State excise taxes on fuel and cigarette 

sales to Indian retailers. The uncertainty associated with the status quo scenario 

can adversely affect the Nation’s long-term economic health and compromise its 

economic self-sufficiency. For example, private capital markets or vendors may 

conclude that the future risks from such uncertainty outweigh the current 

benefits of engagement with the Nation government and enterprises. 

4. Casino Closes and All Enterprises Close (CC-AEC): Federal government (through 

enforcement by the National Indian Gaming Commission) closes down the 

Turning Stone Resort & Casino based on its alleged illegality (i.e., according to 

the State, the land on which the Casino is sited does not qualify as “Indian land” 

under the Indian Gaming Regulatory Act.) The vast majority of the Nation jobs 

would be lost. The Turning Stone Resort and Casino employs the majority of 

Nation employees and supports the Nation Government and all other Nation 

Enterprises (other than the SavOn gas station and convenience stores). 

Because it has the greatest potential for adverse effects to the surrounding communities in 

terms of economic consequences, the indirect effects of the “Property Taxes Not Paid” 

scenarios (PTNP-F and CC-AEC) are evaluated and quantified in this section. Thus, the 

indirect effects of the following scenario are evaluated quantitatively throughout the 

socioeconomic section: (1) the Turning Stone Resort & Casino closes; (2) the Nation 

discontinues the operations of all SavOn gas station and convenience stores; and (3) the 

Nation does not pay property taxes. 

Nation Employees and Employee Earnings. For the purpose of the analysis of 

Alternative G, it is assumed that all of the Turning Stone Resort & Casino jobs and SavOn 

gas station and convenience store jobs would be eliminated. 

The Nation’s other enterprises would discontinue their operations because they are 

dependent on Turning Stone Resort & Casino and SavOn gas station and convenience 

store net revenues. 

The 434 Nation Government jobs that are supported by Nation Enterprise revenues (89% 

of total Nation Government jobs) would be at risk as well (See Table 4.7-5). The Nation 

would probably seek additional federal funding, which could allow them to preserve some 

Nation government jobs. 
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Non-Nation Jobs and Earnings 

Jobs generated by Nation and Nation employee spending

Taking into account the “multiplier effect,” the closing of the Turning Stone Resort & 

Casino and all other Nation Enterprises would indirectly lead to the loss of 944 jobs at 

other businesses (See Table 3.7-9). A small portion of these jobs may be replaced through 

a shift in local consumer expenditures (i.e., local Nation patrons may spend some of the 

funds that they previously spent at the Nation Enterprises at other local businesses, which 

in turn would use part of the funds to support new jobs). The majority, however, would 

not be replaced in the community since the quality of the entertainment options offered by 

the Nation – gaming, world class golf, and premier entertainment – cannot be found 

elsewhere in Oneida or Madison County. 

Jobs generated by off-site visitor spending

The closing of the Turning Stone Resort & Casino would lead to the loss of all of the jobs 

that are currently supported by off-site visitor spending. 

Tertiary Effect

The Nation would no longer generate a tertiary effect if the Turning Stone Resort & 

Casino closed. Thus, some of the dual worker households with a Nation employee in the 

household would leave the region with the cessation of employment opportunities at the 

Nation. The household spending of former Nation employees who remain in the region 

after being laid off also would no longer be attributable to the Nation. (In addition, 

property values in the community generally may decline if the Turning Stone Resort & 

Casino closes because there may be an increase in the number of homes and rental units 

placed on the market following its closure). 

Local Unemployment. The closing of all Nation Enterprises is expected to lead to the 

loss of 4,816 Nation jobs. In 2005, 87 percent of Nation employees lived in Madison and 

Oneida Counties. Under Alternative G, an estimated 4,190 Madison and Oneida County 

residents would lose their jobs at the Nation. The closure would lead to reduced spending 

by the Nation’s enterprises and operations and by its former employees, leading to 944 

fewer non-Nation jobs than in Alternative A. Additional non-Nation jobs would be lost 

due to the loss of off-site visitor spending and the tertiary effects as explained above. In 

the year 2000, 85 percent of jobs in Madison and Oneida Counties were held by Madison 

and Oneida County residents. Because of the poor job creation and economic 

performance of the area, the job losses associated with this alternative are likely to 

increase local unemployment significantly. 

Some of the laid-off employees would likely remain unemployed in the long-term, while 

others would find a new job, withdraw from the labor force, or migrate out of the region 

entirely. An analysis of past employment data from the Bureau of Economic Analysis 

shows that if non-Nation employment in Madison and Oneida County would grow at the 
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same rate it did between 1990 and 2004, it would take 36 years before employment is 

back at the 2004 level (2004 is the most recent data available). When the local economic 

base is unable to provide suitable replacement job opportunities, there is a strong 

likelihood of higher unemployment levels and out-migration effects. (Closure of operations 

at Griffiss Air Force Base provides an example of the potential out-migration effects and 

were illustrated in Figure 3.7.9). To the extent that the region exhibits higher rates of 

unemployment as a result of closure, it can be anticipated that the region would become 

more dependent on transfer payments (see Table 3.17-18 for example of relationship 

between transfer payments and unemployment rates). 

Summary 

Table 4.7-4 presents a comparative summary of the indirect effects by Alternative. The 

indirect effects are calculated by comparing the employment change for each of the 

Alternatives in 2011 with the 2005 baseline presented in Section 3.7. The indirect effects 

are reported in terms of the total number of Nation jobs and the non-Nation jobs 

supported by Nation spending within Madison and Oneida Counties. The indirect effects 

are also reported in terms of the number of local Madison or Oneida County residents 

who work for the Nation or who are supported by Nation spending in non-Nation jobs. 

Table 4.7-4 

Indirect Effects: Change in Employment between 2005 and 2011, 

Alternatives A through G 

 Nation Jobs Non-Nation Jobs* Total 

 

Total Local 

Residents Total Local Residents Total Local Residents 

A 271 235 51 44 322 279 

B 271 235 51 44 322 279 

C 263 228 48 41 311 269 

D -30 -26 -8 -6 -38 -33 

E -671 -582 -126 -107 -797 -689 

F 261 226 47 40 308 266 

G -4,556 -3,953 -895 -760 -5,450 -4,713 

Note: Non-Nation jobs are jobs at other Madison and Oneida County businesses 

supported by Nation and Nation employee spending. “Local residents” are 

those employees who are living in Madison and Oneida Counties. 

Alternatives A, B, C and F 

Under these alternatives, the number of Nation jobs and jobs supported by spending by 

the Nation, its employees, and its visitors is expected to grow in the next five years. 

Comparing the Alternatives to the 2005 baseline, there would be an estimated 261 to 271 

new Nation jobs. In addition, spending by the Nation and its employees would support 

an estimated 47 to 51 jobs at other local businesses. Additional jobs may also be created 

due to an increase in off-site visitor spending. 
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Based on current residential locations, it is estimated that most of the jobs would be held 

by residents of Madison and Oneida County. Because the job increase is relatively small, 

it cannot be expected that this job creation would significantly affect the local 

unemployment rate. 

Alternatives D, E, and G 

If the Nation discontinues the activities located on lands not conveyed into trust, 

employment at the Nation and at other businesses that are supported by the Nation would 

decrease. While the decrease is expected to be relatively small for Alternatives D (a loss of 

38 jobs), larger job losses would occur under Alternatives E (797 jobs) and G (5,450 jobs). 

Major layoffs of Madison and Oneida County residents in Alternative E and in Alternative 

G, would increase the number of locally unemployed. Under Alternative G in scenarios 

PTNP-F and CC-AEC, an estimated 4,713 Madison and Oneida County residents would 

lose their job, overwhelming in historical terms the ability of the two-county local 

employment base to absorb the excess supply of labor. 

4.7.1.3 Cumulative Effects 

Alternatives A, B, C, and F 

Since the opening of the Turning Stone Resort & Casino in 1993, the Nation has created 

jobs at a rate that outpaces overall job growth in Madison and Oneida Counties and in 

Upstate New York as a whole. In 2006, the Nation was the single largest employer in 

Madison and Oneida County. 

The Nation’s job growth has partly offset regional job losses, including the closings of the 

Griffiss Air Force base in Rome and the Lockheed Martin plant in Utica in the mid-1990s, 

as well as the more recent closing of the manufacturing plant of Oneida Ltd in Sherrill (See 

Section 3.7.5.2). 

Under Alternatives A, B, C and F, it can be expected that existing Nation jobs would be 

maintained and that the Nation would continue to grow, albeit at more modest pace than 

in the past. By 2011, Nation employment would have reached 4,882 under Alternatives A 

and B, and 4,874 and 4,872 under Alternatives C and F, respectively. 

The local expenditures made by the Nation, its employees, and its visitors would likely 

increase as well, creating additional employment through the multiplier effect. By 2011, 

about 960 jobs would be supported by Nation and Nation spending under Alternatives A, 

B, C, and F. 

Limited information is available about possible future job creation by other businesses that 

is not supported by spending by the Nation, its employees, or its visitors. 
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Woods & Poole, an economic forecasting firm, projects an average annual employment 

growth of 1.1 percent for Madison and 0.8 percent for Oneida Counties in the next five 

years. These employment projections, which include the jobs directly and indirectly 

created by the Nation, assume the Counties would perform significantly better than in the 

past 30 years. 

Specific information about future projects proposed by others is presented in Section 4.1.5. 

Examples of projects that would create new jobs include a residential population-serving 

231,000 square-foot retail strip with Lowe’s Home Improvement Store in the City of 

Oneida and a 250,000 square-foot office building for East Coast Olive Oil Company in 

Rome. 

In addition to permanent jobs at the proposed facilities, the construction of the new office, 

retail, and residential facilities and the construction of several proposed infrastructure 

projects (e.g., water system improvements in the City of Oneida, the Village of Vernon, 

and the Towns of Vernon, Verona, and Westmoreland) would generate temporary local 

construction jobs. 

Alternative D 

Under Alternative D, in addition to the Government jobs, most SavOn gas station and 

convenience store jobs and the jobs at the other Nation Enterprises on Group 2 and 3 

lands would be at risk. As part of the Nation’s diversification strategy, these Nation 

Enterprise jobs are an integral component of the Nation’s goals for long-term selfsufficiency and economic development. Reductions in the Nation’s operational spending 

and cut-backs in the Nation’s payroll and subsequent employee spending would lead to 

job losses at other local businesses. The level of regional economic activity stimulated by 

the Nation’s operations would be lessened under this alternative and, as such, the Nation 

would be less well-positioned to assist in offsetting any potential regional job losses or 

serving as a catalyst for additional economic activity for the region than under Alternatives 

A, B, C and F. 

Alternative E 

Under Alternative E, the future of the Nation jobs that are not located on the Casino Tax 

Lot would be subject to greater uncertainty and their growth would be compromised. 

Alternative E would compromise the future growth of the Turning Stone Resort & Casino 

because several resort components would not be conveyed into trust (i.e., the golf courses, 

the luxury lodge hotel, and part of the event center). These components are critical 

elements of the Nation’s overall strategy for diversification and creating a regional 

destination resort for tourism and visitors (see Section 3.7.5 Nation Enterprises for 

discussion of Resort Destination Investments). By narrowly defining the type and scope of 

facilities that can be conveyed into trust, Alternative E imposes more complexity in terms 

of taxation and regulation and, potentially, requires additional institutions or entities and 

contracting relationships in order to maintain a cohesive and complementary resort 
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destination. As noted in Section 3.7.5, several of the resort assets have not to-date been 

proven to have financial solvency without subsidization from the Nation’s casino which 

may further affect the feasibility, cost-effectiveness and practicality of this alternative. 

Alternative E would put all Turning Stone Resort & Casino jobs at risk in the long term. 

Reduced Nation spending and Nation employee spending would also lead to job losses at 

other local businesses. 

As explained under Alternative A, B, C and F, there is limited information about the future 

actions of others. It is, however, unlikely that under Alternative E the Nation would be 

able to offset any potential future regional job losses. Most likely, the Nation would have 

to reduce its own employment levels significantly. 

Alternative G 

While the effect of Alternative G is uncertain and a wide range of possible future scenarios 

could occur, it is highly unlikely that Nation employment would grow as planned under 

this Alternative. Most of the Nation jobs would be eliminated if the National Indian 

Gaming Commission (NIGC), the Federal government agency with enforcement authority, 

would close the casino based on its alleged illegality, if the County would foreclose on the 

land, or if the Nation would elect to discontinue its business operations. The payment of 

property taxes would result in a reduction of the Nation’s net revenues, which would be 

reflected in the employment levels. Furthermore, the continuation of the current 

uncertainty regarding the legality of the gaming operations would likely strongly 

compromise the Nation’s growth. In summary, under Alternative G, it is highly unlikely 

that the Nation would be able to continue its operations at or above baseline level in the 

next five years. 

The Nation would be in no position to partially offset the job losses, out-migration and 

dependencies on transfer payments that have deeply affected the region’s economic base. 

Alternative G results in reductions in Nation operations spending and payroll, consequent 

reductions in employee spending, and less overall visitor spending, leading to direct and 

indirect jobs losses at other local businesses. 

Given the past economic performance of Madison and Oneida Counties, it is unlikely that 

the counties would be able to absorb the large job losses that would occur in the event of 

the closing of the Nation Enterprises. An analysis of labor data from the Bureau of Labor 

Statistics shows that if non-Nation employment in the two-county region would grow at 

the same annual rate as it did between 1990 and 2004, employment would reach the 2004 

level only by the year 2040. The Woods & Poole employment projections of a 1.1 percent 

and 0.8 percent average annual growth rate between 2006 and 2011 in Madison and 

Oneida Counties, respectively, anticipate the employment directly and indirectly generated 

by the Nation and may assume some sizable Nation growth. 
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The future of the proposed developments that directly serve the consumer spending of 

local residents (e.g., the Lowe’s Home Improvement Plaza) may be adversely affected. 
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4.7.2 Demographic Effects 

This section presents the direct, indirect, and cumulative effects of Alternatives A through 

G, including the effect to the number of persons on Nation lands and on the number of 

Nation employees residing in Madison and Oneida Counties. 

4.7.2.1 Direct Effects 

Alternatives A through G 

The conveyance of lands into trust is an action where title to the Nation’s existing lands 

would be eonveyed to the Federal government with no change in their uses. Because 

neither the Proposed Action nor any of the alternatives involve new construction or 

changes in land use, there would no direct demographic effects. Changes in existing 

conditions resulting from the Nation’s ongoing housing program, which is not a part of 

the federal action, and growth in economic activity from the Nation’s existing enterprises s 

are reasonably foreseeable and are discussed below under Indirect Effects. 

4.7.2.2 Indirect Effects 

The alternatives indirectly affect the number of residents on Nation land and the number 

of employees residing in Madison and Oneida County. 

Nation Member Households 

Alternatives A, B and F 

As presented in Section 3.7.5, the Nation Homeownership and Rental Programs currently 

include 104 units; 6 are on the Nation Territory and 98 are on Group 1, 2, and 3 lands. 

Under Alternatives A, B, and F, the land where all 98 housing units are located would be 

conveyed into trust. 

There is currently a waiting list for 66 homeownership units. On land that would be 

conveyed into trust under Alternatives A, B, and F, the Nation could construct the 66 new 

housing units in the next five years. The Nation has identified sites for 15 of the homes. 

For the purpose of the analysis, the location of the other 51 new units is based on the 

location of the Nation’s current housing units. For further detail on the residential 

distribution, see Table 4.7-5. There are no new rental units planned. 

Using the U.S. Census’ Public Use Microdata Sample (PUMS) data and information about 

the Nation’s housing stock, it is estimated that the average size of households living in 

Nation member homeownership units is 3.4 persons. Thus, the 66 new households would 

generate 224 residents. (See Section 3.7.5 for information about the calculation of the 

demographic multipliers.) 

Given that 64 percent of the members on the waiting list live locally, it is assumed that 24 

homes (36 percent of the 66 homes) would be constructed for those living outside the area. 
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These 24 new homes would add 81 residents (Nation members and their household 

members) to the area. 

The remaining 142 new occupants of the proposed housing would come from the twocounty area, thus not resulting in an increase in overall population. However, the new 

occupants of the proposed housing would be moving out of already existing housing, thus 

potentially leaving another unit vacant. The now vacant unit may be filled with a tenant 

relocating to the area or by a tenant who already lives in the area. Therefore, to be 

conservative in estimating new population, it is determined that the proposed Nation 

housing would result in a total in-migration of 224 people. 
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Table 4.7-5 

Oneida Nation Housing Program: Housing and Population Projections, 2005-2011 

by Group Lands and Municipality, Alternatives A, B, and F

 2005 2011 2005-2011 

Allocation By 

Group and 

Municipality

Total 

Housing 

Units 

Estimated 

Residents 

Total 

Housing 

Units 

Estimated 

Residents 

Total 

Housing 

Units 

Estimated 

Residents 

Group 1 

Verona 2 6 3 9 1 4 

Group 2 0 

Canastota 2 6 3 10 1 4 

Lenox 7 23 11 35 4 12 

Oneida 55 146 99 294 44 148 

Sherrill 3 9 5 14 2 5 

Vernon 1 3 2 5 1 2 

Sullivan 1 3 2 5 1 2 

Verona 14 44 21 69 7 25 

Group 3 

Lincoln 3 10 5 16 2 5 

Stockbridge 10 34 15 52 5 18 

Unassigned 

Verona 1 3 1 3 0 0 

Oneida 5 17 5 17 0 0 

Subtotals 

Group 1 2 6 3 9 1 4 

Group 2 83 234 141 432 58 198 

Group 3 13 44 21 71 7 23 

Unassigned 6 20 6 20 0 0 

Totals 104 304 170 528 66 224 

Source: U.S. Census 2000 Public Use Microdata Sample (PUMS); Oneida Nation; The Louis Berger Group, Inc. 

As presented in Section 3.7, there are currently 58 school-aged children living on Nation 

Group 1, 2, or 3 lands who attend public school. An estimated 70 percent of these 

children attend schools that are part of the Oneida School District, while the remainder 

attend Stockbridge Valley schools. 

Based on demographic multipliers of the average number of public school children per 

household, the 66 new Nation residences are expected to house 36 public school children. 

About 13 of these children (36 percent of 36) would be from Oneida households who have 

relocated to the Nation lands from outside of the two-county region. 
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Table 4.7-6 presents a comparison of the alternatives in terms of the number of persons 

and school-age children residing in Nation housing units, as well as distinguishes the 

anticipated number of persons and school-age children that can be anticipated to represent 

in-migrants (i.e., new demand). Table 4.7-7 compares by alternative the number of 

persons that would be anticipated in existing Nation housing units. 

Table 4.7-6 

Population of New Nation Housing, Alternatives A through G, 2011 

Persons in New Nation Housing Units 

Total Residents In-migrants 

 

Number of 

New Nation 

Housing 

Units 

Total 

Number of 

Persons 

Number of 

Public School 

Children 

Total 

Number of 

Persons 

Number of 

Public 

School 

Children 

Alternative A 66 224 36 81 13 

Alternative B 66 224 36 81 13 

Alternative C 59 200 32 72 12 

Alternative D 0 0 0 0 0 

Alternative E 0 0 0 0 0 

Alternative F 66 224 36 81 13 

Alternative G 0 0 0 0 0 

Notes: In-migrants are those moving to the two-county region from outside the region. 

Source: U.S. Census 2000 Public Use Microdata Sample (PUMS); Oneida Nation; The Louis Berger Group, Inc. 

Table 4.7-7 

Population of Existing Nation Housing 

Alternatives A through G, 2011 

Persons in Existing Nation Housing Units 

 

Number of 

Existing 

Nation 

Housing Units 

On Trust Land Not On Trust Land Total 

Alternative A 98 284 0 284 

Alternative B 98 284 0 284 

Alternative C 85 236 48 284 

Alternative D 2 6 278 284 

Alternative E 0 0 284 284 

Alternative F 98 284 0 284 

Alternative G 0 0 284 284 

Source: U.S. Census 2000 Public Use Microdata Sample (PUMS); Oneida Nation; The Louis Berger Group, Inc. 

Alternative C 

If the Nation does not pay property taxes and the County forecloses on the land (PTNP-F)

under Alternative C, the Nation would not be able to build the seven planned housing 

units on Group 3 lands. If the Nation would construct the remaining 59 housing units, 

these units would house an estimated 200 residents, including 32 children attending public 

school. Using the assumptions explained above, 72 of these residents would move to 

Madison and Oneida County from outside the region. 
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The existing 13 homeownership units on Group 3 lands would no longer be on Nation 

land. If the Nation were not to pay property taxes, these units would be at risk and the 44 

residents in these units may leave the region (See Table 4.7-7). 

Alternatives D, E, and G 

Under Alternatives D, E, and G, it is possible that the Nation would not build the 

proposed 66 housing units, which would have had the potential to attract Oneida from 

outside the area to the Nation’s lands. As a result, chances are greatly reduced that an 

Oneida not living in the area would return to the Nation’s lands. 

As a result of Alternatives E and G, the 98 existing Nation housing units would no longer 

be on Nation land. If the Nation were not to pay property taxes, these units would be at 

risk and the 284 residents may leave the region. The situation would be similar in 

Alternative D, as only 2 units on Group 1 lands would be on Nation land and the 

remaining 96 units would be at risk. 

Nation Employee Households 

Alternatives A and B 

In FY 2005, the Nation employed 4,611 people. Of these, 60.2 percent of Nation 

employees live in Oneida County and 26.6 percent live in Madison County according to 

the Nation Enterprise payroll records. According to Public Use Microdata Sample 

(PUMS) data from the U.S. Bureau of Census, the average household size with one or 

more workers in Madison and Oneida Counties is 3.27 people. To be conservative in 

population forecasts, it is assumed that each household contains only one Nation 

employee. As a result, in FY 2005, it is estimated that there were 9,071 people living in a 

household with a Nation employee in Oneida County and 4,012 people living in a 

household with a Nation employee in Madison County. This represents 3.4 percent of the 

Oneida County population and 5.7 percent of the Madison County population (based on 

U.S. Census estimates for 2004). 

As a result of Alternatives A and B, Nation employment is expected to have reached 4,882 

by 2011. Taking into account the current residential settlement distribution, it is 

estimated that, in 2011, there would be 9,604 people and 4,248 people living in a 

household with a Nation member employee in Oneida and Madison County, respectively, 

representing an increase of 769 persons in the two-county area. 

Given that 57 percent of new hires already live in Madison and Oneida County, of the 

new hires, 331 people (43 percent of 769) would migrate to the two-county area. Most 

likely, this estimate is high because, while 43 percent of new hires do not live in Madison 

and Oneida Counties, it does not necessarily mean that new hires would move to the two 

counties. Some new hires live in nearby counties such as Herkimer and Onondaga and 

commute to the Turning Stone Resort & Casino. 
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Table 4.7-8 further illustrates the estimated population by municipality in which the 

Nation owns land. 
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Table 4.7-8 

Estimate of Total Persons in Households in Select Municipalities with One or More 

Nation Employees, Alternative A and B, 2005-2011 

Municipality by ZIP Code 

Number of 

Nation 

Employees 

(FY 2005) 

Total Persons in 

Nation Employee 

Households 

(FY 2005) 

Number of 

Nation 

Employees 

(2011) 

Total 

Persons in 

Nation 

Employee 

Households 

(2011) 

Change in 

Total Persons 

in Nation 

Employee 

Households 

(2005-2011) 

Madison County 

Canastota/Lenox/Lincoln 324 1,059 343 1,122 62 

Cazenovia/Fenner 14 46 15 48 3 

Stockbridge 94 307 100 325 18 

Sullivan 80 262 85 277 15 

Oneida 650 2,126 688 2,250 125 

Municipalities listed above: 1,162 3,800 1,230 4,023 223 

Total Madison County 1,227 4,012 1,299 4,248 236 

Oneida County - 

Sylvan Beach 49 71 23 170 99 

Sherrill 151 218 71 523 305 

Vernon 152 220 71 526 306 

Vernon Center 27 39 13 93 54 

Verona 172 249 81 595 346 

Durhamville 80 116 37 277 161 

Augusta 16 23 7 55 32 

Municipalities listed above 647 2,116 685 2,240 124 

Total Oneida County 2,774 9,071 2,937 9,604 533 

Madison and Oneida 

County 4,001 13,083 4,236 13,852 769 

Source: The Louis Berger Group, Inc. 

According to PUMS data, the average number of public school children per household 

with one or more workers is 0.85 in the two-county area. As a result of Alternatives A 

and B, it is expected that the number of school-aged children in Nation employee 

households would increase by 61 children in Madison County and by 139 in Oneida 

County in the next five years (See Table 4.7-9). 
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Table 4.7-9 

Estimate of School Aged Children in Nation Employee Households, 

Alternative A and B, 2005-2011 

Madison County 

Baseline Number of 

School-Aged 

Children (FY 2005) 

Number of 

School-Aged 

Children (2011) 

Change in the Number 

of School Children 

(2005 – 2011) 

Canastota/Lenox/Lincoln 275 292 16 

Cazenovia/Fenner 12 13 1 

Stockbridge 80 85 5 

Sullivan 68 72 4 

Oneida 553 585 32 

Municipalities listed 

above: 988 1,046 58 

Total Madison County 1,043 1,104 61 

Oneida County 

Sylvan Beach 18 44 26 

Sherrill 57 136 79 

Vernon 57 137 80 

Vernon Center 10 24 14 

Verona 65 155 90 

Durhamville 30 72 42 

Augusta 6 14 8 

Municipalities listed 

above 550 582 32 

Total Oneida County 2,358 2,496 139 

Madison and Oneida 

County 3,401 3,600 199 

Source: The Louis Berger Group, Inc. 

A comparison of alternatives in terms of the number of Nation employees residing in 

Madison and Oneida County is presented in Table 4.7-10. 
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Table 4.7-10 

Persons in Households with One or More Nation Employee, 

Madison and Oneida Counties, Alternatives A through G 

Estimated in- and 

out-migration 

between 2005 and 

2011** 

Number of 

Nation 

Employees 

Total Persons in Nation Employee Households 

in Madison and Oneida County* 

Total 

Persons 

Public 

School 

Pupils*** 

Alternative A 4,882 13,852 331 86 

Alternative B 4,882 13,852 331 86 

Alternative C 4,874 13,830 321 83 

Alternative D 4,581 12,998 -9 -2 

Alternative E 3,940 11,179 -190 -50 

Alternative F 4,872 13,824 318 83 

Alternative G 55 157 -1293 -336 

Notes: *Average household size is 3.27 persons. **In- and Out-migrants are those moving to/from the two-county 

region. ***Average number of children attending public school per household is 0.85. 

Source: U.S. Census 2000 Public Use Microdata Sample (PUMS); Oneida Nation; The Louis Berger Group, Inc. 

Alternatives C and F 

If the Nation discontinues its economic activities on lands not conveyed into trust under 

Alternatives C and F, Nation employment would grow slightly less than under Alternative 

A, to a total of 4,872 employees (Alternative F) to 4,874 employees (Alternative C). Using 

the assumptions about household size and in-migration explained above, 318 to 321 

residents (including Nation employees and their household members) would move to 

Madison and Oneida Counties. These residents would include 83 children attending public 

schools, but they would generally be residents who would settle on non-Nation lands. 

Alternative D 

If the Nation were to discontinue its operations on Group 2 and 3 lands, a total of 30 

workers would be laid off. Because 87 percent of Nation employees live locally, it can be 

assumed that 26 Madison and Oneida County residents would lose their Nation job. 

While there is significant evidence of out-migration and low levels of job replacement in 

the area, particularly in Oneida County, there remains a high level of uncertainty as to 

whether laid-off Nation employees would leave the region or stay. Many factors besides 

employment — family, community ties, spousal employment, home ownership — 

influence a person’s choice to leave his or her residence. 

To be conservative in this scenario, it is assumed that 5 percent of households have more 

than one Nation employee. Assuming that 10 percent of employees and their respective 

households leave the area, an out-migration of 9 people, including 2 children attending 

public school, from the two counties would occur. 
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Alternative E 

As a result of Alternative E, many of the Nation’s business operations would be at risk. If 

the enterprises on Nation land not conveyed into trust were to cease operations, 933 

Nation jobs would be lost, as described in Section 4.7.1. Given that 87 percent of current 

employees live in Madison and Oneida Counties, there would be approximately 812 fewer 

local residents employed by the Nation Enterprises. To be conservative in this scenario, it 

is estimated that 5 percent of households have more than one Nation employee and that 

10 percent of households would leave as a result of the loss of jobs. Assuming that 10 

percent of employees and their respective households leave the area, an out-migration of 

190 people, including 50 school-aged children, from the two counties would occur. This 

out-migration is further exacerbated by other employees who may be laid off if their place 

of work is reliant upon the Nation’s purchases or spending. 

Alternative G 

If the Turning Stone Resort & Casino and the SavOn gas station and convenience stores 

were to cease operations, nearly all employees would be laid off with the exception of 

some Nation government employees. Taking into consideration that 87 percent of the 

Nation employees live locally, it can be anticipated that 4,190 local residents would be 

affected by lay-offs attributable to the cessation of the Nation’s Turning Stone Resort & 

Casino and other enterprises. 

Following the conservative assumptions previously described in this section regarding the 

percentage of households with more than one Nation worker (5 percent) and the 

percentage of households that would leave the area (10 percent), it is estimated that an 

out-migration of 1,293 persons, including 336 children attending public school, would 

occur from the two counties. This number is conservative, as there would also be a 

contraction of demand for goods and services from non-Nation businesses, which may 

cause additional staffing cuts. 

Summary

The alternatives indirectly affect the number of residents on Nation land and the number 

of employees residing in Madison and Oneida County. A summary of the indirect effects is 

presented in Tables 4.7-11 and 4.7-12. The indirect effects are calculated by comparing 

the alternatives in 2011 with the 2005 baseline. 

Nation Member Households 

Alternatives A, B and F 

As a result of Alternatives A, B and F, all of the existing Nation housing units would be on 

trust land and the residents would not be adversely affected. Furthermore, 66 new Nation 

homeownership units would be able to be constructed and would attract an estimated 

total of 76 residents from outside the two-county area. 
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Alternative C 

As a result of Alternative C, 13 existing homeownership units would not be on lands 

placed into trust and its 48 residents may be adversely affected. If the Nation does not pay 

property taxes and the County forecloses (PTNP-F), these residents may lose their homes. 

The Nation would, however, construct 59 new homes on Group 2 lands. These homes 

would attract 68 out-of-region residents to the two-county area. 

Alternative D 

As a result of Alternative D, only two of the Nation’s existing housing units would be on 

land conveyed into trust and, therefore, the residences of 278 persons are at risk should 

the Nation determine not to pay property taxes and the County forecloses (PTNP-F). 

Furthermore, it is possible that the Nation would not construct any additional housing 

units. 

Alternatives E and G 

As a result of Alternative E and G, none of the Nation’s existing housing units would be 

on trust land. The 284 residents may lose their homes if the Nation does not pay property 

taxes and the County forecloses (PTNP- F). If the State or Federal government closes 

down the Turning Stone Resort and Casino under Alternative G, (CC-AEC), the Nation 

may not be able to pay for the property taxes. Under Alternatives E and G, the Nation 

would not construct the 66 homeownership units for the members on the waiting list, as 

the land would not be conveyed into trust. 
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Table 4.7-11 

Indirect Effects: Number of Persons in Nation Housing Units between 

2005 and 2011, Alternatives A through G 

Persons in Existing Nation Housing Units Persons in New Nation Housing Units 

On Trust Land Not On Trust Land Total Residents In-Migrants 

Total 

Number of 

Persons 

Number 

of Public 

School 

Children 

Total 

Number 

of 

Persons 

Number 

of 

Public 

School 

Children 

Total 

Number 

of 

Persons 

Number 

of 

Public 

School 

Children 

Total 

Number 

of 

Persons 

Number 

of 

Public 

School 

Children 

Alternative A 284 58 0 0 224 36 76 13 

Alternative B 284 58 0 0 224 36 76 13 

Alternative C 236 48 48 10 201 32 68 12 

Alternative D 6 1 278 57 0 0 0 0 

Alternative E 0 0 284 58 0 0 0 0 

Alternative F 284 58 0 0 224 36 76 13 

Alternative G 0 0 284 58 0 0 0 0 

Source: The Louis Berger Group, Inc, Oneida Nation, 2006 

Nation Employee Households

Alternatives A, B, C, and F 

As a result of ongoing Nation activities on land conveyed into trust under Alternatives A, 

B, C, and F, Nation employment is expected to grow in the next five years and, 

consequently, the number of Nation employees residing in Madison and Oneida County is 

expected to increase. Based on the assumptions described above, an estimated 318 to 331 

persons (Nation employees and their household members), including 83 to 86 children 

attending public school, are expected to migrate to Madison and Oneida County under 

these alternatives. 

Alternatives D, E, and G 

If the Nation discontinues its operations on lands not conveyed into trust (PTNP-F or 

CC), Nation employment is expected to decrease. Laid-off Nation employees may leave 

the region. Based on the assumptions discussed above, estimated out-migration would be 

small under Alternative D (9 persons) but would be significant under Alternatives E and G 

when a total of 190 and 1,293 persons would leave Madison and Oneida County. Under 

Alternative G (CC-AEC), it likely that a larger out-migration would occur as non-Nation 

jobs that are supported by spending by the Nation, its employees, and its visitors, also 

would be eliminated. 
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Table 4.7-12 

Indirect Effects: Change in the Number of Nation Employee Households 

residing in Madison and Oneida County between 2005 and 2011, 

Alternatives A through G 

Change in the Number of Persons 

in Nation Employee households 

between 2005 and 2011 

Estimated in- and outmigration between 2005 and 

2011 

Total Persons Public School 

Pupils 

Total 

Persons 

Public School 

Pupils 

Alternative A 769 200 331 86 

Alternative B 769 200 331 86 

Alternative C 746 194 321 83 

Alternative D -86 -22 -9 -2 

Alternative E -1,905 -495 -190 -50 

Alternative F 741 193 318 83 

Alternative G -12,926 -3,360 -1,293 -336 

Source: The Louis Berger Group, Inc, 2006. 

4.7.2.3 Cumulative Effects 

Alternatives A, B, C and F 

Oneida Nation Members. The success of the Nation’s economic activities and the 

resources committed to several of its governmental programs and services have led some 

Oneida Members to consider participating in the Nation’s targeted housing program. The 

housing program has encouraged some Oneidas that are not living in the area to return to 

the Nation’s lands. As presented in Section 3.7.5, the Nation Homeownership and Rental 

Programs currently include 98 units on Group 1, 2 and 3 lands which have an estimated 

284 residents. There are an additional 6 housing units on the Oneida Territory. 

As a result of Alternatives A, B and F, the 98 existing Nation units would be on lands 

conveyed into trust. Under Alternative C, the 13 units on Group 3 lands would be on 

lands not conveyed into trust and the 48 residents in those units may lose their home if the 

Nation does not pay property taxes on the land. 

On land conveyed into trust under Alternatives A, B and F, the Nation would be able to 

construct 66 new ownership housing units, which would generate 224 residents, including 

36 public school children. 

As a consequence of Alternatives A, B and F, all 66 units would be built and the 

population on Nation land would grow as planned. These new housing units would lead 

to an in-migration of 76 persons, including 13 children attending public schools. 
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As a result of Alternative C, the Nation would only be able to build new housing units on 

Group 1 and 2 lands if the County forecloses on Group 3 lands or the Nation sells the 

land. Currently, six sites have been identified on Group 3 lands. If all other proposed 

units were to be located on Group 1 and 2 lands, 59 units of housing would be 

constructed on land conveyed into trust under Alternative C. These new housing units 

would lead to an in-migration of 68 persons, including 12 children attending public 

schools. 

Nation Employee Households. In FY 2005, 60.2 percent and 26.6 percent of the 4,611 

Nation employees lived in Oneida County and Madison County, respectively. Under 

Alternative A and B, it is estimated that a total of 331 residents -- Nation employees and 

their household members -- would migrate to Oneida and Madison County in the next five 

years. An estimated 86 of these residents would be school-aged children. In Alternative C 

and F, in-migration would be 321 and 318, respectively. 

Other Proposed Projects. Eleven new or proposed projects by private developers have 

been identified in Madison and Oneida Counties. The new projects would total 591 

housing units. Of the housing units, 293 are residential homes, 100 are condominiums or 

townhouses, and 198 are senior housing. Additionally, the plans include an expansion of 

existing Cazenovia College dormitory to create living space for 96 students. A more 

detailed description of future projects is presented in Table 4.7-13. 

According to the U.S. Bureau of Census, the average household size is 2.46 in Madison 

and Oneida County. The residents of the 591 new housing units plus the 96 students 

would constitute 2,029 people. It is not expected that all 1,549 people would be the result 

of in-migration or that the new units would cause an increase in population. As discussed 

in Section 3.7.2, IRS data showed that the region has experienced a net out-migration (inmigration of residents that is less than the out-migration of residents) in every single year 

between 1990 and 2003. This has resulted in an overall declining population. 
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Table 4.7-13 

Future Housing Projects in Madison and Oneida Counties 

Municipality County Description Number 

of Units 

Cazenovia 

Village Madison 

The action involves demolition of existing single family home 

and construction of an addition to the existing Shove Hall 

dormitory to create living space for approximately 96 students; 

expansion and improvement of parking facility and minor 

addition to dining facility. 

Cazenovia 

Village Madison Residential proposal of 29 units including 8 townhouses and 21 

single-family residences. Currently R-30 to be rezoned to PUD. 29 

Cazenovia 

Village Madison 52 single-family residential structures 52 

Cazenovia 

Village Madison 20-25 residential units 25 

Town of 

Sullivan Madison Construction of 120 $300,000 residential homes 120 

Town of 

Sullivan Madison Construction of 92 residential condominiums. (approximately 2,000 sq.ft. apiece 92 

Town of 

Sullivan Madison The development of a 20-25 single-family residential structures. 25 

Rome Oneida 

Construction of a 558,000 square-foot senior housing complex 

consisting of 160 apartments connected to a commons building 

with 21,000 square-feet of retail space and an additional 38 

single-family duplex townhouse. 

198 

Village of 

Vernon Oneida 40-50 single-family residential structures 50 

 Total Units 591 

Population projections by CISER and Woods & Poole presented in Section 3.7.2 show a 

declining population for Oneida County between 2005 and 2010. For Madison County, 

CISER projects a stable population while Woods & Poole projects a population growth. 

These projections likely include the Nation’s induced population growth described above. 

Given the very small Nation-related in-migration, it cannot be expected that the Nation 

would offset any potential net out-migration 

Alternatives D, E, and G 

Oneida Nation Members. As a consequence of Alternatives D, E, and G, it is possible 

that the Nation would not build the 66 proposed housing units. Furthermore, the residents 

in the existing Nation housing units on lands not conveyed into trust may be adversely 

affected. If the Nation were not to pay property taxes on the lands not conveyed into 

trust, the residents could lose their homes and may leave the area. If the Nation were to 

pay property taxes and subsequently increases the rent, units may become unaffordable for 

some renters. 
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Nation Employee Households. Nation job losses may lead to out-migration of Nation 

employee households and of persons employed at businesses that were supported by the 

Nation. 

Other Proposed Projects. In the event of major Nation layoffs, the future of the 

residential developments proposed by private developers discussed above may be adversely 

affected. The out-migration of Oneida members and Nation employees would contribute 

to the region’s net out-migration. 

4.7.3 Housing Effects 

This section presents the direct, indirect and cumulative effects of Alternatives A through 

G on the number of housing units on Nation land specifically and in Madison and Oneida 

Counties as a whole in general. 

4.7.3.1 Direct Effects 

Alternatives A through G 

The conveyance of lands into trust is an action where title to the Nation’s existing lands 

would be conveyed to the Federal government with no change in their uses. Because 

neither the Proposed Action nor any of the alternatives involve new construction or 

changes in land use, there would no direct demographic effects. Changes in existing 

conditions resulting from the Nation’s ongoing housing program, which is not a part of 

the federal action, and growth in economic activity from the Nation’s existing enterprises 

are reasonably foreseeable and are discussed below under Indirect Effects. 

4.7.3.2 Indirect Effects 

The alternatives indirectly affect the number of housing units on Nation land and the 

number of Madison and Oneida County housing units that are occupied by Nation 

employees. 

Housing on Nation Land

Alternatives A, B, and F 

There are currently 98 housing units on the Nation’s Group 1, 2, and 3 lands, which 

would all be on trust lands. In the next 5 years, the Nation would construct 66 new 

homeownership units for its members. So far, only 15 sites have been identified. For the 

purpose of the analysis, the location of the other 51 new units is based on the location of 

the Nation’s current housing units on Group 1, 2 and 3 lands. There are no new rental 

units planned. 

A comparison of the alternatives is presented below in Table 4.7-14. 
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Table 4.7-14 

Oneida Nation Housing Program, Alternatives A through G, 2011 

Existing Nation Housing 

Units on Trust Lands 

New Nation Housing 

Units 

Total Nation Housing Units on 

Trust Land 

Alternative A 98 66 164 

Alternative B 98 66 164 

Alternative C 85 59 144 

Alternative D 2 0 2 

Alternative E 0 0 0 

Alternative F 98 66 164 

Alternative G 0 0 0 

Source: The Louis Berger Group, Inc., Oneida Nation, 2006. 

Alternative C 

Of the 15 identified sites for the proposed new housing units, seven are on Group 3 lands. 

If the Nation does not pay property taxes and the County forecloses, these units may not 

be built. Additionally, there are currently 13 existing homeownership properties on 

Group 3 lands. There is a high level of uncertainty regarding what would happen to the 

13 homeownership properties. Currently, the Nation owns the lands while the household 

owns the house. In case the Nation does not pay for the property taxes, Nation members 

could potentially lose their home if they cannot afford to pay the property tax and the 

County forecloses. 

Alternative D 

As a consequence of Alternatives D, E, and G, it is possible that none of the proposed 66 

Nation housing units would be built. Under Alternatives E and G, the 98 existing Nation 

housing units would be at risk. There is a high level of uncertainty regarding what would 

happen to the homeownership properties. Currently, the Nation owns the lands while the 

household owns the house. In the event that the Nation does not pay for the property 

taxes, Nation members could potentially lose their home if provisions are not established 

or they cannot afford to pay the property tax and the County forecloses. There is also a 

great deal of uncertainty surrounding the rental units. If the Nation does not pay for the 

property taxes and the County forecloses on the property, Nation members could be 

evicted depending on who takes ownership of the properties. Similar concerns would arise 

under Alternative D when only two existing Nation housing units would be on trust land. 
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Alternatives E and G 

None of the existing Nation housing units would be on trust land. It is unlikely that the 

Nation would elect to build new Nation housing units. Furthermore, when the Casino 

closes under Alternative G (CC-AEC), the Nation would not be able to afford to continue 

the Homeownership program. 

Housing for Nation Employees 

Alternatives A, B, C, and F 

In FY 2005, 86.8 percent of the 4,611 Nation employees lived in Madison and Oneida 

Counties. By 2011, Nation employment is expected to have reached 4,882, with 4,238 

Nation employee households residing in Madison and Oneida Counties under Alternatives 

A and B and 4,229 and 4,227 under Alternatives C and F, respectively. 

A comparison of the alternatives is presented in Table 4.7-15. 

Table 4.7-15 

Nation Employee Households Residing in Madison and Oneida County, 

Alternatives A through G, 2011. 

Number of Nation 

Employees 

Total Persons in Nation Employee Households in 

 Madison and Oneida County 

Alternative A 4,882 4,236 

Alternative B 4,882 4,236 

Alternative C 4,874 4,229 

Alternative D 4,581 3,975 

Alternative E 3,940 3,419 

Alternative F 4,872 4,227 

Alternative G 55 48 

Source: The Louis Berger Group, Inc, Oneida Nation, 2006 

Alternatives D, E, and G 

As discussed in Section 4.7.2, Demographic Effects, it is estimated that 3 to 328 

households in Madison and Oneida counties may leave the area in the event that there are 

job layoffs. Reflecting only the Nation’s direct employees, this estimate of out-migration 

should be viewed conservatively; depending on the employer and their dependency on the 

Nation for their business, other local suppliers and vendors may have to contract their 

operations in response to the Nation’s cessation of economic activity at Turning Stone 

Resort & Casino. This would yield higher levels of out-migration of households and 

increased housing vacancy. 

Major business closures have ripple effects to local housing markets, as some workers may 

no longer have the savings and resources to continue to make rental and mortgage 
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payments. An influx of rental or for-sale housing at a time of declining demand can place 

downward pressures on the housing market. 

Summary 

The alternatives indirectly affect the number of housing units on Nation land and the 

number of Madison and Oneida County housing units that are occupied by Nation 

employees. The indirect effects, particularly the change between 2005 and 2011, are 

summarized and compared in Tables 4.7-16 and 4.7-17. 

Table 4.7-16 

Indirect Effect: Change in the Number of Housing Units on Nation Land, 

 2005-2011 

Change from 2005 Baseline 

 (98 units) 

Alternative A 66 

Alternative B 66 

Alternative C 46 

Alternative D -96 

Alternative E -98 

Alternative F 66 

Alternative G -98 

Source: The Louis Berger Group, Inc, Oneida Nation, 2006 
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Table 4.7-17 

Indirect Effect: Change in the Number of Housing Units in Study Area 

Municipalities with One or More Nation Employee, 2005-2011 

Change in Nation Employee 

Households 

Estimated in-and out migration of Nation 

Employee households 

Alternative A 235 101 

Alternative B 235 101 

Alternative C 228 98 

Alternative D -26 -3 

Alternative E -582 -58 

Alternative F 226 97 

Alternative G -3,953 -395 

Source: The Louis Berger Group, Inc, Oneida Nation, 2006 

4.7.3.3 Cumulative Effects 

Alternatives A, B, and F 

There are currently 98 housing units on the Nation’s Group 1, 2, and 3 lands. The Nation 

plans on constructing 66 new homeownership units for its members. Currently, only 15 

sites have been identified for the 66 homes. 

Currently, 4,001 Nation employees live in Madison and Oneida County. Based on 

planned employment growth, an estimated 4,236 Nation employees are expected to live in 

the two-county area in 2011 under Alternative A, B, and 4,227 under Alternative F. An 

estimated 97 to 101 Nation employee households are expected to be new to Madison and 

Oneida County. 

As discussed in Section 4.7.2.3, private developers propose to build 591 new housing units 

in the two counties. 

Alternative C 

If the Nation does not pay property taxes on Group 3 lands and the County forecloses on 

the land, the Nation would only be able to build new housing units on Group 1 and 2 

lands. Currently six sites have been identified on Group 3 lands. If all other proposed 

units were to be located on Group 1 and 2 lands, 59 units of housing would be 

constructed under Alternative C. Furthermore, the existing 13 Nation homeownership 

units on Group 3 land would be at risk. 

An estimated 98 Nation employee households are expected to be new to Madison and 

Oneida County. 
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As discussed in Section 4.7.2.3, private developers propose to build 591 new housing in 

the two counties. 

Alternatives D, E, and G 

As a consequence of Alternatives D, E, and G, it is possible that the Nation would not 

build the 66 proposed units, as land for the housing would not be conveyed into trust or 

may not be available. In addition, under Alternatives E and G, the existing 98 housing 

units would no longer be on Nation land. In Alternative D, only two existing units would 

be on Nation land. These units may become vacant if the Nation does not pay property 

taxes and the County forecloses. 

Furthermore, Nation job losses would lead to out-migration of Nation employee 

households and of persons employed at businesses that were supported by the Nation, 

leading to an increase in the number of vacant units. In the event of major Nation layoffs, 

the future of the residential developments of 591 units proposed by private developers may 

be adversely affected. 

4.7.4 Nation Government Programs and Services 

4.7.4.1 Direct, Indirect, and Cumulative Effects 

Alternative A 

The proceeds of the Turning Stone Resort & Casino and other Nation Enterprises have 

supported tribal government operations and programs, provided for the general welfare of 

the Oneida Nation and its members, promoted economic development, both within the 

Nation and local community, contributed to charitable organizations and helped fund the 

operations of local government agencies. 

As described in the Affected Environment Section 3.7, the Nation’s governmental 

programs have increased in size and scope along with the Nation’s success in expanding 

net revenue distributions from resort and casino and convenience store operations along 

with a diverse set of other business enterprises. The Nation also collects a hotel occupancy 

tax and a retail sales tax to defray the cost of certain tribal government programs and 

services. In FY 2005, the Nation contributed $16.8 million to its government programs 

and services. 

The Oneida Nation government provides social welfare services similar to programs 

sponsored by State and local governments including critical programs for the health, 

public safety and welfare of its members and their families. The Nation has fostered 

fundamental improvements in the social conditions of its members. Members have access 

to steady jobs, a college education, health care, day care and youth programs, elder 

programs, family services, and affordable housing. Major tribal government programs 

and services that have been established by the Nation’s governing institutions are 

described in the Affected Environment Section 3.7. 
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The Proposed Action involves the conveyance of 17,370 acres of land owned by the 

Nation in Oneida and Madison Counties to the United States government to be held in 

trust. The Proposed Action anticipates the preservation of the Nation’s enterprises, 

cultural and historic resources, and land use patterns and anticipates a modest increase in 

economic activities – for example, guest visitation, enterprise employment, and vendor 

spending. The Nation would continue to modernize or expand existing facilities to meet 

changing demand such as indoor/outdoor swimming pool, spa, a reconfigured poker 

room, a helipad, and a nightclub. The Nation would also make other investments such as 

in its marina to further brand the facility as a resort destination. 

Under the Proposed Action, it is anticipated that there would be a relatively stable source 

of surplus funds generated by enterprise operations along with a dedicated revenue stream 

from sales and occupancy taxes to support the Nation’s commitments to a diverse range of 

government programs and services. 

For example, the Nation would continue its plans to supply Nation Member housing 

through construction or purchase for those on the Homeownership Program waiting list, 

resulting in development estimated to be approximately 66 dwelling units over the next 

five years. 

The Nation’s Police Department would likely require more personnel to meet the service 

demand generated by a growing number of patrons that are expected to frequent the 

Turning Stone Resort & Casino, the SavOn gas station and convenience stores and 

marinas. As the number of patrons rises, the number of routine, planned and anticipated 

duties of Nation police officers must be adjusted to accommodate a growing number of 

emergency calls (e.g., larceny/gas drive-off, motor vehicle accidents, risk management, 

among others). 

Absent major destabilizing events in the national and regional economy or extraordinary 

risky investments in non-casino enterprises, the subject alternative would provide the 

resources for the Nation to overcome long-standing barriers and pursue its goals to 

achieve greater self-sufficiency, self-determination, cultural awareness and economic 

development for the Nation and its members. 

Alternative B 

Alternative B would accommodate the conveyance of 35,000 acres of land to be held in 

trust. This alternative assumes that the Nation would reacquire an additional as yet 

unspecified 17,360 acres within its reservation boundaries. Development in the next five 

years would be the same as described above in Alternative A. As additional lands would be 

purchased to eventually attain the 35,000 acres, the Nation would prepare and implement 

usage plans for those properties. 
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Alternative C 

Alternative C involves the initial conveyance into trust of only the lands within Groups 1 

and 2 (approximately 9,903 acres). Development in the next five years would be the same 

as described above in Alternative A. As with Alternative A, absent major destabilizing 

events in the national and regional economy or extraordinary risky investments in noncasino enterprises, this alternative would provide the resources for the Nation to overcome 

long-standing barriers and pursue its goals to achieve greater self-sufficiency, selfdetermination, cultural awareness and economic development for the Nation and its 

members. 

However, unlike Alternative A, the exclusion of Group 3 lands from conveyance into trust 

would be inconsistent with the stated purpose and need regarding the preservation of 

forested, hunting and agriculture lands and fostering respect for traditional cultural values 

and lifestyles. The range of lands dedicated for these uses by Nation government would 

likely be diminished under conditions that require the Nation to accept taxation and 

regulatory authority by State and local governments. Similarly, culturally and historically 

significant sites on Group 3 lands of substantial importance to the Nation may remain in 

Nation ownership but would be subject to State regulation and taxation without benefit of 

the tax exempt status extended to Federal, State and local governmental park facilities. 

Ownership of these lands without the benefit of trust land protection would contribute to 

uncertainty, and other potential scenarios are likely to unfold other than an agreement to 

pay taxes and submit to regulation including: 

• Nation sells its land holdings and discontinues its operations on Group 3 lands. 

• County forecloses on Nation land because of the Nation’s failure to pay the 

imposed property taxes. 

Alternatives D and E 

Alternative D includes only the lands that are in Group 1 (i.e., the lands that comprise the 

Turning Stone Resort & Casino and the Patrick Road SavOn gas station and convenience 

store). With this alternative, only 3,428 acres would be conveyed into trust. Development 

in the next five years would be the same as described for the Turning Stone Resort and 

Casino in Alternative A, above. 

Alternative E would place only the lands comprising the Turning Stone Casino gaming 

floor proper into trust. The tax lot consists of approximately 225 acres. Development in 

the next five years for the Resort and Casino would be the same as described in 

Alternative A, above. 

As described in 4.7.1, because Group 2 and Group 3 lands would not be conveyed into 

trust, the future of the Nation Enterprise and Government operations, economic activity 

and jobs would be uncertain. Several potential scenarios could result from the denial of 
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the Trust Application for Group 2 lands that would exacerbate uncertainty in the future 

and further disrupt or alter the service-level and quality of various governmental programs 

and services. There are several possible future scenarios, some of which are presented 

below: 

Among the possible scenarios that would lead to the loss of most of the Government 

programs and services are the following: 

• Nation Group 2 and Group 3 land holdings are alienated and the Nation 

discontinues its operations. 

• County forecloses on Nation’s Group 2 or 3 lands because of the Nation’s failure 

to pay the imposed property taxes. 

Possible scenarios that would lead to significant reductions in Government Programs and 

Services are as follows: 

• The State’s imposition of a tax collection regime for excise taxes from wholesalers 

who supply cigarettes and petroleum to the Nation’s gas and convenience stores as 

well as the collection of sales taxes from non-Indian customers along with the 

diminishment of the Nation’s ability to collect its own sales tax and use those tax 

revenues to subsidize various tribal government programs. 

• The Nation makes local property tax payments that reduce Nation net revenues. 

Finally, the scenario under which most Government Programs and Services would be 

temporarily preserved is as follows: 

• A continuation of the current situation which is characterized by: (1) the Nation’s 

failure to pay property taxes and the County’s lack of remedy as currently held by 

the U.S. District Court for the Northern District of New York; and (2) the 

continued uncertainty about wholesalers’ liability for State excise taxes on fuel and 

cigarette sales to Indian retailers. This scenario creates uncertainties that would 

affect the Nation’s long-term health and would compromise its economic selfsufficiency. 

It cannot be reasonably predicted which scenario would prevail. For impact analysis 

purposes, the following scenarios are evaluated: (1) the Nation discontinues its business 

operations on Group 2 lands; and (2) the Nation does not pay property taxes on Group 2 

and 3 lands. 

Under Alternative D, the Turning Stone Resort & Casino employment and net revenues 

would grow at the same rate as Alternative A. The Patrick Road SavOn gas station and 

convenience store would be conveyed into trust and not be subject to State and local 

taxation. Fewer resources would be available for Nation government programs and 

services after the closing of Group 2 SavOn gas station and convenience stores. The 

economic analysis suggests that there could be an estimated 12 percent reduction in the 

total number of government jobs attributable to this scenario. 
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This estimate, however, does not fully account for the potential reduction or elimination 

of various government programs resulting from removing Group 3 lands (see discussion of 

Alternative C) and the Group 2 lands. Alternative D would result in major disruptions to 

the Nation’s governmental programs and services. It would not convey Group 2 lands, 

including lands with governmental facilities into trust, requiring the Nation’s government 

to be subjected to the regulatory and taxation authority of New York State government. 

The Nation’s housing program on Group 2 would be severely hampered by this 

Alternative. The full range and type of cut-backs required to address this loss of resources 

cannot be fully foreseen. However, it would effectively impede the Nation from advancing 

its goals to achieve greater self-sufficiency, self-determination, cultural awareness and 

economic development for the Nation and its members. 

Although both Alternatives D and E include conveyance of the casino gaming floor tax lot 

into trust, the adverse effects to the Nation’s Government Programs and Services because 

of the removal of Group 3 lands and Group 2 lands are greater under Alternative E than 

Alternative D. The economic effects are described in 4.7.1, but the complementary or 

synergistic linkages between the resort land and casino would be severely disrupted. The 

Nation’s casino operations have cross-subsidized other operations both at the Turning 

Stone Resort & Casino and elsewhere in the region; severing of the operations by the tax 

lot would impede the Nation’s economic development strategy, which includes the 

branding or positioning of the Turning Stone Resort & Casino as a vacation destination. 

The ability of another operator to assume managerial control of the non-gaming assets 

and create a financially sustainable venture is questionable in light of their poor “standalone” financial performance as a separate business unit. 

The scenario creates further uncertainty, as it appears that the Nation is unwilling to 

accept the taxation and regulatory authority on these linked components of the complex. 

While there is considerable uncertainty, as described above, on how the Nation would 

respond to State and local taxation and regulation of the SavOn gas station and 

convenience store properties, there would be an estimated $10 million drop in fiscal 

surpluses available to government – a cut of 62 percent – along with a near complete loss 

of Nation sales taxes ($1.9 million in 2005 dollars). This would result in a severe 

contraction in government programs and services that are not funded through federal 

grants. 

Alternative F 

Alternative F is based upon combining all of the properties contained in Group 1 with 

additional properties from Groups 2 and 3 to facilitate the formation of a more compact 

and contiguous group of trust lands. Alternative F totals 11,986 acres and encompasses 

an area of about 10 by 14 miles. Alternative F includes the majority of member housing, 

most of the Nation’s enterprises, all the Nation’s government facilities, and all of the 
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properties containing member services. Development in the next five years would be the 

same as described above in Alternative A. 

This alternative appears to avoid most adverse effects identified under Alternatives C, D, E 

and G and conveys into trust those lands that sustain the Nation’s government programs 

and services. This alternative, however, does not fulfill all of the purposes and needs that 

would be met by either Alternatives A or B. 

Alternative G 

Under the No Action Alternative, the United States would not acquire any lands from the 

Nation to be held in trust. If the No Action Alternative is implemented, there would be a 

great deal of uncertainty surrounding the continuation of the Nation Enterprises and 

Government jobs, leading to several potential future scenarios: 

Among the possible scenarios that would lead to the loss of most of the Government 

programs and services are the following: 

• Nation land holdings are alienated and it discontinues its operations. 

• County forecloses on Nation land because of the Nation’s failure to pay the 

imposed property taxes. 

• Federal government (through enforcement actions carried out by the National 

Indian Gaming Commission) closes down the Turning Stone Resort & Casino 

based on its alleged illegality (i.e., according to the State, the land on which the 

Casino sits does not qualify as “Indian land” under the Indian Gaming Regulatory 

Act). 

Possible scenarios that would lead to some reductions in Government Programs and 

Services include the following: 

• The State’s imposition of a tax collection regime for excise taxes from wholesalers 

who supply cigarettes and petroleum to the Nation’s gas and convenience stores as 

well as the collection of sales taxes from non-Indian customers along with the 

diminishment of the Nation’s ability to exact its own sales tax. 

• The Nation makes local property tax payments that reduce Nation net revenues. 

Finally, the scenario under which most Government Programs and Services would be 

temporarily preserved is as follows: 

• A continuation of the current situation which is characterized by two main aspects: 

(1) the Nation’s failure to pay property taxes and the County’s lack of remedy as 

currently held by the U.S. District Court for the Northern District of New York; 

and (2) the continued uncertainty about wholesalers’ liability for State excise taxes 

on fuel and cigarette sales to Indian retailers. This scenario creates uncertainties 

that would affect the Nation’s long-term health and would compromise its 

economic self-sufficiency. 
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Although it cannot be reasonably predicted which scenario would prevail, it is unlikely 

that the Turning Stone Resort & Casino would remain open under Alternative G; thus, for 

analysis purposes, the scenario (CC-AEC) in which the Turning Stone Resort & Casino 

closes and the Nation discontinues the operations of the SavOn gas station and 

convenience stores is analyzed. Several consequences are anticipated under this scenario 

of the No Action Alternative that would significantly impair the Nation’s ability to exert 

its control and administer its governmental programs and services for the benefit of its 

Members: 

• Turning Stone Resort & Casino – The Turning Stone Resort & Casino would 

cease operations and its other resort and lodging facilities would also close, 

resulting in no further net revenues (i.e., surplus distributions) for the Nation’s 

governmental programs and services. While claims for the outstanding debt 

service obligations of the Turning Stone Resort & Casino are without recourse to 

the Nation’s government, there would be severe opportunity costs for the 

leadership of the Nation from cessation of the Nation’s enterprises that are likely 

to result in far less managerial attention and staffing for government affairs and 

services. Cessation of the Turning Stone Resort & Casino operations would lead 

to a severe adverse effect to the human and fiscal resources that the government 

depends on for its sustainability. 

• Other Nation Enterprises – The Nation may endeavor to maintain its enterprises 

such as the SavOn convenience retail and gas establishments, but they would no 

longer be under the Nation’s regulatory control. Placed under the taxation and 

regulatory authority of New York State, existing SavOn gas station and 

convenience stores would need to reduce vendor purchasing and employment; the 

vast majority of the stores would be closed in expectation of or after 

demonstrating poor financial operating performance in a price-competitive 

environment (i.e., reduced sales and reduced market draw of non-local customers). 

Moreover, the closure of the Turning Stone Resort & Casino itself would reduce 

the total traffic volumes at its most profitable location – the Patrick Road SavOn 

gas station and convenience store – and there would be fewer “pass-by” trips at 

other locations in the region from non-local travelers or workers visiting the 

Turning Stone Resort & Casino. The indirect and cumulative effect would be an 

adverse consequence to the total size and range of government programs and 

services that would be made available, because there would be significantly lower 

profit margins and little or no net revenues (i.e., financial surpluses). 

• Divestiture of Land Portfolio. There are legal, cultural, and economic reasons that 

could cause the divestiture of the Nation’s lands and major elements of its real 

estate portfolio. The divestiture would likely consume the Nation’s managerial 

resources to the detriment of the governmental programs and services. Depending 

on the timing of divestitures, a glut of gas and convenience store facilities may 

come to the market that under-perform in a price-competitive environment, unlike 

current conditions, and with little destination draw (i.e., a non-local sources of 

demand). The market or appraised value of these assets would be depressed by 

excess supply and the lowered income-producing performance of the properties. 

The one-time liquidation value of these assets for the Nation would not match the 
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long-term value of the properties in their current functions and uses with their 

current advantages; the liquidation value would not provide a sustainable basis for 

the Nation’s continued commitment to the administration of governmental 

programs. Further, tribal governmental facilities performing traditional 

governmental functions but on State-regulated, non-trust lands would find 

themselves subject to the State’s taxation and regulatory authority. This condition 

may prove incompatible with the Nation’s cultural values or history, resulting in 

further divestiture of governmental properties and the relocation and consolidation 

of governmental affairs onto territory lands. 

• Nation Government Services and Affairs – Situated in several localities, the 

Nation’s governmental services and affairs would be operated out of facilities that 

would be outside the Nation’s sovereign control. Additionally, with governmental 

functions and services starved of the financial surpluses and resources provided by 

the Turning Stone Resort & Casino, the Nation’s governmental services would not 

be able to effectively deliver the range of public health, safety and welfare services 

that it currently provides. Rather than continuing its drive toward self-sufficiency, 

the Nation would have to become increasingly reliant on tribal government grants 

from the BIA, HUD and other federal agencies to conduct its affairs. Among the 

most affected programs and services are the following: 

− Nation Member Housing – The Nation’s housing program would rely 

primarily on federal funding to sustain it. Lands upon which member 

residences exist would no longer be under the Nation’s regulatory control. 

Little or no new member housing could be anticipated. 

− Educational Programs would be severely cut that have made considerable 

strides in educational attainment such as counseling services, scholarships for 

advanced degrees, private schools for talented and gifted children, library 

services, language programs, and youth work and learn programs. 

− Family Services would no longer be able to deliver childcare, eldercare and 

social services programs at the scale and breadth currently conduced. The Ray 

Elm Children and Elders Center in the Village of the White Pines is home to 

several programs that strengthen families and community life for Members and 

their friends. The Nation’s resources would be insufficient to make the 

payments to operate and maintain this state-of-the-art institutional facility (i.e., 

heating, cooling, real estate taxation, etc.). 

− Recreation and Cultural Enrichment programs such as the operations of the 

Nation’s Shako:wi Cultural Center in the Nation’s territory would be adversely 

affected by the loss of available financial resources. Outside the territory, the 

Nation’s current cultural, historic and archaeological resources would no 

longer be under the Nation’s regulatory control. 

− The Recreation Center and Gymnasium and the After School Programs that are 

jointly sponsored by the Nation’s education and recreation departments would 

be similarly adversely affected by the loss of resources. 

− Public Safety – The Oneida Nation Police Department is a law enforcement 

agency with little outside funding. The department’s size, functions and 

service-calls would be severely diminished by the loss of casino complex, golf 

course and gas station and convenience store retail locations – approximately 
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80 percent of the service calls are to these locations. The Nation would be 

more reliant on State, county and local policing jurisdictions to address 

criminal complaints and would no longer provide assistance to these 

jurisdictions within areas with Nation land holdings. To the extent that the 

Nation’s SavOn gas station and convenience store facilities are transferred into 

private non-Indian ownership, or continued as Nation operations but subject 

to a different taxation and regulation regime, an increasing burden of service 

calls (approximately 39 percent or 4,900 calls in 2003) would be shifted to 

State police, County sheriff or local police forces in the absence of Nation 

police. 

Member Benefits – The Nation would no longer be able to distribute benefits that 

strengthen the bonds between tribal members and their tribal government. Among the 

benefits programs subject to cut-backs without the surplus financial operating resources 

would be burial plots, advocacy and credit counseling, medical and dental insurance for 

Nation members and families, quarterly member distributions, and housing. 

4.7.5 Fiscal Effects 

The section presents the direct, indirect and cumulative effects of the alternatives on local 

and State government revenues and expenditures. 

4.7.5.1 Direct Effects 

The alternatives directly affect local property tax revenues of Madison County and Oneida 

County and the study area municipalities. The counties, municipalities and the school 

districts would not receive property taxes on the lands conveyed into trust. The lands 

would be permanently exempt from property taxes. 

Under Alternatives C through G, a transfer of ownership of Nation lands could occur if 

the Nation land is alienated or if the County were to foreclose on the land due to the 

Nation’s failure to pay property taxes (PTNP-F). Whether local governments would collect 

property taxes on former Nation land is uncertain and depends on whether a sale to a 

non-tax-exempt owner would take place. 

In Alternative G, the sale process could be undermined by the large amount of land 

involved and the fact that much land is already available in the area. Buyers may be wary 

of the quality and security of title in Nation land. The sale of the Turning Stone Resort & 

Casino complex would be particularly unlikely, as only the Nation can operate the 

property as a casino, and the facility’s high maintenance costs would likely make other 

uses financially infeasible. The resort’s component facilities, such as the golf courses and 

the luxury lodge hotel, currently generate an operating loss and would likely not survive 

without the casino. 

Payments by the Nation to Local Governments. Based on the current assessed 

valuation and 2005 property tax rates, the annual property taxes on Group 1, 2 and 3 
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Nation land would be $2.7 million, not including the Casino tax lot in the Town of 

Verona, of which the taxable assessed value is currently contested (see Table 4.7-18). 

Tables 4.7-19 and 4.7-20 exhibit the property tax estimates on the Nation’s lands by 

municipality for Oneida and Madison Counties for 2005, and Table 4.7-21 illustrates the 

property tax estimates by school district. (These estimates are calculated by applying the 

2005 tax rates to the current assessed values.) 

Table 4.7-18 

Overview of Property Taxes on Nation Land, 2005 

 Municipal County School Total 

Group 1 22,674 250,173 732,306 1,005,154 

Group 2 212,303 387,428 845,999 1,445,730 

Group 3 31,799 64,896 167,351 264,046 

Total $266,777 $702,497 $1,745,656 $2,714,930 

Note: Does not include Casino Tax lot because the assessed value is currently contested by the Nation; Calculations 

based on current assessed value and 2005 tax rates. 

Source: Oneida Nation, The Louis Berger Group, 2006. 
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Table 4.7-19 

Oneida County and Municipal Property Taxes on Nation Land, 2005 

Municipality Current 

Assessed Value 

Municipal Tax 

Estimate 

County Tax 

Estimate 

Vernon 5,397,600 3,940 24,829 

Group 1 Verona 389,313,000 272,519 3,278,015 

Total $394,710,600 $276,459 $3,302,844 

Augusta 115,100 1,014 1,026 

Sherrill 1,243,600 7,773 9,625 

Village of Sylvan Beach 447,600 2,435 3,872 

Vernon 799,200 583 3,676 

Village of Vernon 978,600 6,919 4,502 

Verona 8,966,077 6,276 75,494 

Group 2 

Total $12,550,177 $25,000 $98,195 

Augusta 251,300 2,214 2,239 

Sherrill 52,000 325 402 

Vernon 314,900 230 1,449 

Verona 1,375,100 963 11,578 

Group 3 

Total $1,993,300 $3,731 $15,668 

Augusta 366,400 3,228 3,265 

Sherrill 1,380,000 8,098 10,028 

Village of Sylvan Beach 447,600 2,435 3,872 

Vernon 6,511,700 4,754 29,954 

Village of Vernon 978,600 6,919 4,502 

Verona 399,654,177 279,758 3,365,088 

All Groups 

Total $409,338,477 $305,191 $3,416,708 

Note: Calculations based on current assessed value and 2005 tax rates. The Casino tax lot in Verona whose taxable 

valuation is disputed by the Nation is shown for clarity and discussion purposes. 

Source: Oneida Nation, The Louis Berger Group, 2006. 
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Table 4.7-20 

Madison County and Municipal Property Taxes on Nation Land, 2005 

 Current Assessed 

Value 

Municipal Tax 

Estimate 

County Tax 

Estimate 

Village of Canastota 3,165,100 31,873 26,872 

Cazenovia 61,700 57 521 

Lenox 4,000,900 6,001 33,968 

Lincoln 275,900 944 2,334 

Oneida 20,528,711 147,396 223,763 

Stockbridge 174,500 900 1,480 

Sullivan 34,800 132 295 

Total $28,241,611 $187,303 $289,233 

Fenner 6,300 31 58 

Lenox 372,000 558 3,158 

Lincoln 568,300 1,944 4,808 

Oneida 332,900 2,390 3,629 

Smithfield 125,000 1,005 1,114 

Stockbridge 4,266,400 22,015 36,179 

Sullivan 33,200 126 282 

Group 3 

Total $5,704,100 $28,068 $49,227 

Village of Canastota 3,165,100 31,873 26,872 

Cazenovia 61,700 57 521 

Fenner 6,300 31 58 

Lenox 4,372,900 6,559 37,126 

Lincoln 844,200 2,887 7,142 

Oneida 20,861,611 149,786 227,392 

Smithfield 125,000 1,005 1,114 

Stockbridge 4,440,900 22,915 37,659 

Sullivan 68,000 258 577 

All Groups 

Total $33,945,711 $215,371 $338,460 

Note; Calculations based on current assessed value and 2005 tax rates. 

Source: Oneida Nation, The Louis Berger Group, 2006. 
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Table 4.7-21 

School District Property Taxes on Nation Land, 2005 

 Current Assessed Value School District Tax 

Estimate 

Group 1 V.V.S. 394,710,600 9,060,079 

Canastota 7,232,200 157,445 

Madison 115,100 2,828 

Oneida 23,732,651 467,619 

Stockbridge 1,409,260 32,309 

Group 2 

V.V.S. 8,176,577 184,674 

Canastota 571,300 12,449 

Madison 359,800 8,602 

Morrisville 96,300 1,818 

Oneida 471,900 9,321 

Stockbridge 4,659,400 101,515 

Group 3 

V.V.S. 1,483,800 33,646 

Canastota 7,803,500 169,894 

Madison 474,900 11,430 

Morrisville 96,300 1,818 

Oneida 24,204,551 476,941 

Stockbridge 6,068,660 133,823 

All Groups 

V.V.S. 404,370,977 9,278,400 

Note: Calculations based on current assessed value and 2005 tax rates. The Casino tax lot in Verona whose taxable 

valuation is disputed by the Nation is shown for clarity and discussion purposes under Group 1, V.V.S. 

Source: Oneida Nation, The Louis Berger Group, 2006. 

Under Alternative A, the counties, municipalities, and school districts would not receive 

the $2.7 million in property tax revenues from Group 1, 2, and 3 lands, and the lands 

would become permanently exempt from local property taxes. 

If the Nation were to acquire an additional 17,630 acres under Alternative B, these lands 

would be permanently exempt from local property taxes. Based on the current average 

assessed value per acre of Nation land and the 2005 tax rate, the annual property tax on 

Group 1, 2 and 3 Nation land and on the additional 17,630 acres would be $5.4 million 

(not including the Casino tax lot, of which the assessed value is currently being contested). 

However, this value is very hypothetical for those lands not currently part of the Nation’s 

land holdings, as the specific parcels, type of land use activities, intensity of uses, 

jurisdiction, and taxable assessed values of these lands are currently unknown. 

Under Alternative C, the counties, municipalities, and school districts would not receive 

property tax revenues from Group 1 and 2 lands, which would become permanently 

exempt from local property taxes. Based on the current assessed valuation and 2005 

property tax rates, the annual property tax on Group 1 and 2 Nation land would be $2.4 

million (not including the Casino tax lot assessed value, which is currently contested). 

Based on the current assessed valuation and 2005 property tax rates, Group 3 lands would 

generate annual property taxes of $264,000. 
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Based on the current assessed valuation and 2005 property tax rates, the annual property 

tax on Group 1 Nation land would be $1.0 million (not including the Casino tax lot, of 

which the assessed value is currently contested). Under Alternative D, the county, 

municipalities, and school districts would not receive property tax revenues from Group 1 

lands, as they would be placed into trust and permanently exempt from local property 

taxes. Group 2 and 3 lands would generate annual property taxes of $1.7 million. 

Under Alternative E, the Casino tax lot would be exempt from local county, municipal, 

and school district taxes. The assessed value of the Casino tax lot of $362.6 million is 

currently contested by the Nation. Based on the current assessed valuation and 2005 

property tax rates, the annual property tax on Nation lands other than the Casino tax lot 

would be $2.7 million. 

Under Alternative F, a total of 11,986 acres would be permanently exempt from county, 

municipal and school district property taxes. Based on current assessed valuation and 

2005 property tax rates, the annual property tax on this land would be $1.7 million, not 

including the Casino tax lot. (The assessed value of the Casino tax lot is currently 

contested.) Property taxes on the lands that would not be conveyed into trust are 

estimated at $1 million. 

Under Alternative G, none of the Nation’s Group 1, 2, or 3 lands would be exempt. Based 

on the current assessed valuation and 2005 property tax rates, the annual property tax on 

Group 1, 2 and 3 Nation land would be $2.7 million (not including the Casino tax lot 

assessed value, which is currently contested). 

A comparison of the estimated property taxes on Nation land under the alternatives is 

presented in Table 4.7-22. 
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Table 4.7-22 

Property Tax, Alternatives A through G, 2011 

Estimated Property Taxes on Nation Lands 

on Lands into Trust on Lands not into Trust 

Alternative A $ 2,713,806 N/A 

Alternative B $ 5,463,119 N/A 

Alternative C $ 2,449,759 $ 264,046 

Alternative D $ 1,005,154 $ 1,708,652 

Alternative E See Note $ 2,713,806 

Alternative F $ 1,705,875 $ 1,007,930 

Alternative G N/A $ 2,713,806 

Notes: Property tax estimates do not include the tax on the Casino Tax lot as the assessed of this tax lot is currently 

contested by the Nation; Calculations based on current assessed value and 2005 tax rates; Property taxes include 

County, Municipal and School District property taxes; N/A means Not Applicable. 

Source: The Louis Berger Group, Inc.; Oneida Nation. 

As explained in Section 3.7.7.3., the Nation has made grants and other payments to local 

governments totaling $38.5 million since 1995. Payments that have not been credited to 

the local governments’ tax claims include Silver Covenant grants to schools and localities, 

reimbursements to several municipalities for the use of their services, and contributions to 

infrastructure projects. In addition to supporting local governments, the Nation has 

provided scholarships to local high school students and the Oneida Nation Foundation 

supports several local organizations. It can be reasonably expected that the Nation would 

continue to make payments to local governments for actual services provided (e.g., fire 

protection) under Alternatives A through F. Under Alternative G, local governments 

would likely no longer receive any payments from the Nation, as the Nation’s revenues 

would be very low. Municipal service agreements would likely be discontinued if all 

Nation Enterprises would cease operation under Alternative G (CC-AEC). 

4.7.5.2 Indirect Effects 

The Proposed Action and other alternatives have several indirect fiscal effects. The fiscal 

effects are described in terms of revenues from payments made by the Nation to the State, 

payments made by others to the State, and payments made by others to local government. 

Fiscal indirect effects are also considered in terms of the costs of local government services 

that are attributable to the Nation’s enterprise and governmental activities. 

Payments by the Nation to the State. As described in Section 3.7.7.2, in FY 2005, 

$3.4 million in State income taxes were withheld and remitted to the State from the 

Nation’s payroll. Because of the increase in Nation jobs in the next five years under 

Alternatives A, B, C and F, these State income tax revenues are expected to increase. 

Assuming that the average income tax per job remains constant, a total of $3.6 million in 

State income taxes would be withheld from the Nation’s payroll in 2011 under 

Alternatives A, B, C, and F. If the Nation would discontinue its operations on lands not 

conveyed into trust under Alternatives D, E, and G, the resulting decrease in jobs would 

lead to a reduction in the Nation’s State income tax withholdings (see Table 4.7-23). 
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The Nation has historically made payments to the New York State Police and the New 

York Racing and Wagering Board. In FY 2005, the Nation paid $2.2 million and $2.8 

million to the New York State Police and to the New York Racing and Wagering Board, 

respectively, in exchange for their services related to the Turning Stone Resort & Casino. 

For example, the State police conduct background investigations on employees and 

provide law enforcement on the gaming floor; and the Racing and Wagering Board 

conducts regular compliance examinations for the Casino. Under Alternatives A through 

F, it is expected that the Nation would still be making these payments in 2011 (see Table 

4.7-23). If the Casino closes under Alternative G (CC-AEC), these payments would cease 

as these services would no longer be needed. 

Payments by Others to the State. Since the opening of the Turning Stone Resort & 

Casino, the Nation’s operations indirectly supported many jobs at other Madison County, 

Oneida County, and New York State businesses as well as State tax revenues. As 

explained in Section 3.7.6, the Nation generates economic activity through its spending, its 

employees’ spending, spending by its visitors, and in some cases, spending by Nation 

employee household members (tertiary effect) based on the multiplier effect (i.e., every 

dollar spent locally is partly recycled, creating more spending, jobs, and tax revenues). 

Nation Spending and Nation Employee Spending 

Nation spending and Nation employee spending generated an estimated $7.3 million in 

State personal income and business sales taxes in FY 2005. Based on the expected increase 

in Nation jobs and sales in the next five years under Alternatives A, B, C and F, State tax 

revenues generated by Nation spending and Nation employee spending would increase to 

$7.7 million (See Table 4.7-23). If the Nation were to discontinue its operations on lands 

not conveyed into trust, State tax revenues would be lower under Alternatives D and E, 

$7.3 million and $6.3 million, respectively, and less than $0.2 million under Alternative G. 

Off-site Visitor Spending

Visitors to the Turning Stone Resort & Casino often spend money at other local 

businesses (hotels, restaurants, etc.) While the current effect of off-site visitor spending is 

not quantified, Section 3.7.6 states that if every out-of-region visitor in 2005 spent $5 at 

non-Nation local businesses, the total economic activity generated in Madison and Oneida 

Counties would be 206 jobs and $4.8 million in earnings. 

As the number of visitors is expected to increase to 5.56 million by the year 2011 as a 

result of continued operation of the Turning Stone Resort & Casino on lands conveyed 

into trust under Alternatives A through D and F, the tax revenues associated with the “offsite” visitor spending would likely also increase. Under Alternative E, it is unclear whether 

off-site visitor spending and the associated tax revenues would decrease or increase 

compared to the baseline. The number of Turning Stone Resort & Casino visitors would 

likely decrease if the Nation would no longer operate the golf courses, the lodge, and the 

event center. The off-site spending per visitor could potentially increase, as the Nation 
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would offer less accommodations to its visitors. If the Turning Stone Resort & Casino 

were to close under Alternative G (CC-AEC), tax revenues associated with the “off-site” 

visitor spending would be lost (see Table 4.7-23). 

Tertiary Effect 

As explained in Section 3.7.6.1, Nation employment provided the means for some longterm local residents to remain along with their families or households in Madison and 

Oneida County. These residents are sometimes part of families or households with more 

than one worker. The earnings of the second worker in the household are also partly 

spent at local businesses and generate jobs, earnings and taxes, which is the tertiary effect. 

Based on the expected job growth, the tertiary effect would likely be at or above baseline 

level by the year 2011 under Alternatives A, B, C, and F. The tertiary effect would likely 

be smaller under Alternatives D and E than in the baseline due to the job losses associated 

with these alternatives. Under Alternative G (the CC-AEC scenario), the Nation would no 

longer generate a tertiary effect. The employee households who stayed in (or came to) the 

region for their job at the Turning Stone Resort & Casino could choose to leave the region 

in pursuit of other employment opportunities. The household spending of laid-off 

employees who would remain in the region would no longer be attributable to the Nation. 
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Table 4.7-23 

Payments to the State, Alternatives A through G, 2011 (in $millions) 

Nation’s State Income 

Tax Withholdings 

Nation’s Payments to 

NYS Police and NYS 

Racing& Wagering 

Board 

State Tax on Multiplier 

Effect generated by 

Nation/Nation 

Employee Spending 

Alternative A 3.57 5.0 7.74 

Alternative B 3.57 5.0 7.74 

Alternative C 3.57 5.0 7.73 

Alternative D 3.33 5.0 7.28 

Alternative E 2.90 5.0 6.33 

Alternative F 3.57 5.0 7.72 

Alternative G $0.09 $0.0 $0.16 

Source: The Louis Berger Group, Inc., Oneida Nation, 2006. 

Payments by Others to Local Governments. Since the Turning Stone Resort & 

Casino opening, spending by the Nation and its employees also generated substantial local 

tax revenues. As explained in Section 3.7.6, spending by the Nation and its employees 

indirectly generated an estimated $1.16 million in sales tax revenues for Madison and 

Oneida Counties and the Study Area municipalities in 2005. 

Based on the Nation’s growth, an estimated $1.22 million of annual local sales tax 

revenues would be created by Nation employee spending by the year 2011 under 

Alternatives A, B, C and F (See Table 4.7-24). An increase in off-site visitor spending and 

the tertiary effect would also generate additional local sales tax revenues under these 

alternatives. 

Under Alternatives D, E, and G, local sales tax revenues indirectly generated by the Nation 

would decrease proportionally with the Nation’s economic activity. If the Nation 

Enterprises were to close (PTNP-F or CC), local sales tax revenues generated by Nation 

employee spending would decrease to almost zero. Local sales and hotel occupancy tax 

revenues associated with the “off-site” Turning Stone Resort & Casino visitor spending 

and tertiary effect would be lost. 

Nation employees paid an estimated $5.6 million in property taxes to local governments in 

FY 2005 (see Section 3.7.7.3). Under Alternatives A through C and F, these revenues 

would be maintained and could increase slightly because of modest in-migration 

associated with the Nation’s job growth in the next five years. Under Alternatives D and 

E, property tax payments by Nation employees could decrease as some of the laid-off 

employees may leave the region or may default on their property taxes. If the Nation 

Enterprises close under Alternative G (CC-AEC or PTNP-F), some of the laid-off 

employees would leave the region or default, reducing local government property tax 

revenues. If 10 percent of Nation employee households would leave the area, annual local 

property tax revenues would be reduced by $0.53 million. 
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Table 4.7-24 

Payments to Study Area Municipalities and Madison and Oneida County, 

Alternatives A through G, 2011(in $millions) 

Local Sales Tax on Multiplier Effect Generated by 

Nation Employee Spending 

Nation Employee Property 

Tax Payments 

Alternative A 1.22 5.96 

Alternative B 1.22 5.96 

Alternative C 1.22 5.95 

Alternative D 1.15 5.60 

Alternative E 1.00 4.81 

Alternative F 1.22 5.95 

Alternative G $0.03 $0.07 

Source: The Louis Berger Group, Inc., Oneida Nation, 2006 

Cost to Local Government. Section 3.7.9.4 presents an estimate of the share of local 

government service expenditures that were attributable to the Nation in the year 2005. 

The cost allocation methodology for the estimates is based on the number of public school 

students living on Nation lands, the total number of persons living on Nation lands, and, 

for some expenditure categories involving demands created by the Nation’s nonresidential 

activities, the Full-time Equivalent Population (FTEP). (The FTEP is a time-weighted 

measure of employment and population). A comparison of the Alternatives is presented in 

Table 4.7-25. 

In 2005, a total of $0.83 million was attributable to the Nation. Based on the expected 

Nation job growth and the planned Nation housing units that would be constructed on 

land conveyed into trust as a result of Alternatives A and B, the total cost attributable to 

the Nation is expected to increase to $1.04 million by the year 2011 (See Table 4.7-26). 

Under Alternatives C and F, the cost to local governments attributable to the Nation 

would be marginally less than under Alternatives A and B. The local government service 

(counties, municipalities and school districts) cost attributable to the Nation would be 

about $1.02 million under Alternative C and $1.04 million under Alternative F (See Tables 

4.7-27 and 4.7-28). 

Under Alternative D, the number of persons on Nation land likely would be lower, as the 

Nation may not build the 66 planned housing units. Furthermore, if the Nation were to 

discontinue its operations on Group 2 and 3 lands, there would be 30 Nation jobs lost. 

The decrease in the number of residents on Nation land would lead to a decrease in the 

cost to local governments. The decrease in Nation jobs would lead to a decrease in the 

costs attributable to the Nation to a total of $0.83 million (See Table 4.7-29). (However, 

this decrease may be partly offset by the increased costs caused by increasing levels of 
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unemployment or, if unemployment is persistent, other forms of social transfer or 

economic assistance payments). 

If the Nation housing units were not constructed and the Nation were to discontinue its 

operations on lands not conveyed into trust under Alternatives E and G, the cost to local 

governments attributable to the Nation would be $0.78 million and $0.48 million, 

respectively (See Tables 4.7-30 and 4.7-31). Major local layoffs that would occur when the 

Nation Enterprise close under Alternative G (CC-AEC) would likely increase local 

government spending for Medicaid and economic assistance programs. 

Furthermore, the increase in unemployment that would follow major job losses would lead 

to increased costs for State unemployment compensation benefits and could also lead to an 

increase in State Medicaid spending. More than 5,500 persons (employees and their 

dependents) are currently covered by the Nation employee health insurance program. 

Additionally, the loss of revenues of the Nation Enterprises would make it impossible for 

the Nation to continue its government programs and services for its members and for 

other Native Americans. In FY 2005, the Nation spent a total of $16.8 million on health 

insurance, educational programs, housing subsidies, and other programs. About 1,600 

individuals (members and their families) were covered by the Nation’s member health 

insurance program in 2005. The Nation’s inability to continue these services and 

payments would likely increase State and local expenditures on education, Medicaid and 

other programs as Nation members now would have to make demands on State and local 

government for these services. 
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Table 4.7-25 

Comparison of Alternatives – Summary of Nation’s Share of County and Municipal Spending, 2

County Municipality A B C D E 

Madison City of Oneida $51,747 $51,747 $51,055 $44,114 $40,777 $Madison Village of Canastota $19,236 $19,236 $19,188 $17,945 $15,568 $Madison Cazenovia $251 $251 $251 $236 $203 Madison Fenner $125 $125 $124 $117 $100 Madison Lenox $5,989 $5,989 $5,964 $5,550 $4,975 Madison Lincoln $2,040 $2,040 $2,034 $1,934 $1,792 Madison Smithfield $1,263 $1,263 $1,261 $1,185 $1,019 Madison Stockbridge $4,897 $4,897 $4,876 $4,545 $4,105 Madison Sullivan $785 $785 $774 $671 $651 

Subtotal - Madison $86,333 $86,333 $85,527 $76,297 $69,191 $

Oneida City of Sherrill $6,076 $6,076 $6,044 $5,554 $4,913 Oneida Village of Sylvan Beach $5,169 $5,169 $5,160 $4,850 $4,171 Oneida Village of Vernon $45 $45 $45 $42 $36 Oneida Augusta $0 $0 $0 $0 $0 Oneida Vernon $4,067 $4,067 $4,060 $3,817 $3,287 Oneida Verona $63,358 $63,358 $63,281 $60,497 $54,446 $

Subtotal - Oneida $78,714 $78,714 $78,590 $74,760 $66,853 $

Oneida County Total $352,654 $352,654 $351,658 $334,070 $307,777 $

Madison County Total $180,535 $180,535 $176,507 $139,795 $130,898 $

Total - County and Local $698,237 $698,237 $692,282 $624,922 $574,718 $

Total - School District $339,315 $339,315 $324,647 $206,869 $206,869 $

Total - All Jurisdictions $1,037,551 $1,037,551 $1,016,929 $831,791 $781,588 $1
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Table 4.7-26 

Alternatives A and B - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $5,866 $21,279 $276 $6,945 $6 $4,536 $4,536 Madison Village of Canastota $321 $762 $13 $15,436 $22 $171 $171 Madison Cazenovia $0 $0 $0 $250 $0 $0 $0 Madison Fenner $0 $0 $0 $125 $0 $0 $0 Madison Lenox $915 $269 $91 $3,596 $31 $152 $152 Madison Lincoln $582 $715 $45 $579 $0 $54 $54 Madison Smithfield $0 $0 $0 $1,202 $0 $0 $0 Madison Stockbridge $854 $246 $1 $3,261 $5 $177 $177 Madison Sullivan $199 $99 $16 $139 $0 $136 $136 

Subtotal – 

Madison $8,737 $23,370 $441 $31,532 $64 $5,228 $5,228 

Oneida City of Sherrill $623 $509 $0 $4,209 $0 $264 $264 Oneida Village of Sylvan Beach $0 $0 $0 $3,592 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $37 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $124 $46 $1 $3,891 $0 $2 $2 Oneida Verona $28,937 $574 $83 $33,161 $3 $21 $21 

Subtotal - Oneida $29,684 $1,129 $83 $44,890 $3 $287 $287 

Oneida County $62,904 $102,024 $62,904 $97,590 $14,057 $247 $754 $1

Madison County $19,601 $16,093 $19,601 $36,235 $59,239 $1,055 $10,941 $6

Total - County and Local $120,926 $142,616 $83,030 $210,246 $73,363 $6,817 $17,210 $7

School District: 

 Oneida $21 Canastota $1 Stockbridge $8 Sherrill $2

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $33

Total $120,926 $142,616 $83,030 $210,246 $73,363 $6,817 $17,210 $34

Source: New York State Office of the State Comptroller; The Louis Berger Group, Inc., 2006. 
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Table 4.7-27 

Alternative C - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $5,861 $21,259 $276 $6,934 $5 $4,305 $4,305 Madison Village of Canastota $321 $761 $13 $15,411 $21 $165 $165 Madison Cazenovia $0 $0 $0 $250 $0 $0 $0 Madison Fenner $0 $0 $0 $124 $0 $0 $0 Madison Lenox $914 $269 $91 $3,590 $30 $147 $147 Madison Lincoln $581 $714 $45 $578 $0 $52 $52 Madison Smithfield $0 $0 $0 $1,200 $0 $0 $0 Madison Stockbridge $854 $246 $1 $3,255 $5 $171 $171 Madison Sullivan $199 $99 $16 $139 $0 $131 $131 

Subtotal - 

Madison $8,731 $23,349 $441 $31,480 $61 $4,970 $4,970 

Oneida City of Sherrill $622 $508 $0 $4,202 $0 $254 $254 Oneida Village of Sylvan Beach $0 $0 $0 $3,587 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $37 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $124 $46 $1 $3,885 $0 $2 $2 Oneida Verona $28,917 $574 $83 $33,107 $3 $20 $20 

Subtotal - Oneida $29,663 $1,129 $83 $44,816 $3 $276 $276 

Oneida County $62,860 $101,953 $62,860 $97,430 $13,508 $237 $725 $1

Madison County $19,585 $16,080 $19,585 $36,175 $56,438 $1,005 $10,423 $6

Total - County and Local $120,839 $142,511 $82,970 $209,901 $70,010 $6,488 $16,394 $7

School District: 

 Oneida $20 Canastota $1 Stockbridge $8 Sherrill $2

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $32

Total $120,839 $142,511 $82,970 $209,901 $70,010 $6,488 $16,394 $33
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Table 4.7-28 

Alternative F - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $5,861 $21,259 $276 $6,934 $6 $4,536 $4,536 Madison Village of Canastota $321 $761 $13 $15,411 $22 $171 $171 Madison Cazenovia $0 $0 $0 $250 $0 $0 $0 Madison Fenner $0 $0 $0 $124 $0 $0 $0 Madison Lenox $914 $269 $91 $3,590 $31 $152 $152 Madison Lincoln $581 $714 $45 $578 $0 $54 $54 Madison Smithfield $0 $0 $0 $1,200 $0 $0 $0 Madison Stockbridge $854 $246 $1 $3,255 $5 $177 $177 Madison Sullivan $199 $99 $16 $139 $0 $136 $136 

Subtotal - 

Madison $8,731 $23,349 $441 $31,480 $64 $5,228 $5,228 

Oneida City of Sherrill $622 $508 $0 $4,202 $0 $264 $264 Oneida Village of Sylvan Beach $0 $0 $0 $3,587 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $37 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $124 $46 $1 $3,885 $0 $2 $2 Oneida Verona $28,917 $574 $83 $33,107 $3 $21 $21 

Subtotal - Oneida $29,663 $1,129 $83 $44,816 $3 $287 $287 

Oneida County $62,860 $101,953 $62,860 $97,430 $14,057 $247 $754 $1Madison County $19,585 $16,080 $19,585 $36,175 $59,239 $1,055 $10,941 $6

Total - County and Local $120,839 $142,511 $82,970 $209,901 $73,363 $6,817 $17,210 $7

School District:  Oneida $21 Canastota $1 Stockbridge $8 Sherrill $2

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $33

Total $120,839 $142,511 $82,970 $209,901 $73,363 $6,817 $17,210 $34
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Table 4.7-29 

Alternative D - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $5,663 $20,540 $267 $6,517 $3 $2,373 $2,373 Madison Village of Canastota $312 $740 $13 $14,484 $14 $109 $109 Madison Cazenovia $0 $0 $0 $235 $0 $0 $0 Madison Fenner $0 $0 $0 $117 $0 $0 $0 Madison Lenox $903 $266 $89 $3,374 $20 $99 $99 Madison Lincoln $568 $698 $44 $543 $0 $36 $36 Madison Smithfield $0 $0 $0 $1,127 $0 $0 $0 Madison Stockbridge $854 $246 $1 $3,060 $3 $116 $116 Madison Sullivan $199 $99 $16 $130 $0 $90 $90 

Subtotal - 

Madison $8,499 $22,589 $429 $29,587 $40 $2,823 $2,823 

Oneida City of Sherrill $604 $493 $0 $3,949 $0 $167 $167 Oneida Village of Sylvan Beach $0 $0 $0 $3,371 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $35 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $118 $44 $1 $3,651 $0 $1 $1 Oneida Verona $28,182 $559 $80 $31,116 $2 $14 $14 

Subtotal - Oneida $28,904 $1,097 $81 $42,121 $2 $182 $182 

Oneida County $61,257 $99,352 $61,257 $91,570 $8,930 $157 $479 $

Madison County $19,005 $15,604 $19,005 $34,000 $33,097 $589 $6,112 $

Total - County and Local $117,665 $138,642 $80,773 $197,277 $42,069 $3,751 $9,597 $

School District: 

 Oneida $1 Canastota  Stockbridge $5 Sherrill 

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $2

Total $117,665 $138,642 $80,773 $197,277 $42,069 $3,751 $9,597 $2
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Table 4.7-30 

Alternative E - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $5,229 $18,968 $246 $5,605 $3 $2,373 $2,373 Madison Village of Canastota $292 $692 $12 $12,457 $14 $109 $109 Madison Cazenovia $0 $0 $0 $202 $0 $0 $0 Madison Fenner $0 $0 $0 $100 $0 $0 $0 Madison Lenox $879 $259 $87 $2,902 $20 $99 $99 Madison Lincoln $540 $663 $41 $467 $0 $36 $36 Madison Smithfield $0 $0 $0 $970 $0 $0 $0 Madison Stockbridge $854 $246 $1 $2,631 $3 $116 $116 Madison Sullivan $199 $99 $16 $112 $0 $90 $90 

Subtotal - 

Madison $7,993 $20,927 $403 $25,446 $40 $2,823 $2,823 

Oneida City of Sherrill $564 $460 $0 $3,396 $0 $167 $167 Oneida Village of Sylvan Beach $0 $0 $0 $2,899 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $30 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $105 $39 $1 $3,140 $0 $1 $1 Oneida Verona $26,574 $528 $76 $26,761 $2 $14 $14 

Subtotal - Oneida $27,243 $1,027 $77 $36,226 $2 $182 $182 

Oneida County $57,749 $93,663 $57,749 $78,754 $8,930 $157 $479 $

Madison County $17,738 $14,563 $17,738 $29,241 $33,097 $589 $6,112 $

Total - County and Local $110,723 $130,180 $75,967 $169,667 $42,069 $3,751 $9,597 $

School District: 

 Oneida $1 Canastota  Stockbridge $5 Sherrill 

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $2

Total $110,723 $130,180 $75,967 $169,667 $42,069 $3,751 $9,597 $2
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Table 4.7-31 

Alternative G - Summary of Nation's Share of County and Municipal Spending, 2011 

County Municipality General Government Public Safety Health Transportation Economic Assistance Culture & Recreation Home Community Edu

Madison City of Oneida $2,603 $9,442 $123 $79 $3 $2,373 $2,373 Madison Village of Canastota $170 $404 $7 $175 $14 $109 $109 Madison Cazenovia $0 $0 $0 $3 $0 $0 $0 Madison Fenner $0 $0 $0 $1 $0 $0 $0 Madison Lenox $731 $215 $72 $41 $20 $99 $99 Madison Lincoln $366 $450 $28 $7 $0 $36 $36 Madison Smithfield $0 $0 $0 $14 $0 $0 $0 Madison Stockbridge $854 $246 $1 $37 $3 $116 $116 Madison Sullivan $199 $99 $16 $2 $0 $90 $90 

Subtotal - 

Madison $4,924 $10,857 $247 $357 $40 $2,823 $2,823 

Oneida City of Sherrill $321 $262 $0 $48 $0 $167 $167 Oneida Village of Sylvan Beach $0 $0 $0 $41 $0 $0 $0 Oneida Village of Vernon $0 $0 $0 $0 $0 $0 $0 Oneida Augusta $0 $0 $0 $0 $0 $0 $0 Oneida Vernon $25 $9 $0 $44 $0 $1 $1 Oneida Verona $16,835 $334 $48 $376 $2 $14 $14 

Subtotal - Oneida $17,181 $605 $48 $509 $2 $182 $182 

Oneida County $36,498 $59,195 $36,498 $1,106 $8,930 $157 $479 $

Madison County $10,057 $8,257 $10,057 $411 $33,097 $589 $6,112 $

Total - County and Local $68,660 $78,915 $46,850 $2,383 $42,069 $3,751 $9,597 $

School District: 

 Oneida $1 Canastota  Stockbridge $5 Sherrill 

Subtotal - Schools $0 $0 $0 $0 $0 $0 $0 $2

Total $68,660 $78,915 $46,850 $2,383 $42,069 $3,751 $9,597 $2
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Summary 

The Proposed Action and other alternatives have several indirect fiscal effects. The 

decrease in the Nation’s employment that may occur if not all Group 1, 2, and 3 lands are 

conveyed into trust would decrease Nation employee State income tax withholdings, 

Nation spending and Nation employee spending, which would in turn adversely affect 

State income and sales tax revenues and local sales tax revenues. Additionally, major 

Nation job losses may also lead to a reduction in local property tax revenues, as laid-off 

employees may leave the region or default on their taxes. 

At the same time, the decrease in the Nation’s employment and the number of housing 

units on Nation lands would decrease the local government service costs attributable to 

the Nation. These local government cost-savings would be – wholly or partly – offset by 

the costs associated with the increase in unemployment and other social services that 

would accompany the layoff of Nation employees. Major layoffs would not only create 

costs on health and economic assistance for local governments but would also increase 

State expenditures on Medicaid and unemployment insurance benefits. Closing down the 

Casino would end the Nation’s payments to the New York State Police and the New York 

Racing & Wagering Board, as their services would no longer be needed. 

Table 4.7.32 summarizes the indirect effects in terms of the change in revenues and 

expenditures between 2005 and 2011 and compares these effect by alternative. 
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Table 4.7-32 

Indirect Effect: Change in State Revenues and Local Government Revenues and Expenditures by 

2005 to 2011 (in $millions) 

A B C D E 

Nation’s State Income Tax Withholdings 0.19 0.19 0.18 -0.06 -0.48 Nation’s Payments to NYS Police and NYS Racing& Wagering Board 0.00 0.00 0.00 0.00 0.00 State Tax on Multiplier Effect of Nation/Nation Employee Spending 0.41 0.41 0.40 -0.05 -1.00 Nation Employee Property Tax Payments 0.33 0.33 0.32 -0.04 -0.82 Local Sales Tax on Multiplier Effect of Nation Employee Spending 0.07 0.07 0.06 -0.01 -0.16 Local Government Spending Attributable to the Nation $0.21 $0.21 $0.19 $0.00 -$0.05 

Note: The indirect effects are calculated by comparing the Alternatives with the 2005 baseline. 

Source: The Louis Berger Group, Inc, 2006 
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4.7.5.3 Cumulative Effects 

Alternatives A, B, C, and F 

Since the beginning of the Nation’s enterprise operations, the Nation has withheld State 

income taxes from the wages and salaries of non-Native American employees. As 

described in Section 3.7.7.2, in FY 2005 the Nation withheld and remitted $3.4 million in 

State income taxes from its payroll. Because of the increase in jobs between 2006 and 

2011, these State income tax revenues are expected to increase. If the average income tax 

per job would remain constant, a total of $3.6 million in State income taxes would be 

withheld from the Nation’s payroll in the year 2011 under Alternatives A, B, C and F. 

The State never collected excise taxes on fuel or cigarettes from the Nation or its wholesale 

suppliers. Under Alternatives A, B, C and F, the State would not collect excise taxes from 

wholesalers that supply fuel and cigarettes to the SavOn gas station and convenience stores 

and the Nation would not collect State or local sales taxes on its retail sales. 

The Nation has historically made payments to the New York State Police and the New 

York Racing and Wagering Board. In FY 2005, the Nation paid $2.2 million and $2.8 

million to the New York State Police and to the New York Racing and Wagering Board, 

respectively, in exchange for their services related to the Turning Stone Resort & Casino. 

For example, the State police conduct background investigations on employees and 

provide law enforcement on the gaming floor; and the Racing and Wagering Board 

conducts regular compliance examinations for the Casino. Under Alternatives A, B, C, and 

F, the Nation would continue to pay the New York State Police and the New York Racing 

and Wagering Board for their services. 

Since the opening of the Turning Stone Resort & Casino, the Nation’s operations 

indirectly supported many jobs and sales at other Madison County, Oneida County, and 

New York State businesses and generated tax revenues. As explained in Section 3.7.6, the 

Nation generates economic activity through its spending, its employees’ spending, 

spending by its visitors, and in some cases, spending by Nation employee household 

members (tertiary effect) based on the multiplier effect (i.e., every dollar spent locally is 

partly recycled, creating more spending, jobs, and tax revenues). 

Nation and Nation employee spending generated an estimated $7.3 million in State 

personal income, corporate income and State sales taxes in FY2005. Based on the 

expected increase in Nation jobs and sales between 2006 and 2011 relative to the baseline, 

State tax revenues generated by Nation and Nation employee spending would increase to 

$7.7 million. 

Visitors to the Turning Stone Resort & Casino often spend money at other local 

businesses (hotels, restaurants, etc.). While the current effect of off-site visitor spending is 
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not quantified, Section 3.7.6 states that if every out-of-region visitor in 2005 spent $5 at 

non-Nation local businesses, the total economic activity generated in Madison and Oneida 

Counties would be 206 jobs and $4.8 million in earnings. As the number of visitors is 

expected to increase to 5.56 million in 2011, the tax revenues associated with the “offsite” visitor spending would likely also increase under Alternatives A, B, C and F. 

As explained in Section 3.7.6.1, employment with the Nation allowed some long-term 

local residents to remain in Madison and Oneida County. These residents are sometimes 

part of households with more than one worker. The earnings of the second worker in the 

household are also partly spent at local businesses and generate jobs, earnings and taxes, 

which is the tertiary effect. Based on the expected job growth, the tertiary effect would 

likely be at or above baseline level by 2011 under the subject alternatives. 

Since the Turning Stone Resort & Casino opening, spending by the Nation and its 

employees also generated substantial local tax revenues. As explained in Section 3.7.7.3, 

the spending by the Nation and its employees indirectly generated an estimated $1.16 

million in sales tax revenues for Madison and Oneida Counties and the Study Area 

municipalities. Based on the Nation’s growth, an estimated $1.22 million of local sales 

tax revenues would be created by the Nation and Nation employee spending by 2011 

under Alternatives A, B, C and F. An increase in off-site visitor spending and the tertiary 

effect would also generate additional local sales tax revenues. 

Nation employees paid an estimated $5.6 million in property taxes to local governments in 

FY 2005 (see Section 3.7.7.3). By 2011, these revenues would be maintained and could 

increase slightly because of the Nation’s job growth under Alternatives A, B, C and F. 

The lands that would be conveyed into trust would be permanently exempt from local 

property taxes. As presented in Section 3.7.9.2, the total assessed value of the Nation’s 

land accounts for only a fraction of the total exempt value in the counties and Study Area 

municipalities. Figure 4.7-1 compares the latest available taxable assessed valuation in the 

Study Area municipalities as reported by the New York State Office of Real Property 

Services (FY 2004 tax rolls) with the taxable assessed valuation assigned the Nation. It 

examines the Nation’s share of total tax lots and the Nation’s share of total taxable 

assessed valuation and illustrates the relative magnitude of Nation’s land holdings. It 

provides additional context for consideration of the fiscal consequences of placing lands 

into trust by municipality. The taxable assessed valuation of the Casino tax lot is not 

shown, as its valuation is being contested. The taxable assessed valuation for the Casino 

tax lot is $362 million – an amount for a single tax lot that exceeds the prior year’s 

municipal taxable assessed value for the entire Town of Verona’s 3,300 tax lots. Figure 

4.7-1 illustrates the taxable assessed valuation in the period prior to the change in 

valuation. 
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There is no information available about tax exemptions that would be extended to other 

property owners in the future. 

In 2005, the cost to Madison County and Oneida County, the study area municipalities 

and school districts, associated with Nation land totaled $0.83 million, as explained in 

Section 3.7. The Nation plans to build 66 additional homeownership units in the next five 

years. Employment is expected to grow to 4,882 by the year 2011. Based on these 

additional persons, the total cost to county and local governments and school districts 

attributable to the Nation would be $1.04 million in 2011 under Alternatives A, B and F. 

As a result of Alternative C, only 59 of the planned Nation housing units may be 

constructed and Nation employment would grow slightly less, leading to a cost to local 

governments attributable to the Nation of $1.02 million. 

The commercial developments proposed by private developers in Madison and Oneida 

County presented in Section 4.7.1.3 and the proposed residential developments that are 

discussed in Section 4.7.2.3 would also generate increased revenues, as well as costs for 

local governments. 
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0.1%

0.1%

0.1%

0.3%

0.1%

0.5%

0.1%

0.5%

0.9%

0.8%

0.7%

0.9%

1.0%

4.6%

6.8%

0.0%

0.0%

0.0%

1.0%

0.1%

0.4%

0.5%

0.7%

1.1%

1.2%

1.3%

2.1%

5.4%

7.6%

18.1%

0% 2% 4% 6% 8% 10% 12% 14% 16% 18%

Town of Fenner

Town of Cazenovia

Town of Sullivan

Village of Canastota

Village of Sylvan Beach

Town of Smithfield

Village of Vernon

Town of Augusta

City of Sherrill

Town of Lincoln 

Town of Lenox

Town of Vernon

City of Oneida

Town of Stockbridge

Town of Verona

Nation's Share of Municipality Assessed Valuation

Parcels

Note: Does not Include CasinoTax because the assessed value is currently contested by the Nation. 

Figure 4-1 

Nation’s Share of Tax Lots and Taxable Assessed Valuation by Municipality 

 
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Alternatives D, E and G 

The reduction in the Nation’s economic operations would lead to a reduction in State sales 

and property and corporate income tax revenues and in local property and sales tax 

revenues as described above. 

It is uncertain whether the local governments would receive property tax revenues on the 

lands not conveyed into trust. The foreclosure and alienation of land process could be 

undermined by the large amount of land involved and the fact that much land is already 

available in the area. Further, buyers may be wary of the quality and security of title in 

Nation land. Finally, the buyer would have to be a non-tax-exempt entity. The sale of the 

Turning Stone Resort & Casino complex would be particularly unlikely, as only the 

Nation can operate the property as a casino, and the facility’s high maintenance costs 

would likely make other uses financially infeasible. The resort’s component businesses, 

such as the golf courses and the luxury lodge hotel, currently generate an operating loss 

and would likely not survive without the casino. 

The increase in unemployment that would result from large reductions in Nation 

employment would lead to more government cost (health care, economic assistance, 

unemployment benefits). Furthermore, the out-migration associated with major job losses, 

would result in an increase in housing vacancy rates, decreased property values, and lower 

property tax revenues. 

If the 66 Nation member housing units were not to be constructed and the Nation were to 

cease operations on the lands not conveyed into trust, the cost to local governments 

attributable to the Nation would decrease significantly, as presented in Section 4.7.5.2. As 

discussed above, the cost associated with increased unemployment would, at least in part, 

offset these savings. Especially in the case of major layoffs, local government would face 

additional expenditures for health and economic assistance and perhaps for public safety. 

4.7.6 Social Conditions 

Alternatives A through F are considered to have the same effects with respect to social 

problems. The six alternatives are considered similar for analysis purposes because they 

each allow for the continuation of gaming facilities at the Turning Stone Resort & Casino. 

The social conditions assessed in this section consider the findings of research on the 

effects of gaming facilities along with the conditions and trend data compiled in the 

baseline sections that are associated with the Turning Stone Resort & Casino. 

4.7.6.1 Direct Effects 

Alternatives A through G 

The conveyance of lands into trust is an action where title to the Nation’s existing lands 

would be transferred to the Federal government with no change in their uses. Because 

neither the proposed action nor any of the alternatives involve ground disturbance of the 
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environment or change in land use, there are not anticipated to be direct effects related to 

social conditions. 

4.7.6.2 Indirect Effects 

Alternatives A through F 

Problem Gambling

According to a National Opinion Research Center at the University of Chicago study, 

problem gamblers account for 1.2 percent of the population and the percentage of 

problem gamblers increases 1.1 percentage points within 50 miles of a casino. As the 

Turning Stone Resort & Casino is a relatively mature facility with more than 15 years of 

operations, under Alternatives A through F, it is expected that the percentage of problem 

gamblers in the area would remain steady. 

The absolute number of problem gamblers in the area may experience a minimal increase 

as the number of future visitor’s increases. As of March 2006, the number of patrons 

voluntarily or involuntarily on the Turning Stone Resort & Casinos listed as excluded 

from the gaming floor was 898 people. This is an increase from March 2003 of 562 

people. The increase in the number of people excluded from the gaming floor appears to 

correspond with an increase in visitor patronage during that same time period and reflects 

the cumulative total of such identified persons attributable to the enforcement of the 

facility’s policies and practices for addressing this issue. 

None of the alternatives are expected to generate a large increase in Turning Stone Resort 

& Casino visitors. Additionally, the residential population within 50 miles of gaming 

facilities is expected to increase minimally. As a result, the increase in problem gamblers is 

expected to be small. 

Bankruptcy

Based on an analysis of local personal bankruptcy rates, there is scant evidence of a direct 

relationship between personal bankruptcy and the presence of the Turning Stone Resort & 

Casino. Personal bankruptcy rates in the study area trended closely with State and 

national trends. It is expected that future personal bankruptcy rates would continue to 

follow State and national trends and that the continued presence of the Turning Stone 

Resort & Casino would not create additional indirect effects beyond the levels and 

patterns already exhibited in the local area. 

Crime

Based on an analysis of local crime rates, no relationship between crime and the presence 

of the Turning Stone Resort & Casino could be determined. National studies on the 

relationship between crime and casinos have found that the presence of a casino may 

increase crime. According to Grinols and Mustard’s 2005 study, crime does not increase 

in an area until three years after the casino opening. The Turning Stone Resort & Casino 
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has been in operation for sixteen years and any crime effects would begin to appear in 

current crime statistics. If the Turning Stone Resort & Casino is partially responsible for 

generating crime, then it is expected that crime levels would not be affected by the 

Proposed Action because the Proposed Action is not expected to increase the patronage to 

the gaming facilities. 

Suicide

National studies have found that there is a higher suicide rate among problem gamblers, 

though the range and complexity of issues surrounding suicide makes it difficult to 

determine causality. Local statistics for suicide rates in Madison and Oneida County are 

similar to New York State (non-New York City) though the county rates have fluctuated 

above and below the State rate. No relationship between the opening and operation of 

Turning Stone Resort & Casino and the suicide rate can be determined. Therefore, the 

continued operation of the Turning Stone Resort & Casino is determined not to have an 

indirect affect on suicide. 

Alcoholism

The Turning Stone Resort & Casino does not serve or sell alcoholic beverages. As a 

result, there are no indirect effects associated with alcoholism. 

Alternative G 

Problem Gambling

According to a National Opinion Research Center at the University of Chicago report, the 

percentage of problem gamblers in the general population is 1.2 percent. Without the 

presence of the Turning Stone Resort & Casino, the percentage of problem gamblers in the 

area may be reduced, or those with a gambling addiction may choose to find other outlets 

to continue gambling (e.g., Internet gambling, increased travel to more distant casino 

facilities). If the Turning Stone Resort & Casino closes, the services currently offered to 

problem gamblers by the Nation would no longer be available to those with a gambling 

addiction that are seeking counseling assistance. These services include referral to 

professional counselors at Human Technologies Corporation which is a locally-based 

organization that provides counseling and educational services in Central New York. 

Bankruptcy

The closure of the Turning Stone Resort & Casino would lead to a higher levels of 

unemployed persons in the area and, based on historic rates of job formation, the potential 

for persistent unemployment. As noted in the baseline section, three major contributors to 

the national increase in bankruptcy filings are 1) higher levels of debt relative to income; 

2) increased access to credit cards and consumer credit; and 3) reduced social stigma of 

declaring bankruptcy. An increase in persistent unemployment may lead to higher levels 

of personal debt relative to income and as a result the area may experience an increase in 

bankruptcy filings. 
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Crime

As previously noted, the closure of the Turning Stone Resort & Casino would likely lead 

to a higher unemployment rate in the area if those displaced elect to remain in the region 

and in the reported labor force or it may create the conditions for higher levels of outmigration and lower overall population levels for those unable to find suitable 

employment. In either case, poor economic conditions can cause an increase in crime. An 

increase in unemployment in the area can lead to increased criminal activity. 

Suicide

There are no indirect effects associated with suicide. 

Alcoholism

There are no indirect effects associated with alcoholism. 

4.7.6.3 Cumulative Effects 

Alternatives A through F 

Problem Gambling

Increasingly, there are other forms of gambling besides the gaming floor of the Turning 

Stone Resort & Casino available to local residents and New York State residents. These 

facilities include off track betting, lottery, casinos operated by other Indian nations, and 

Internet gambling. Specifically, the prevalence of Internet gambling needs to be taken into 

account. Internet gambling is a relatively new phenomenon and any person with an 

Internet connection has easy access to gambling in his or her own house. As a result, the 

presence of gaming facilities within a 50 mile radius may no longer have as strong an 

influence on the prevalence of problem gambling as it did in 1999 when the National 

Opinion Research Center at the University of Chicago study was conducted. 

Bankruptcy

The personal bankruptcy rate patterns reported in the baseline conditions are a reflection 

of the changing financial circumstances of persons reported as living in the region over 

time. The rising number and fluctuations of personal bankruptcies for all reporting 

regions (i.e., nation, State, and subject counties) can be attributed to changing personal or 

family circumstances related to health, marriage and divorce, aging, job loss and migration 

as well as larger structural economic and regulatory factors (e.g., legal definition and 

consequences of bankruptcies, proliferation of high-interest rate credit, etc.). Enmeshed in 

these patterns are individuals who participate in all forms of gambling including but not 

limited to gambling operations at the Turning Stone Resort & Casino. There was scant 

evidence in the benchmarking of the area of anomalous patterns in personal bankruptcy 

rates for the region. 
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Crime

The crime rate patterns reported in the baseline conditions consider trends in the patterns 

of crime over the time frame that the Turning Stone Resort & Casino has been in 

operation. Crime rates are in part a reflection of data collection and reporting procedures 

for individual jurisdiction and enmeshed in the reported data are incidents that could be 

considered a consequence of gaming along with a much larger group of incidents 

attributable to work, living and shopping activities outside the boundaries of the Turning 

Stone Resort & Casino. There was no evidence in the benchmarking of the area of 

anomalous patterns in crime rates for the region that could be determined to be directly 

attributable to the opening of Turning Stone Resort & Casino and subsequent growth of 

its gaming and other resort activities. If the Turning Stone Resort & Casino is partially 

responsible for generating crime, then it is expected that crime levels would continue to 

remain at current levels since patronage to the gaming facilities is not expected to increase. 

Suicide

There are no cumulative effects associated with suicide. 

Alcoholism

There are no cumulative effects associated with alcoholism. 

Alternative G 

Problem Gambling

According to Human Technologies, an average of 179 people a year seeks their services 

for problem gambling counseling. Of those whom Human Technologies counsels, 45 

percent trace their addiction to the lottery, Internet gambling, horse track racing, or sports 

betting. The remaining 55 percent are casino gamblers. Those who have an addiction to 

casino gambling, in the absence of a casino, may shift their addiction to other forms of 

gambling. As a result, the number of problem gamblers may not decrease or only decrease 

slightly. 

Bankruptcy

Under Alternative G, adverse indirect effects attributable to the closure of the Turning 

Stone Resort & Casino may lead to personal bankruptcies attributable to a loss of jobs, 

rising levels of unemployment and a potential increase in debt relative to income levels. 

Cumulative effects are more likely to occur in an economic environment without 

significant additional levels of replacement job growth for the persons and occupations 

currently employed at Turning Stone Resort & Casino or sources of replacement demand 

for goods and services for the chain of vendors and suppliers economically linked for the 

Turning Stone Resort & Casino. 
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Crime

Under Alternative G, adverse cumulative effects are attributable to the indirect effects to 

the closure of the Turning Stone Resort & Casino, such as worsening economic 

conditions. These adverse cumulative effects are more likely to occur in an economic 

environment without significant additional levels of replacement job growth for the 

persons and occupations currently employed at Turning Stone Resort & Casino or sources 

of replacement demand for goods and services for the chain of vendors and suppliers 

economically linked for the Turning Stone Resort & Casino. 

Suicide

There are no cumulative effects associated with suicide. 

Alcoholism

There are no cumulative effects associated with alcoholism. 

4.7.7 Lifestyle and Cultural Values 

Significance Criteria 

This section specifically addresses the effects to the lifestyle and cultural values of the 

Nation as they relate to uses and importance of the lands proposed for conveyance into 

trust. Other sections of the document (Sections 4.7.1 Economic Effects through 4.7.6 

Social Conditions and Section 4.8 Community Infrastructure) address the broader 

socioeconomic context and community character of the surrounding towns, counties and 

populations contained within those lands. 

For the purposes of defining whether the proposed action or the alternatives, including No 

Action (collectively referred to as the action), have a potentially significant adverse effect 

to lifestyle and cultural values of the Nation, the following are considered: 

Whether the action is likely to directly, indirectly or cumulatively: 

• Adversely affect the ability of the Nation as a federally recognized Indian tribe to 

pursue and preserve their cultural, social and religious practices and traditions, and 

other aspects of their lifeways, for current and future generations on lands 

considered to be within their reservation and aboriginal homeland; 

Overview of Oneida Lifestyle and Cultural Values 

For more than 15 years, the Nation has made significant strides to restore and preserve the 

culture and unique identity of the Oneida people. This includes implementing a number of 

projects specifically focused on the reclamation and teachings of their indigenous history, 

culture, language, traditions and ceremonies. Each of these cultural and lifestyle attributes 

is a critical component of Oneida identity, providing meaning for Nation members as to 

what it entails to be an Oneidan as they strive to preserve their culture and community. 
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Some of the more notable Nation projects in this regard include: 

• The Language Project; 

• The Oral History Project; 

• The Treaties Project, and; 

• The Nutrition Project (focused on the Oneida food staples of white corn, beans 

and squash...the Three Sisters). 

These projects are all important, proactive steps to achieve the Nation’s long range goals 

of reclaiming, teaching and preserving Oneida heritage and traditions for future 

generations of Nation members. This stewardship role for the Nation is of paramount 

importance to all Oneida. Until the Nation implemented the language project in particular, 

the unique Oneida language was almost gone within their community. The Oneida Elders 

Oral History Project was devised to gather stories and other information on the past and 

provide a forum for listening to the elders’ perspective on the future. Elders from each of 

the Nation’s clans (Bear, Turtle, and Wolf) were interviewed and their oral histories and 

stories captured. 

The Nation maintains a Cultural Resources Department and a Living History Department 

(Parcel 246, Group 2), which preserves Oneida culture through reenactments of traditional 

practices and ceremonies for both Nation and non-Nation members. The Shako: wi 

Cultural Center (Parcel 3, Group 2) contains examples of Nation’s arts and crafts, as well 

as exhibits that display aspects of Oneida culture and history. The Center is also used by 

Nation members for gatherings and presentations celebrating cultural traditions and 

important events. The Nation constructed The Ray Elm Children & Elders Center (Parcels 

4 and 5, Group 2); a facility where cultural events and exchanges take place, focusing on 

language, tradition and legend. The Nation constructed the Village of the White Pines 

(Parcels 4 and 5, Group 2), a residential development where some Nation members live as 

a community. The Nation publishes Indian Country Today, a leading American Indian 

newspaper dedicated to communicating lifestyle, culture, health and other information 

important to the Native American. In addition, the Nation operates Four Directions 

Productions (Parcel 13, Group 2), a video and audio production studio which, among 

many things, produces Native American focused film and television projects. There are 

also Festival Sites (Parcels 75 and 76, Group 2), special plots used for growing traditional 

Oneida crops (Parcels 133 and 211, Group 3), and a site for black ash reforestation efforts 

(Parcel 286, Group 2). There are no lands supporting cultural and lifestyle activities in 

Group 1 (refer to Table 3.7.11). 

The Nation has also been active in reconstituting significant cultural assets and materials 

representative of their culture, traditions and Haudenosaunee lifeways. To this end, the 

Nation has purchased lands containing protohistoric Oneida camp sites, village sites, and 
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burial grounds, as well as collection of Native American artifacts. They have amassed a 

collection of nearly 700 pieces of Iroquois beadwork along with basketry, traditional 

regalia and other culturally significant items and artifacts that reflects traditional Oneida 

lifestyles and practices. Many items have had to be purchased through private collectors, 

antique dealers, or at auction. To the Oneida Nation, these collections represent a 

tangible connection to the past and a present day voice to ensure their story is told to 

future generations. All these activities are part of what the Oneida call “Securing the 

Circle” unto the seventh generation to the future and reflect the importance of heritage 

stewardship in their world view. 

4.7.7.1 Direct Effects 

The success of Nation members has enabled them to strengthen their culture and 

community bonds by the acquisition of lands considered part of its reservation and 

aboriginal homeland. Trust action alternatives (e.g., Alternatives A, B, C and F) that 

ensure the Nation’s rights for self-determination, self-sufficiency and self-governance on 

these lands would have a beneficial direct effect to the Nation as they support the very 

basis of the purpose and need. The federal trust status provided to lands conveyed into 

trust ensures that lands are protected from future alienation. The Nation seeks a secure 

land base (free from risks of foreclosure or alienation) upon which to express and secure 

their heritage unto the seventh generation. The projects and programs implemented by the 

Nation, focusing on culture, language, ceremonies and community are critical and 

necessary to the Nation to retain the unique Oneidan lifestyle attributes, cultural values, 

and world view. 

Potential direct effects to lifestyle and cultural values among the alternatives reflect a 

scaling in the intensity of effects depending upon whether lands are conveyed into trust or 

not and what cultural activities these lands support. For the lands conveyed into trust, 

differences among alternatives relate also to the associated cultural assets associated with 

the parcels involved or the services supported. 

Alternative A. Aall 17,370 acres of land in Groups 1, 2 and 3 would be conveyed into 

trust. Those lands containing cultural, historical, religious or archaeological resources 

would be provided protection under ARPA and NAGPRA. This would have a direct 

beneficial effect to the Nation and their culture. Lands used for cultural activities in 

Alternative A include the Shako: wi Cultural Center (Parcel 3, Group 2), the Ray Elm 

Children & Elders Center (Parcels 4 and 5, Group 2) the Village of the White Pines 

(Parcels 4 and 5, Group 2), the Festival Sites (Parcels 75 and 76, Group 2), plots used for 

growing Oneida crops (Parcels 133 and 211, Group 3) and harvesting of black ash (Parcel 

286, Group 2). Additional parcels containing either enterprises or cultural service 

departments (Four Directions Productions, Parcel 13, Group 2; Cultural Resources 

Department and a Living History Department, Parcel 246, Group 2) are also 
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accommodated by this alternative. Further, the Proposed Action would secure a land 

base within their reservation and aboriginal homeland. The Proposed Action would 

support the Federal Government’s trust policy to assist the Oneida Nation Indian tribes to 

preserving traditional culture and lifeways on native lands. 

Alternative B. An additional 17,630 acres of land could be conveyed into trust over time 

resulting in a total trust land area of 35,000 acres. Alternative B would involve the same 

parcels supporting cultural, social and religious practices and traditions as Alternative A. 

Alternative B from the standpoint of the Nation could be viewed as the most preferable 

alternative since they would be afforded a larger land base within their reservation to 

practice traditional lifestyle activities and secure land for the “seventh generation”. As 

described for cultural, historic, archaeological and religious properties and assets, it is 

reasonable to assume that assets important to the Nation could be located on some of the 

future properties comprising this alternative. These properties would be acquired into 

trust at some point. Once in trust, these cultural assets would receive the additional 

federal protection. 

Alternative C. Conveying these Group 1 and 2 lands into trust would have a direct 

beneficial effect to the Nation and on their culture. Some Parcels located in Group 3 

(Parcels 133 and 211) supporting cultural gardening and crop activities would not be 

conveyed into trust. These include plots used for growing traditional Oneida staple foods 

such as white corn, beans, squash, tobacco, and pumpkin. These two parcels total 

approximately 140 acres and are located within the northern part of the Town of 

Stockbridge. Another parcel (Parcel 310, Group 3) contains hickory tree stands used for 

making traditional lacrosse sticks. Parcel 310 is a large property of approximately 441 

acres and supports multiple uses such as agriculture and hunting and fishing for Nation 

members. There is also a significant Oneida archaeological site here as well. Conveying 

these Group 1 and 2 lands into trust would have a direct positive effect to the Nation and 

on their culture. Parcels 133, 211 and 310 are all within a larger area subject to a 

competing tribal land claim (the Stockbridge-Munsee Land Claim Area or the claim area). 

Although not conveying these Group 3 parcels into trust is a potential adverse effect, the 

majority of the Nation’s cultural facilities and lands used for cultural activities are in 

Group 2. Unless foreclosed or alienated away under one of the scenarios, the Nation 

could continue to use these Group 3 parcels for traditional cultural activities. 

Alternative D. There are no existing cultural activities supported on Group 1 lands. All 

the key parcels and related cultural facilities described earlier are in Groups 2 and 3 and 

would not be conveyed into trust. Not conveying Group 2 and 3 lands into trust would 

have a direct adverse effect to the Nation and on their culture if their use and enjoyment of 

the lands used for cultural activities were prevented. 
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Alternative E. Only a single Nation tax lot parcel (Parcels 10 and 109) would be 

conveyed into trust. There are no cultural activities supported on this parcel. The same 

potential effects to the Nation described under Alternative D would apply here. 

Alternative F. Lands comprising all of Group 1, and the majority of Group 2 would be 

conveyed into trust along with some Group 3 lands. The Group 2 lands comprising this 

alternative would include the most significant cultural parcels such as festival sites, the 

Shako: wi Cultural Center and the Ray Elm Children & Elders Center. The same Group 3 

parcels discussed under Alternative C used for growing native crops following traditional 

husbandry techniques would not be included in this alternative. Although not conveying 

these Group 3 parcels into trust is a potential effect as they contain cultural sites and 

agricultural lands, the most important cultural facilities and lands used for cultural 

activities are in Group 2. Unless foreclosed or alienated away under one of the scenarios, 

the Nation could continue to use these Group 3 parcels for traditional cultural activities. 

Alternative G. None of the lands supporting cultural activities would be conveyed into 

trust. Absent of a secure land base, which is comprised of all three Groupings within their 

reservation and aboriginal homeland, the spiritual and cultural connection of the Oneida 

to their land would be broken. The Nation specifically purchased these lands because they 

were within their homeland where they wish to rebuild and preserve their traditional 

culture. A tribe’s aboriginal territory has cultural and religious significance that 

transcends the physical nature and use of the property. 

The four taxation/jurisdiction scenarios under No Action are defined in Section 2.0 and 

4.1. Under the Casino Closes and All Enterprises Close No Action scenario, the Nation 

would lose its most significant source of revenue, which would have a profound effect to 

its ability to assert sovereign control and manage lands containing and supporting cultural, 

activities. Further, the Nation could risk losing lands containing facilities such as the Ray 

Elm Children & Elders Center through foreclosure or alienation. Once out of the 

Nations’ control, these lands could be affected or developed by others. Unless facilities like 

the Ray Elm Children & Elders Center or Shako: wi Cultural Center could be reused for 

other purposes, they would likely deteriorate and become a burden to the local 

municipality. Loss of these lands would have a significant adverse effect to the Nation. 

Under the other three taxation/jurisdiction scenarios, the following effects could occur: 

Property Taxes Paid: The Nation would still own the lands used for cultural and lifestyle 

activities, although not under sovereign control. The Nation would submit to regulation of 

its lands and perhaps some of the activities occurring there, which would be conducted 

following applicable New York State laws as well as county and town codes and 

ordinances. 
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Property Taxes Not Paid and Foreclosure: This scenario is the same as Property Taxes 

Paid but with the risk that lands used for cultural and lifestyle activities by Nation 

members could be foreclosed or alienated away from the Nation. Loss of theses lands 

would have a significant adverse effect to the Nation and its culture. 

Property Taxes Not Paid - Dispute Continues: The Nation would still own the lands used 

for cultural and lifestyle activities and assert sovereign control over them. The Nation 

would continue to enforce its ordinances and manage lands as it has in the past. The 

jurisdiction over uses and activities conducted on the lands would remain in dispute. 

It is important to remember that the latter three taxation/jurisdiction scenarios described 

above apply not to just the No Action Alternative but to the lands omitted from trust in 

Alternatives B through F. 

Summary of Direct Effects 

There are no direct adverse effects to lands or associated resources and facilities from the 

Proposed Action (Alternative A). Further, although there are numerous adverse indirect 

effects (discussed below) associated with the trust alternatives (Alternatives B through F) 

including No Action (Alternative G), there do not appear to be any direct effects to the 

lands or associated resources and facilities. The various trust action alternatives (A 

through F), involve different Groupings and Nation parcels. As a result, different Nation 

resources and facilities used for cultural activities would be associated with each 

alternative. 

Alternatives providing greater trust protection and sovereign control over lands used for 

cultural and lifestyle activities would have a greater direct beneficial effect to the Nation 

than those affording less protection and less control. These alternatives could be viewed 

as best fulfilling the Nation’s purpose and need for placing lands into trust with the BIA 

Federal Government. In this regard, Alternative A (which includes Group 3 lands and 

cultural activities supported there) would accommodate the land base area most important 

to the Nation. Alternative B could potentially accommodate the most cultural activities 

for Nation members. However, since these lands and activities they could support are 

unknown at this time, the differences between Alternatives A and B may be immaterial 

from the Nation’s cultural and lifestyle practices standpoint. Alternatives C and F are 

identical, as they involve conveying into trust the same lands and cultural activities 

supported. Both Alternatives C and F exclude the same three parcels (133, 211 and 310) 

within the claim area and both, therefore, have the same effect to the Nation. Alternatives 

D and E are identical as they exclude the key lands in Groups 2 and 3 and the respective 

cultural activities supported there. Both alternatives therefore have the same effect to the 

Nation. Alternative G conveys no lands into trust and would have the most significant 

adverse effect to the Nation. 
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Finally, as discussed in Section 4.1, there are scaling effects associated with potential 

effects under the three taxation and jurisdiction scenarios (the scenarios). These scenarios 

only apply under alternatives where all or some variable portion of Nation lands are not 

conveyed into trust (C through G). 

4.7.7.2 Indirect Effects 

Alternatives and their associated taxation and jurisdiction scenarios resulting in the 

potential foreclosure or alienation of lands (C through G) containing facilities used for 

cultural and lifestyle activities such as the Ray Elm Children & Elders Center and the 

Shako: wi Cultural Center could indirectly affect these facilities through lack of proper 

operation and maintenance. Unless these facilities could be reused for other purposes, they 

would likely deteriorate and become a burden to the local municipality. Similarly, lands 

supporting traditional crops and husbandry techniques could revert to vegetative cover 

other than these indigenous varieties. 

The Oneida have a tradition and philosophy of planning and building for the seventh 

generation. Placing the lands into trust ensures that future generations of Nation members 

have access to the wealth and knowledge of their history and culture. In addition, cultural 

programs, departments and facilities developed by the Nation have benefited not only 

Nation members but other New York State tribes, as well as those located elsewhere, that 

share a common Iroquois cultural background. Loss of these could represent an indirect 

effect to future generations of Nation members and their ability to express their cultural 

lifeways and values. 

Potential adverse indirect effects to lifestyle and cultural values among the alternatives 

reflect a gradation in the intensity of effects depending upon whether lands are conveyed 

into trust or not and what cultural activities these lands support. For the lands conveyed 

into trust, differences among alternatives relate also to the associated cultural assets of the 

parcels involved or the services supported. Alternatives which support the above 

(Alternatives A, B, C and F) have a greater beneficial indirect effect to the preservation of 

traditional cultural lifeways and values than those alternatives (D, E and G) that do not. 

4.7.7.3 Cumulative Effects 

As defined in Section 4.1 Introduction, cumulative effects include effects beyond those 

solely attributable to the implementation of the Proposed Action or alternatives which 

result from the incremental effect of the action when added together with other past, 

present and reasonably foreseeable future actions. 

Perspectives on Potential Cumulative Effects on Lifestyle & Cultural Values 

For more then 15 years, the Nation made substantial progress in its efforts to reclaim and 

preserve its culture, lifestyle and history for current and future generations. Absent of 
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these efforts, the Nation was at risk of losing forever the very heart of what makes the 

Oneida a distinct Native American Indian tribe and community within New York State. 

Past actions by others which have adversely affected Oneida lifestyle and culture in New 

York State can be traced back generations. With the mostly illegal alienation of their 

lands, generations of Oneida have suffered socially, culturally, educationally and 

economically. From an aboriginal homeland of some six million acres, the Oneida were 

left with but a mere 32 acres in 1919 and almost no economic means to sustain themselves 

as a community. Until the resurgence of the Nation and the prosperity created by the 

operation of economic enterprises on their lands, the Oneida were on the brink of 

termination as a community and sovereign government and their identity disappearing. At 

risk were the very cultural, lifestyle, religious, and ceremonial practices that make the 

Oneida a distinct Native American people. This adverse trend, if allowed to continue, 

could have resulted in the collapse of the Oneida culture in New York State. 

The lands proposed for conveyance into trust support the economic, social, cultural and 

governmental needs of the Nation. Not all the lands have specific cultural purposes or 

uses at the present time. The totality of the land base, however, makes the Nation what it 

is and enables the Oneida to function as a community now and into the future. 

As there are no reasonably foreseeable actions to Nation lands and their associated uses 

that support lifestyle and cultural values within the timeframe for the Proposed Action or 

alternatives, a cumulative effects analysis for this resource category may be speculative. 

However, as with historic and archaeological resources, there are some factors worth 

considering regarding the lands supporting cultural activities and the resources contained 

there. First, whether the cultural uses (and secondarily the culture) may be especially 

vulnerable to incremental effects under any of the alternatives and second, whether these 

effects have been historically significant. 

Essentially, therefore, there are two broad action categories of potential cumulative effects 

to lifestyle and cultural values: 

• The Cumulative Effects Environment With Nation Lands in Trust 

• The Cumulative Effects Environment Without Nation Lands in Trust 

The former action category results in tribal sovereignty and restriction from alienation of 

the lands sustaining their cultural uses and associated resources while the latter does not. 

Past historical actions adversely affecting Oneida lifestyle and cultural values include the 

alienation of their reservation and aboriginal homeland, the loss and destruction of 

cultural assets contained there, and the resulting effects to their community. Absent of a 

secure land base to practice traditional lifeways, these past actions have affected their 
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culture and still have residual present day effects within their community. Such effects 

impact not only the present generations but future generations as well. These effects have 

the potential for occurring again without a secure land base to preserve them from future 

alienation. 

A similar scaling effect can be stated for potential cumulative effects as for direct and 

indirect effects; those trust action alternatives acquiring fewer Nation lands supporting 

cultural practices not afforded protection from foreclosure or alienation could have a 

greater effect to the Nation than those alternatives securing and supporting more 

traditional lifeways. 

4.7.8 Community Infrastructure 

Significance Criteria 

For the purpose of defining whether the Proposed Action or any of the alternatives, 

including the No Action Alternative, result in a potentially significant adverse effect to 

community infrastructure, several criteria are considered. Potentially significant adverse 

effects may occur if the action is likely to directly, indirectly, or cumulatively: 

• Result in substantial adverse physical effects associated with the provision of new 

or physically altered community facilities; or 

• Create an increased need or demand on community facilities resulting in 

construction which could result in other environmental effects; 

• Reduce or significantly degrade acceptable public service ratios, response times or 

other community service objectives within the towns or Counties containing 

Nation-owned lands. Public services in this regard include: Police Protection, Fire 

Protection, Schools and Medical-Adult Care-Emergency Facilities. 

4.7.8.1 Direct Effects 

Implementation of the Proposed Action or any of the trust alternatives would not result in 

physical changes to community facilities, provide new community facilities, create an 

increased need or demand for community facilities, or degrade public service ratios or 

response times for any public services on Nation lands, on adjacent non-Nation lands or 

on any lands within the towns or counties in the Study Area. 

The proposed federal action does not involve construction or alteration of the physical 

environment. Neither the Proposed Action (Alternative A) nor any of the alternatives (B, 

C, D, E, F, and G) described in Section 2.0 Alternatives would require new facilities or 

activities by the Nation that would place a demand on public schools and other 

community infrastructure in the Study Area. 

The State of New York and local municipal jurisdictions have asserted that any significant 

loss of jurisdiction over the regulation and control of community infrastructure on or 
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adjacent to lands conveyed into trust would have an impact on the people residing within 

the Study Area. This concern would presumably apply to all alternatives where lands are 

conveyed into trust. 

Alternatives A, B, C, D and F 

Under these Alternatives, it is anticipated that the Nation would continue to implement its 

housing program. There are 66 members on the waiting list. This is maximum number of 

new housing the units the Nation has projected. The housing program is ongoing and not 

part of the proposed trust action. Some or all of the housing may be built in the 

reasonably foreseeable future. As discussed in Section 4.7.2, the 66 new households may 

accommodate 224 residents and 36 school aged children. Some of the new occupants of 

the proposed housing may come from the two-county area, thus not creating an increase 

in overall population. Given that 64 percent on the waiting list live locally, it is assumed 

that 24 homes would be constructed for those living outside the area. These 24 new 

homes would add 82 Nation Members to the area, of which 14 would be school-age 

children that would be from Oneida households who have relocated to the Nation lands. 

The impact on local schools and community infrastructure from the addition of 14 new 

school-age children and 82 total Nation members to the Madison-Oneida County area, 

and 24 new homes is not anticipated to be significant, as the impact would be dispersed 

over a wide geographic area. As reported in Section 4.7.2, it is anticipated that the increase 

in school-age children and population would most affect the City of Oneida, Town of 

Verona, and Town of Stockbridge. 

This additional housing and population in the reasonably foreseeable future is not 

anticipated to have an impact on health care facilities, as the Nation provides care for its 

members. The Nation has its own police force and would increase its force and patrol 

accordingly to service the new member housing. Agreements with fire districts would 

compensate them for the addition of these new homes. 

Effects under Alternative B could be greater compared to Alternative A if additional 

Nation members move to the area. In the long-term, additional Nation members who 

migrate to the area could add to the number of residents and school-age children residing 

in the Study Area. However, it is not feasible to predict the number and residence of these 

additional members who could potentially relocate on additional lands that would be 

reacquired under this alternative. 

Alternatives E and G 

Under Alternatives E and G, Property Taxes Paid and Property Taxes Not Paid-Dispute 

Continues scenarios, the Nation would retain title to the lands and continue to implement 

its housing program and could accommodate the projected maximum number of Nation 

housing units. This would likely have the same effect as above. 
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Under the Property Taxes Not Paid - Foreclosure and the No Action Casino Closes and 

All Enterprises Close scenarios, the Nation would not retain title to the lands and would 

not construct the housing. Therefore, there would be no increase in the number of Nation 

members or their school-age children. As a result, it is not anticipated that there would be 

an adverse impact on community infrastructure. 

4.7.8.2 Indirect Effects 

Implementation of the Proposed Action or any of the alternatives, including the No Action 

Alternative, would not result in any activity that would indirectly result in physical effects 

to community facilities, or reduced levels of services for public services on Nation lands, 

on adjacent non-Nation lands, or on any lands within the Towns or Counties in the Study 

Area as defined in Section 3.7.12 Affected Environment. It is anticipated that 

implementation of the Proposed Action and Alternatives A through F would result in an 

increased need for or demand on community facilities, however, as a result of growth in 

visitation to the Turning Stone Resort & Casino and associated increase in employment 

facilities or uses established in the reasonably foreseeable future following implementation 

of any one of those alternatives. 

A potential indirect effect of the Proposed Action or any of the trust alternatives on 

community infrastructure would be caused by the change in tax base for the municipalities 

and the resulting change in revenues available to in the municipalities to support 

community facilities; Section 3.7 Socioeconomics discusses the current socioeconomic 

conditions. Section 4.7.5 Fiscal Effects discusses the fiscal associated consequences of the 

Proposed Action and any of the alternatives. For alternatives where some or all Nation 

lands are not conveyed into trust (Alternatives C, D, E, F and G) under the Property Taxes 

Paid taxation/jurisdictional scenario, the municipalities would receive some revenue from 

properties not conveyed into trust. For these alternatives under the Property Taxes Not 

Paid - Foreclosure or the Property Taxes Not Paid – Dispute Continues scenarios, the 

municipalities would not receive revenue from the Nation for properties not conveyed into 

trust. In the past, however, the Nation has provided funds to compensate the 

municipalities for community infrastructure services provided by the municipalities. 

Section 3.7 describes programs and payments through which the Nation provides funds to 

the municipalities for services. Under the Property Taxes Not Paid - Foreclosure scenario, 

however, the Nation’s lands would be subject to foreclosure or alienation, in which case 

ownership would transfer to another party who would become responsible for paying 

taxes that would contribute revenue to the municipalities. 

Under the No Action Alternative, an indirect effect to community infrastructure available 

to the Nation may be result from a lack of funds for the Education Resource Center. 

Without revenues from the casino, this center may not have the funds necessary to 

continue operating and providing services to Nations members, or it may be forced to 
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reduce the services it provides. This facility is located on the current Nation reservation 

and would remain under Nation ownership. 

Alternatives A, B, C, and F 

As reported in Section 4.7.2 Demographic Effects, it is anticipated that the growth of 

visitation to the Turning Stone Resort & Casino and associated employment by the 

Nation may result in 229 people migrating to Oneida County and 101 people migrating to 

Madison County from outside the area. As a result, it is expected that the number of 

school-aged children would increase by 26 children in Madison County and by 60 in 

Oneida County. This represents less than a five percent increase in the number of existing 

school-age children. Specifically, the number of school-aged children would increase by 39 

children in the municipalities where the Nation owns land. In Madison County, the 

majority of new school-age children would be in the City of Oneida and the 

Canastota/Lenox/Lincoln area. In Oneida County, the number of new-school age children 

is likely to be evenly distributed among Verona, Vernon and Sherrill. 

Alternative D 

With a loss of jobs in comparison to Alternatives A through C, there would be a net outmigration of 9 people. As an indirect consequence of under this alternative, 46 people 

would migrate out of Oneida County and 3 would migrate out of Madison County. The 

number of school-age children would decrease by 2 in Oneida County and by 1 in 

Madison County. 

Alternative E 

As a consequence of Under Alternative E, many of the Nation’s business operations would 

cease to exist; these business operations represent 671 jobs. As discussed in Section 4.7.2 

Demographic Effects, it is estimated that approximately 50 school-aged children would 

leave the area, as their families leave due to job loss. 

Alternative G 

The Turning Stone Resort & Casino would cease operation as a result of under this 

alternative; with the exception of a few jobs at the remaining SavOn gas station and 

convenience store locations and some Nation government offices, all Nation employees 

would be laid off. This represents a loss of 4,556 jobs. As discussed in Section 4.7.2 

Demographic Effects, it is estimated that 1,293 people would leave the area, including 336 

school age children. 

4.7.8.3 Cumulative Effects 

Past actions by the Nation that affecting community infrastructure related primarily to 

operation of the Turning Stone Resort & Casino, which increased the demand for 

community infrastructure services. Nation members have contributed to the demand on 

community services such as public schools, healthcare, police law enforcement, fire 
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protection, and emergency services. In the past, the Nation has supported the expansion of 

these services over time by providing funding to the local municipalities in a variety of 

ways, as described in Section 3.7 Socioeconomics. 

Present actions by the Nation are similar to those in the past. The Nation continues to 

send most member children to local public schools for their education, utilize existing 

healthcare facilities, cooperate with local police departments regarding law enforcement, 

and rely on municipalities for emergency response and fire protection. While Nation 

members contribute to the demand for these community services, the Nation continues to 

financially support many of the services providers as described in Section 3.7 

Socioeconomics. 

The Nation’s plans for the next five years (the reasonably foreseeable future), described in 

Section 2.0, include some limited development ongoing and selected construction projects, 

some of which may be associated with increased demand on community infrastructure. 

The facilities that are included in ongoing programs and plans of the Nation involve 

Nation lands located in each of the three Groupings. As such, the extent of the activities 

and effects differ depending on the land that would be conveyed into trust under each 

alternative. Following is a discussion of the potential effects from current and reasonably 

foreseeable future actions by the Nation. These include: 

Turning Stone Resort & Casino – Over the next five years additional facilities or 

improvements to the Turning Stone Resort & Casino would include an indoor/outdoor 

swimming pool, a new poker room reconfigured on the existing gaming floor, a potential 

15 – 18,000 square-foot night club, and completion of the new spa, currently under 

construction. The expansion of this facility would be likely result in an increase in demand 

for community services such as fire protection, police protection, and emergency medical 

services. 

Nation member housing – The existing member residences located throughout the 17,370 

acres (Group 1, 2, and 3 lands) would continue to be maintained. There are 66 members 

on the waiting list for future residences; these individuals would be accommodated over 

the next five years, either with existing homes that become available or with new homes. 

This increase in member housing would be related to incremental growth of the Nation 

member community and would likely result in increased demand for community services 

including fire protection, police protection, emergency medical services, public schooling, 

and healthcare facilities. 

Alternatives A, B, C, D and F 

As reported in Section 4.7.2, under these alternatives, it is anticipated that the Nation 

would continue to implement its housing program. There are 66 members on the waiting 

list. This is maximum number of new housing the units the Nation has projected. The 
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housing program is ongoing and not part of the proposed trust action. Some or all of the 

housing may be built in the reasonably foreseeable future. As discussed in Section 4.7.2, 

the 66 new households may accommodate 224 residents and 36 school aged children. 

Some of the new occupants of the proposed housing may come from the two-county area, 

thus not creating an increase in overall population. Given that 64 percent on the waiting 

list live locally, it is assumed that 24 homes would be constructed for those living outside 

the area. These 24 new homes would add 82 Nation Members to the area, of which 14 

would be school-age children that would be from Oneida households who have relocated 

to the Nation lands. The impact on local schools and community infrastructure from the 

addition of 14 new school-age children and 82 total Nation members to the MadisonOneida County area, and 24 new homes is not anticipated to be significant, as the impact 

would be dispersed over a wide geographic area. As reported in Section 4.7.2, it is 

anticipated that the increase in school-age children and population would most affect the 

City of Oneida, Town of Verona, and Town of Stockbridge. 

Impacts under Alternative B could be greater compared to Alternative A if additional 

Nation members move to the area. In the long-term, additional Nation members who 

migrate to the area could add to the number of residents and school-age children residing 

in the Study Area. However, it is not feasible to predict the number and residence of these 

additional members who could potentially relocate on additional lands that would be 

reacquired under this alternative. 

Combined with the anticipated population associated with increased employment, as 

discussed in above in Section 4.7.8.2, a total of 331 new residents, including 86 school-age 

children, are anticipated in the two-county area. This amounts to a 0.1 percent increase in 

the two-county population in 2003 and a five percent increase in the combined number of 

school-age children in Madison and Oneida Counties. 

The effect to local schools and community infrastructure from the relatively small addition 

of new school-age children, new Nation members to the Madison-Oneida County area, 

new homes, and additional residents is not anticipated to be significant, as the overall 

magnitude is small and the effect would be dispersed over a wide geographic area. 

This additional housing and population growth in the reasonably foreseeable future, 

combined with the indirect effect from growth in visitation and employment at the 

Turning Stone Resort & Casino, is not anticipated to have an adverse cumulative effect to 

health care facilities, as the Nation provides care for its members. The Nation has its own 

police force and would increase its force and patrol accordingly to service the new member 

housing. Agreements with fire districts could compensate them for the addition of these 

new homes. 
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Alternatives E and G 

Under Alternatives E and G, Property Taxes Paid and Property Taxes Not Paid - Dispute 

Continues scenarios, the Nation would retain title to the lands and continue to implement 

its housing program and could accommodate the projected maximum number of Nation 

housing units. This would likely have the same effect as above. 

Under the Property Taxes Not Paid-Foreclosure and the No Action Casino Closes and All 

Enterprises Close scenarios, the Nation would not retain title to the lands and would not 

construct the housing. Therefore, there would be no increase in the number of Nation 

members or their school-age children. As a result, it is not anticipated that there would be 

an adverse impact on community infrastructure. 

Under Alternative E there could be a one percent decrease in school-age children. Under 

the No Action Alternative, it is anticipated that there could be an 11 percent decrease in 

the number of school-age children in the two-county area. As a result, it is not anticipated 

that there would be a cumulative effect to community infrastructure under these 

alternatives. 

The potential cumulative effect to each type of community infrastructure is described 

below: 

Public Schools –As described above, the incremental growth of the Nation member 

community and migration from growth in Nation employment is likely to increase 

demand for public schooling. The amount of growth, however, would be likely to 

relatively small compared to the current number of students attending local public schools 

and, therefore, the effect is anticipated likely to be less than significant. In the past year, 

the Nation has enrolled 21 students in an outside preparatory school (Manlius Pebble Hill 

- MPH) ranging in grade from kindergarten to twelfth grade. Enrollment of qualified 

students in MPH would continue in the future. 

Healthcare Facilities and Emergency Medical Services – The Nation’s and others demand 

for these healthcare and emergency medical services would also increase with incremental 

growth in the community and potentially more visitors to the Turning Stone Resort & 

Casino. The anticipated growth, however, would not likely increase the demand enough 

to result in construction of new facilities. It would also not likely result in physical 

alternations to existing facilities. The increased demand would not likely be large enough 

to affect current response times. Therefore, the effect to these community services is likely 

to be less than significant. 

Police – The Nation would continue to employ officers in its own Police Department, 

which has a history of cooperation with Oneida and Madison County’s law enforcement 

personnel. As described in Section 3.7.12.2, Nation and local law enforcement personnel 
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frequently cooperate in criminal investigations and local police departments typically help 

Nation officers manage large crowds at events at the Event Center. The demand for these 

services might increase with the continued development of the Turning Stone Resort & 

Casino, including the addition of an 8 to 15 thousand square-foot new night club. The 

State of New York would continue to have jurisdiction over offenses committed on the 

Nation’s lands. 25 USCA § 232. New York State criminal law, therefore, would apply to 

all Nation lands that were placed into trust. The Nation would also continue to fund the 

New York State police officers who conduct background checks on Nation employees and 

vendors and enforce New York State law within gaming areas in the Turning Stone Resort 

& Casino. While demand for police services may increase based on the Nation’s plans, the 

increase is not likely to be significant compared to the current level of service. Response 

times are not likely to be affected and therefore the effect would be less than significant. 

Fire – The Nation has a service agreement for fire protection at the Turning Stone Resort 

& Casino, as well as all other Nation-owned properties within the Town of Verona. 

Despite a statement by the Verona Fire Department (VFD) that the fees that the Nation 

pays for fire protection are inadequate, the VFD and surrounding fire departments have 

worked with the Nation to create a program that would effectively protect Turning 

Stone’s patrons. This program, called the Mutual Aid Plan involves fire departments from 

multiple municipalities in the area in the case that VFD equipment and personnel are 

inadequate. As a part of this program, the Nation conducts and funds a series of training 

programs for the fire chiefs and deputy fire chiefs of participating departments. The 

Mutual Aid Plan program would continue to be supported by the Nation. 

Fire protection for Nation lands not located at the Turning Stone Resort & Casino 

complex is provided by the local municipalities. The service agreement between the Nation 

and the Town of Verona encompasses both the Turning Stone Resort & Casino and any 

other Nation properties in the Verona Fire District. In other municipalities, Federal law 

requires the municipalities to respond to incidents in their fire districts; while service 

agreements are not currently in place, the Nation is amenable to such agreements and 

anticipates entering into agreements with other municipalities. 

The Nation is in the process of hiring its own fire marshal that would work in conjunction 

with the Nation’s paid fire consultant and train Turning Stone employees to be first 

responders. While the Nation’s plans for the foreseeable future to create and maintain a 

destination resort may increase the need for fire protection, the Nation’s efforts to train 

additional staff to respond may help alleviate the increased demand by maintaining 

acceptable public service ratios and response times. The effects of the Nations plans on fire 

protection are likely to be less than significant.