Minnesota Tribal

Road Safety Summit

Summit Report

October 29-30, 2008

Fortune Bay Resort Casino Tower, Minnesota

Prepared by Cambridge Systematics, Inc.

Pub #: FHWA-FLH-10-02
NOTICE

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objective of this document.
Technical Report Documentation Page

1. Report No.

FHWA-FLH-10-02

2. Government Accession No. 3. Recipient’s Catalog No.

4. Title and Subtitle

Minnesota Tribal Road Safety Summit Report

5. Report Date

February 2009

6. Performing Organization Code

7. Author(s)

Susan Herbel (Principal Investigator), Bernardo Kleiner

8. Performing Organization Report No.

9. Performing Organization Name and Address

Cambridge Systematics, Inc.

100 CambridgePark Drive, Suite 400

Cambridge, MA 02140

10. Work Unit No.

11. Contract or Grant No.

DTFH61-61-08-T-02601

12. Sponsoring Agency Name and Address

Department of Transportation

Federal Highway Administration

Office of Federal Lands Highway

1200 New Jersey Ave, SE

Washington, DC 20590

13. Type of Report and Period Covered

Meeting Report

October 29-30, 2008

14. Sponsoring Agency Code

15. Supplementary Notes

FHWA: Chimai Ngo and Craig Genzlinger

16. Abstract

This report documents the Minnesota Tribal Transportation Safety Summit held October 29-30, 2008, in 

Tower, Minnesota. The Summit brought together the full range of interested parties to begin 

communication and cooperation toward the ultimate goal of reducing crash-related injuries and deaths 

within Tribal communities. The Summit pursued that goal by identifying key Tribal safety challenges and 

the resources (human, technical, material, and financial) available to address them, and by stimulating 

multidisciplinary collaboration among safety stakeholders. Specifically, the objectives of the Summit were:

1. Review Minnesota’s Tribal road safety issues and challenges;

2. Improve crash data collection, analysis, and sharing;

3. Share experiences and begin developing new Tribal safety initiatives; and

4. Identify safety resources available to Minnesota Tribes.

The following report includes background information, themes discussed by Summit speakers and 

participants, Summit results, and next steps for moving forward.

17. Key Words

transportation safety, traffic safety, road safety, 

Native Americans, reservation roads, Minnesota

18. Distribution Statement

19. Security Classif. (of this report)

Unclassified

20. Security Classif. (of this page)

Unclassified

21. No of Pages

32

22. Price

Form DOT F 1700.7 (8-72)Reproduction of completed pages authorized
Background

Minnesota Tribal Road Safety Summit FINAL REPORT 1

Background

Every year more than 40,000 motorists die and almost 3,000,000 

are injured on our Nation’s roadways. For ages 4 to 34, motor 

vehicle-related injuries are the leading cause of death in the 

United States.1

Native Americans are at particularly high risk. Among Native 

American populations, motor vehicle-related injuries are the 

leading cause of death extends up to age 44.2 Between 1975 and 

2002, the number of fatal crashes on Indian reservations increased 

over 50 percent, while nationally they declined two percent.3

Minnesota is no exception to the trend. In a comparison of statewide and Native American fatality rates by population, Native 

Americans are two and one-half times more likely to be killed in 

motor vehicle crashes than other citizens.

The Minnesota Tribal Road Safety Summit held October 29-30, 

2008 is an important step toward reducing traffic fatalities and 

injuries among Tribal members. This document describes the 

Summit, focusing on the insights gained and lessons learned.

The Summit was carried out through the collaborative efforts of

Tribal representatives from Bois Forte, White Earth, Leech Lake, 

and Red Lake, Federal Highway Administration’s (FHWA) 

Federal Lands Highway and Minnesota Division Offices, 

Minnesota Department of Transportation (MnDOT), Tribal 

Technical Assistance Program (TTAP) at Michigan Technological 

University, Bureau of Indian Affairs (BIA), Minnesota 

Department of Public Safety (MnDPS), and the Center for 

Excellence in Rural Safety (CERS).

 

1 Hilton J., Race and Ethnicity in Fatal Motor Vehicle Traffic Crashes 1999-2004, 

DOT HS 809 956. May 2006. U.S. DOT, National Highway Traffic Safety 

Administration.

2 Subramanian R., Motor Vehicle Traffic Crashes as a Leading Cause of Death in 

the United States, 2005, DOT HS 810 936. April 2008. U.S. DOT, National 

Center for Statistics and Analysis.

3 Poindexter, K., Fatal Motor Vehicle Crashes on Indian Reservations 1975-2002, 

DOT HS 809 727. U.S. DOT, National Highway Traffic Safety Administration,

May 2004.

Minnesota Tribes

Bois Forte Band of Chippewa

Fond du Lac Reservation

Grand Portage Chippewa

Leech Lake Band of Ojibwe

Lower Sioux Indian Community

Mille Lacs Band of Ojibwe

Prairie Island Indian Community

Red Lake Nation

Shakopee Mdewakanton Sioux 

Community

Upper Sioux Community

White Earth Band of Ojibwe
Background

Minnesota Tribal Road Safety Summit FINAL REPORT 2

 Purpose of the Summit

The Minnesota Tribal Road Safety Summit brought together the 

full range of interested parties to begin communication and cooperation toward the ultimate goal of reducing crash-related injuries 

and deaths within Tribal communities. The Summit pursued that 

goal by identifying key Tribal safety challenges and the resources 

(human, technical, material, and financial) available to address 

them, and by stimulating multidisciplinary collaboration among 

safety stakeholders. Specifically, the objectives of the Summit 

were:

1. Review Minnesota’s Tribal road safety issues and challenges;

2. Improve crash data collection, analysis, and sharing;

3. Share experiences and begin developing new Tribal safety 

initiatives; and

4. Identify safety resources available to Minnesota Tribes.

The intention was to provide participants with a better understanding of programs and resources available for their communities to consider in determining future directions with regard 

to road safety. A detailed Summit agenda, listing all speakers and 

activities, is included in Appendix B.

The Summit is a first step. Follow-up within and among 

Minnesota’s Tribes in collaboration with state and Federal partners is required for further progress. Minnesota has strong safety 

leadership, but local or grassroots initiatives are imperative to 

drive the numbers down.

Bois Forte Chairman Kevin Leecy 

Offering Opening Remarks
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 3

Themes

Several key themes emerged from the Summit as recurring 

emphasis areas in presentations and discussion groups. The 

themes included partnerships, transportation safety planning, data, 

and Tribal safety initiatives. This report documents the insights 

provided by speakers and other participants on these topics.

 Partnerships

Opening remarks by Bois Forte Chairman Kevin Leecy and 

MnDOT Commissioner Tom Sorel emphasized the importance of 

strong partnerships. This includes Tribal safety stakeholders 

working with Tribal elders and advisors to elevate road safety as 

a priority and implement Tribal safety initiatives. It also includes 

Tribes partnering with Federal and state partners. The value of 

collaboration was reinforced in presentations and group discussions throughout the Summit.

Participants learned about and were encouraged to support an

important statewide collaborative effort to advance safety efforts 

on Minnesota’s public roadways. Toward Zero Deaths (TZD) was 

established in 2001 as a partnership led by 

MnDPS, MnDOT, and the Department of Health, 

in cooperation with the State Patrol, FHWA, 

Minnesota county engineers, and the Center for 

Transportation Studies at the University of 

Minnesota. The program team works with community and corridor groups to improve safety in

designated area.

In some cases, TZD has been adopted at the 

regional level. For example, in January 2008 

stakeholders in MnDOT District 2 (Bemidji 

District) began to question what they could do in 

their specific region and began the Northwest 

TZD Coalition. Looking at safety data from the 

4 E perspective (engineering, enforcement, education, and emergency response), they held a series 

of planning meetings followed by a workshop 

in April 2008 with participation from law
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 4

enforcement, hospitals, engineers, and high school students, 

among others. Data were presented on safety belts, alcohol and 

single vehicle run-off-road crashes, speeding drivers, young 

drivers, and intersections, followed by discussion and breakout 

sessions. The workshop resulted in a plethora of activities,

including Safe Communities workshops, Leech Lake Health and 

Safety Fair, AARP Driver instructor training, Beltrami County 

fatality review, TZD statewide conference, MADD Chapter, and 

team planning meetings. Future plans include outreach to 

increase participation, TZD communication and marketing, identifying funding sources, and measuring results.

Summit participants expressed appreciation for the chance to 

learn more about collaborative efforts and for the opportunity to 

advance partnerships themselves through discussion groups and 

informal sessions where they were able to share experiences, 

learn from one another, and work together in developing ideas 

for moving forward.

 Transportation Safety Planning

A key theme that emerged at the Summit is the need for strong 

safety planning processes to drive road safety initiatives forward. 

FHWA’s Office of Federal Lands Highway Associate Administrator John Baxter introduced participants to national efforts 

focusing on Tribal safety planning, which was followed by a 

detailed presentation on a three stage process for developing 

Tribal specific safety management plans.

Step One: Strategic Highway Safety Plan for Indian 

Lands

In 2004 the Strategic Highway Safety Plan for Indian Lands was 

completed as a policy statement defining national goals to 

improve Tribal transportation safety.

The strategic plan identified eight specific emphasis areas to 

reduce the number of fatal and injury crashes in Indian Country:

Decision-Making Process;

Data Collection;

Run-off-the-Road Crashes;

Strategic Highway Safety Plan 

for Indian Lands

Vision – Implement effective 

transportation safety programs to 

save lives through communication 

and collaboration.

Mission – All transportation users 

arrive safely at their destinations.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 5

Occupant Protection/Child Restraint;

Alcohol/Impaired Driving;

Other Driver Behavior and Awareness;

Drivers Under the Age of 35; and

Pedestrian Safety.

The plan calls for two integration components: 1) an organizational structure allowing for the integration of the entities 

involved with Transportation Safety; and 2) a formal management system to direct the activities of entities that will effectively 

achieve the mission and vision.

Step Two: Safety Management System

Implementation Plan

The Safety Management System (SMS) Implementation Plan was 

signed in August 2008 by the Bureau of Indian Affairs (BIA) and 

FHWA’s Office of Federal Lands Highway in partnership with 

Tribes and state DOTs. Similar to Indian Reservation Roads (IRR) 

transportation improvement programs (TIP), the SMS identifies 

items to address over the next three to five years through implementation at both the national and Tribal levels.

A Steering Committee, including representatives from Tribes, 

FHWA, BIA, The National Highway Traffic Safety Administration (NHTSA), and Indian Health Services (IHS) meets semiannually and Safety Summits are conducted to stimulate interest 

and dialogue.

Step Three: Tribal Safety Management Plans

The next step is to develop Tribal specific safety management 

plans. These cross discipline plans will be developed on-site with 

Tribal representatives and will identify safety countermeasures 

and programs to address the specific needs of the community. 

Five Tribes in Washington and Montana have completed plans, 

which are available through TTAP.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 6

Minnesota Strategic Highway Safety Plan (SHSP) Strategies

6 Education Strategies 2 Technology Strategies

Stronger Graduated Drivers License In-vehicle safety systems

Safe community coalitions Vehicle-infrastructure integration

10 Engineering Strategies 4 EMS Strategies

Road edge treatments Implement statewide trauma system

Intersection treatments Enhance 911 system capabilities

7 Enforcement Strategies 2 Data System Strategies

Primary seat belt law Improve data systems

Increased resources Integrate general & highway 

Increased red-light enforcement vehicle databases

Minnesota’s Strategic Highway Safety Plan

Participants also learned about the process behind the Minnesota 

Strategic Highway Safety Plan (SHSP), which adopted the TZD 

goal and has been used as a model plan before the Safe Accountable Efficient Transportation Equity Act – A Legacy for Users 

(SAFETEA-LU) was passed. SAFETEA-LU requires states to 

develop a statewide, coordinated safety plan that provides a 

comprehensive framework and specific goals and objectives for 

reducing highway fatalities and serious injuries on all public 

roads.

The TZD 2004 goal was to reduce the annual number of fatalities 

to below 500 fatalities. The goal was met in 2007 (494 fatalities) 

and was revised to a target of fewer than 400 fatalities by 2010.

The SHSP development process included a review of current 

research and literature to identify strategies for reaching the new 

goal. The following box presents examples of the strategies 

included in Minnesota’s SHSP.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 7

 Data

An overarching theme of the Summit was the need for accurate 

and timely data along with analytical tools to identify safety 

problems and appropriate countermeasures.

Crash Reporting

The process of collecting and analyzing data begins with the 

information gathered at the scene of the crash. If a crash is not 

reported, it cannot be included in the data. The Minnesota police 

accident report (PAR) and citizen accident report (CAR) are available in both paper and electronic formats (85 percent currently 

generated electronically). The criteria of the reports are guided by 

the D-16 Manual, which defines such details fatalities, injuries, and 

property damage only crashes, and the national Model Minimum 

Uniform Crash Criteria (MMUCC), which represents a voluntary 

and collaborative effort to generate uniform, accurate, reliable, and 

credible crash data to support data-driven highway safety decisions within a state, between states, and at the national level.

Location elements of the crash data include the route system, 

route number, reference point (along with a reliability score), city, 

and county. Nonlocation elements include such details as date, 

time, day, light conditions, weather, etc. Person level elements 

include age, gender, condition, safety equipment, and severity. 

Names and addresses also are reported but are not part of the 

public record, which is important to note for those with reservations about sharing crash data. Vehicles information (type, make, 

body type) and actions (contributing factors, sequence of events, 

preaccident action, most harmful event, and direction of travel) 

also are reported.

Current efforts to improve Tribal crash reports include 

redesigning police and citizen crash reports to be more in line 

with MMUCC and to develop and pilot an abbreviated PAR for 

property damage only crashes. Electronic PAR submission is 

being promoted as is submission of property damage only

crashes to police agencies. The need for this valuable data is 

being marketed to law enforcement and others.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 8

Crash Data Collection

Red Lake presented its data collection system where law 

enforcement usually collects crash data, but others produce crash 

reports as well (e.g., engineers, analysts, and prevention 

practitioners).

In recent years the traffic safety community has demanded crash 

data quality improvements. The demand is driven by funding/

grant opportunities and the need to better target roadway 

improvements, prevention, and intervention. Red Lake has a 

grant from BIA and must produce statistics to show the need for 

continued funding.

To develop effective, targeted countermeasures it is necessary to 

understand the who, what, when, where, why, and how of 

crashes. Contributing factors, such as distractions, weather conditions, road conditions, alcohol/drug use, animals, etc., provide 

important information. Additional crash data include airbag 

deployment, safety belt use, child safety restraint use, vehicle 

damage, and collision type (e.g., rollover, rear end, broadside, 

and head on).

The data are shared with other agencies with mutual goals, purposes, and funding sources. In Red Lake this includes engineers and 

planners, prevention practitioners, and the Tribal sanitarian.

Experience shows collecting Tribal crash data is tedious, as it is 

often done manually. Electronic transfer has proven difficult. 

Statistics are not presented until the end of the year, which limits 

data-driven programs and decisions. In addition, it difficult to 

meet the varying needs of different agencies requesting crash 

data. Also, Tribes report crash data to BIA, which reports to the 

FBI. This type of reporting can cause inaccurate or duplicate statistics for local agencies, counties agencies, and states.

Tools are available to assist Tribes in collecting crash data. Computer aided dispatch (CAD) systems (e.g., SMART and 

BULLBERRY) help identify elements such as crash location. 

I-CARE (Indian Crime Awareness Research and Evaluation) is 

focused mainly on crime but is now working with DOTs to incorporate crash data as well. CISCO, from the BIA, is another 

software package available to help Tribes collect and share data

electronically.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 9

Crash Data Analysis

Support is available through both MnDOT and MnDPS for Tribes 

to analyze crash data for decision-making and programming.

MnDOT’s Crash Mapping Analysis Tool (MnCMAT) was 

adopted in 2006. The tool covers the entire state and applies 32 

filters to crash data from the DOT database to produce GIS-based charts, maps, 

and reports. Primary selection is by 

county, with multiple secondary selection methods for cities, points, areas, and 

roadway segments or corridors.

For example, MnCMAT was used to 

receive additional highway safety

improvement program (HSIP) funding 

from FHWA when it identified the need 

to target local and rural roads. The tool 

is available to Tribes through MnDOT 

and does not require additional software. 

Additional information (including 

approval forms) can be founds at

http://www.dot.state.mn.us/stateaid/

sa_crashmap.html.

In a different context, MnDPS’ Crash

Facts are used not only to identify 

locations in need of attention, but also to 

identify countermeasures. For example,

a high visibility impaired driving 

enforcement campaign was conducted in 

July because alcohol-related crashes are 

overrepresented during that month.

The database does not contain personal 

identifiers. The annual Crash Facts

report is published by June of each year 

and presents data by countermeasure 

area in a variety of configurations. 

MnDPS has three researchers on staff 

available to provide data runs for anyone 

from the public, not just grantees. Data 

queries are not processed for attorneys.

Saturday, 

23.8%

Sunday, 

20.1%

Monday, 

9.6%

Tuesday, 

8.9%

Wednesday, 

10.5%

Thursday, 

10.8%

Friday , 

16.1%

Crash Facts – Alcohol Related Crashes by Day of the Week

MnCMAT Select Crashes Using Route Selection.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 10

 Tribal Safety Initiatives

A variety of Tribal safety initiatives were presented at the 

Summit, providing participants examples of programs they may 

adopt within their own communities to further improve road 

safety.

Primary Safety Belt Law

White Earth recently passed the State’s first primary safety belt

law. A recent survey showed only 43 percent belt use in the 

community, which is far below the state and national averages. 

The need for change was driven by statistics showing failure to 

wear a safety belt contributes to more fatalities than any other 

single traffic safety-related behavior and the chances of surviving 

a traffic crash are cut in half when a safety belt is not used (63

percent fatality rate). Unbelted fatalities and serious injuries 

touch every Minnesota Community, accounting for more than 200 

deaths and 500 serious injuries each year. These crashes resonate 

beyond the victim and their families. The community picks up 

the tab in each crash case, including emergency response, medical 

assistance, increased insurance premiums, unemployment compensation, and more.

Statistics show reservations with upgraded primary laws experience fewer deaths and serious injuries, and primary laws increase 

belt use by five to 10 percent. Secondary laws confuse citizens 

and hamper law enforcement.

The proposed primary safety belt law, along with these 

supporting arguments, was presented to White Earth’s Tribal 

Council, with sponsors including the White Earth Police Department, Legal Department, IHS, and Child Protective Services (CPS) 

Committee. The Council agreed and asked for surveys, which 

found 99 percent of the reservation citizens approve the law. Of 

212 surveys only one person opposed the law, which gained 

approval and takes effect on the reservation in January 2009.

White Earth 

Primary Safety Belt Law

All drivers of vehicles operating on 

White Earth Indian Reservation public roads and passengers riding 

therein shall be required to fasten 

seat belts while the vehicle is in 

motion. Minor children are required 

to be safely, securely, and properly 

fastened while riding in a motor 

vehicle and the driver is responsible 

for the proper fastening of a minor’s 

seat belt. Minors are defined as persons between the ages of 4 years 

and not more than 11 years of age 

and children younger than 4 years 

who are required to be in child safety 

seats. 

Seat Belt Exemptions: This article 

shall not apply to:

A person driving a passenger 

vehicle in reverse;

A person riding in a seat in 

which all the seating positions 

equipped with safety belts are 

occupied by other persons;

A person who is in possession 

of a written certificate from a 

licensed physician verifying that 

because of medical unfitness or 

physical disability the person is 

unable to wear a seat belt

A person who is actually 

engages in work that requires 

the person to alight from and 

reenter a motor vehicle at frequent intervals and who, while 

engaged in that work, does not 

drive or travel in that vehicle at 

a speed exceeding 25 miles per 

hour;

A rural mail carrier of the United 

States Postal Service while in 

the performance of duties;

A person driving of riding in a 

passenger vehicle manufactured before January 1, 1965; 

and

A person driving or riding in a 

pickup truck, while engaged in 

normal farming work or activity. 
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 11

GIS Data Analysis

The White Earth Nation has been using GIS for over 10 years, and 

it is now used in most Tribal departments. Because of the popularity of GIS in recent years, White Earth pursued a reservationwide GIS web site accessible by all Tribal staff. In January 2006, 

the White Earth DOT took the lead on this effort, supported by 

ProWest & Associates.

Because of the amount of coordination and work involved, 

implementation was expected to take place over a period of two 

to three years. The reservation has directed two percent of its 

planning dollars toward this project, which was estimated to cost 

$175,000. The funding covers project planning, parcel development, computer hardware, programming, database development, 

and training. The reservation was able to save $28,000 by 

ordering the needed GIS software through the Geographic Data 

Service Center at no cost.

The first step in making this project a reality was to create a 

Reservation wide parcel layer. Two of the three counties the 

Reservation covers already had been parceled. Clearwater and 

Becker Counties agreed to share their parcel layers with the reservation. Mahnomen County did not have funds available to 

have a parcel layer created so White Earth made funds available 

for the parceling, which is nearly complete. A number of layers

already are visible on the GIS web site with future plans to incorporate AsBuilt data, electrical lines, culvert inventory, septic 

inventory (in process), and crash data.

Each person must attend a training session before they are 

assigned a username and password. The web site currently is 

accessible and is being used by Tribal staff who will be able to use 

all this information, including crash data, to update their long 

range transportation plans (LRTP).

Low-Cost Safety Improvements

Bois Forte is implementing a number of low-cost safety 

improvements to prevent serious crashes on reservation roads, 

including training for the department of public works (DPW)

employees to protect their safety, maintain the equipment in good 

condition, and provide safe construction environments.

Heavy equipment operator schools for band members minimize 

unsafe situations and provide better maintenance. Snow plow 
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 12

training was provided by MnDOT personnel, along with training 

for other equipment addressing different types of environmental 

considerations. Other training includes safe trench construction, 

proper protective equipment, blood born pathogens training, and 

safety on construction projects.

A partnership agreement was signed between the Bois Forte Band 

of Chippewa and the St. Louis County, who built a sand/salt 

facility on the Bois Forte reservation, and agreed to keep the 

facility filled for the next 25 years. Both Bois Forte and St. Louis 

County will have full access to the salt and sand for faster 

response times.

They have a bear sanctuary, which means a high population of 

bear, lots of cubs, deer, etc. Early mowing of ditches prevents 

animals from hiding in the tall grass, which can be a risk to 

motorists when they dart into the roadway or the vehicle leaves

the roadway.

The reservation also keeps a check on the culverts and monitors

the “back roads.” Local road improvements include signs, pavement markings, etc. DPW officials invited county and MnDOT 

officials to view their roadway conditions. This led to additional 

funding.

Education

The Fond du Lac Reservation is implementing an injury prevention program with funding provided through an IHS/Tribal 

injury prevention cooperative agreement. Only 23 Tribes in the 

U.S. are funded under this grant. Since 75 percent of motor vehicle deaths impact individuals between the ages of 1 and 19, the 

program targets the reservation’s youth.

Students Against Destructive Decisions (SADD) program activities include red ribbon week, buckle up safely, brain injury, 

helmet use, safety belts, motor vehicle crashes, and drug/alcohol 

abuse. The latter program uses fatal vision goggles which simulate the alcohol impairment condition. The youth are able to see 

and understand how alcohol affects their vision and motor skills.

Injury prevention components are included in driver education,

including subjects such as cell phone use, safety belts, in-vehicle 

and outside distractions, and alcohol impaired driving.

The car seat/booster seat program format changed from individual appointments to bimonthly classes, which appears to have 

Fond du Lac

Injury Prevention Activities

Students Against Destructive 

Decisions (SADD) program;

Driver’s Education;

Child car seat / Booster seat 

program; and

Brain Injury Prevention Project.
Themes

Minnesota Tribal Road Safety Summit FINAL REPORT 13

increased the use of seats. Other activities include “Click It for a 

Free Movie Ticket,” which rewards parents “caught” with children buckled up with movie tickets, using crash test dummies at 

a pow-wow, a car seat clinic, and training for Fond du Lac law 

enforcement.

Enforcement

Leech Lake’s child passenger safety program involved building a 

coalition with police, courts, and judges. This group of law 

enforcement personnel is actively promoting passenger safety 

with Room to Live DVDs, which are given out with booster seats, 

car seats, etc. They hope for a primary law resolution. Promotional bags are issued at pow-wows and the coalition is working 

directly with children, as well as with the media. Leach Lake has

a Head Start grant which can be used to purchase child car seats 

and educate parents.
Summit Results

Minnesota Tribal Road Safety Summit FINAL REPORT 14

Summit Results

A primary Summit objective was to provide participants with a 

forum to share their experiences, learn from one another, and 

work together to begin identifying future directions. To achieve 

this, Summit participants were divided into breakout groups 

around specific discussion topics. On the first day, participants 

attended small group, multidisciplinary sessions focused on data. 

For the day-two sessions, participants were divided into three 

topic areas: engineering, enforcement/EMS, and education. The 

discussions on both days focused on: 1) what is current practice;

2) what are the gaps and obstacles; and 3) what can we do to 

move forward? The following highlights from each breakout session were presented to the full Summit (a detailed collection of 

participant comments from the breakout sessions is available in 

Appendix C).

 Data

The discussion groups successfully started a dialogue among 

the summit participants who shared ideas, programs, and 

challenges.

The data collection instruments, processes, and sharing practices vary widely between the Tribes, the BIA, the State, and 

FHWA for a host of reasons.

We need to develop a comprehensive data collection plan, 

which includes standard specifications and forms for recording 

data along with grants and incentives to encourage data collection.

Some Tribes are increasingly using technology to capture, 

transfer, and analyze their crash data.

We need to provide more technological equipment to expand 

accurate and efficient crash reporting.

A real opportunity exists for increasing communication, 

facilitation, and partnerships among the Tribes, state agencies, 

counties, and cities.

Summit Breakout Discussion
Summit Results

Minnesota Tribal Road Safety Summit FINAL REPORT 15

 Education

There is a lack of data for identifying problems accurately.

We must engage the community directly. Communication is 

critical, e.g., media, newsletters, etc. We could start a coalition 

to push forward such initiatives.

DPS will make sure Tribal contacts are on the mailing list to get 

grant applications, media releases, etc., so the Tribes can use 

them.

There are long standing partnerships on the engineering side. 

DPS will work with MnDOT to improve their partnership with 

the Tribes.

Injury prevention specialists do a great job but they should 

work more closely with law enforcement.

Perhaps a small task force could come out of this meeting to 

overcome the data issues.

 Engineering

A great opportunity exists right now for tribal involvement 

given current emphasis on the SHSP, RSAs, tribal safety plans, 

etc.

MnDOT wants the local and tribal units of government to 

develop local safety plans.

Tribes need to know what technical assistance, training, and 

other resources are available to them in pursuing safety efforts.

There is a lack of relationships, collaboration, and coordination, even within some Tribes among their own departments.

We need to get past data collection and focus on analysis, e.g., 

turning the data in problems identified, evaluation, etc. Safety 

is not data driven, it is analysis driven. This must be understood at all levels and all need to have the skills/tools to 

conduct analysis.
Summit Results

Minnesota Tribal Road Safety Summit FINAL REPORT 16

 Enforcement/Emergency Response

NW TZD is viewed as an opportunity.

Car seat giveaways are going on now. We need to focus on the 

education component.

More focus is needed on motorcycle safety. Motorcycle data is 

lacking on reservations. A helmet law should be enacted.

Safety belt data should be broken down by short trips, long 

trips, etc., and then focus should be given on how we get 

increase usage on shorter trips.

Work is needed on jurisdictions for tribal police to enforce 

safety belt laws. Red Lake is having a conversation with the 

counties on enforcement issues.

The difference between Tribal and state penalties poses a range 

of problems.

There is confusion regarding the treatment of non-band members on Tribal roads.

White Earth has taken a lead in accessing and working on 

Section 402 grants, bringing people together to work on 

behavioral initiatives.

Challenges are primarily the need for funding and access to 

reservation data.
Moving Forward

Minnesota Tribal Road Safety Summit FINAL REPORT 17

Moving Forward

Minnesota is committed to taking next steps in the pursuit of 

safer Tribal roadways. As emphasized at the beginning of the 

Summit and throughout, an important component of any future 

direction should be to continue to foster partnerships and multidisciplinary collaboration.

Participants will inform the Tribal Elders, leaders, and other 

safety stakeholders in their communities about the Summit 

results and lessons learned to determine future directions with 

regard to transportation safety education, enforcement, infrastructure, and data. Management needs to understand the costs 

and benefits of crash and injury prevention.

The results from the Summit will be shared with the Minnesota 

Indian Affairs Council to raise the priority of safety and obtain

the commitment of Tribal leaders to direct attention and resources 

to safety improvements on reservation roads.

The Advocacy Council for Tribal Transportation (ACTT) meets 

quarterly to discuss transportation issues that concern the 

Minnesota Tribes. With representatives from the 11 Tribes, 

MnDOT, TTAP, county and city engineers, FHWA, BIA, and others, this group provides an ideal forum for exploring methods for 

pursuing goals and initiatives expressed during the Tribal Road 

Safety Summit.

More information about resources available from the state, 

regional, and Federal partners involved in the Summit can be 

found at:

MnDOT: http://www.dot.state.mn.us/mntribes/

MnDPS: http://www.dps.state.mn.us/

TTAP: http://www.ttap.mtu.edu/

FHWA Office of Federal Lands Highway: 

http://flh.fhwa.dot.gov/programs/irr/safety/

FHWA Office of Safety: http://safety.fhwa.dot.gov/

CERS: http://www.ruralsafety.umn.edu/
Appendix A: Participants

Minnesota Tribal Road Safety Summit FINAL REPORT A-1

Appendix A: Participants

Name Affiliation E-mail Phone

Abramson, Amanda Tribal Technical Assistance 

Program, MTU

alabrams@mtu.edu 906-487-3475

Aitken, Linda MN DOT linda.aitken@dot.state.mn.us 218-547-0060

Baxter, John FHWA john.baxter@dot.gov 202-366-9494

Beck, Diane MN DOT diane.beck@dot.state.mn.us 320-214-6421

Beck, Loren City of New London apache@oituxs288.dot.state.mn.us 320-354-2111

Bedeau, Karen MN DOT karen.bedeau@dot.state.mn.us 218-755-6552

Benner, Dawn Bois Forte TERO Program dbenner@boisforte-nsn.gov 218-757-3261

Benson, Gina Red Lake Band of 

Chippewa Indians

bensongina@hotmail.com 218-679-3313

Branchaud, William Red Lake Band of 

Chippewa Indians

mexijibwe_chick@yahoo.com 218-679-3313

Brunelle, William Red Lake Department of 

Public Safety

wetpd801@hotmail.com 218-679-3313

Chaboyea, Arnold Red Lake Band of 

Chippewa Indians

meddriver2001@yahoo.com 218-679-3359

Chase, Dave Leech Lake Tribal Roads 218-335-8214

Chavers, Cathy Bois Forte Minnesota Chippewa cchavers@boisforte-nsn.gov 218-757-3261

Cloud, Cheryl Tribal Technical Assistance 

Program, MTU

cacloud@mtu.edu 715-292-1933

Connor, Matt Leech Lake Band 218-335-8200

Cossette, Jeremy White Earth Tribal 

Police Department

jeremyc@whiteearth.com 218-849-8831

Day, Steven White Earth Minnesota Chippewa stevend@whiteearth.com 218-983-3285

Deloquin, Joseph Otter Tail Co. Sheriff Dept. jfp@prtel.com 218-736-2576

Dorman, Mark Leech Lake Tribal Roads 218-335-8214

Estochen, Brad MN DOT bradley.estochen@dot.state.mn.us 651-234-7011

Frazier, Robert Bureau of Indian Affairs robert.frazier@bia.gov 505-563-3319

Fronk, Tom Bureau of Indian Affairs thomas.fronk@bia.gov 612-725-4553

Garcia, Russell FHWA/Federal Lands Highway russell.garcia@fhwa.dot.gov 202-366-9815

Gjovik, Wes Widseth Smith Nolting 218-316-3627

Graue, Bertha Bois Forte Minnesota Chippewa bgraue@boisforte-nsn.gov 218-757-0193

Herbel, Susan Cambridge Systematics, Inc. sherbel@camsys.com 202-494-5539

Hill, Alice Voyageur Sentinel vsentinel@northlc.com 218-757-3212

Hill, Annamarie Minnesota Indian Affairs Council ahillkleinhans@yahoo.com 651-296-0041

Hill, Duane MN DOT duane.hill@dot.state.mn.us 218-725-2715
Appendix A: Participants

Minnesota Tribal Road Safety Summit FINAL REPORT A-2

Name Affiliation E-mail Phone

Hill, Loren MN DOT lordh4141@yahoo.com 651-634-5100

Hollinday, Jason Fond du Lac Minnesota Chippewa jasonhollinday@fdlrez.com 218-878-2625

House, Corben Red Lake Band of 

Chippewa Indians

gybarra@yahoo.com 218-679-3313

Howard, Evelyn Leech Lake Band of Ojibwe evelyn.howard@llojibwe.com 218-368-5504

Howieson, Kelvin MN DOT kelvin.howieson@dot.state.mn.us 218-828-5707

Kamnikar, Mike MN DOT michael.kamnikar@dot.state.mn.us

Kleiner, Bernardo Cambridge Systematics Inc. bkleiner@camsys.com 301-347-0100

Knapp, Keith Minnesota, State of knapp078@umn.edu

Kostrzewski, Holly Fond du Lac Minnesota Chippewa hollykostrzewski@fdlrez.com 218-878-3759

Koukol, Matt MN DOT matt.koukol@dot.state.mn.us 651-366-3859

Kuhn, Greg Leech Lake Band Of Ojibwe gbheadbird@yahoo.com, 

gregory.kuhn@llpolice.org

218-335-8277

Kummrow, Tom Minnesota, State of kummrow@prtel.com 218-736-7838

LaRoque, Michael White Earth Minnesota Chippewa mikel@whiteearth.com 218-983-3285

Larson, Kim Leech Lake Band Of Ojibwe kim.larson@llojibwe.com 218-3354585

Leecy, Kevin Bois Forte Minnesota Chippewa kevin.leecy@boisforte-nsn.gov 218-757-3261

Lussier, Bryan Red Lake Band of Chippewa 

Indians

blussier@redlakenation.org 218-679-3350

Matrious, Mitchell Mille Lacs Minnesota Ojibwe 320-384-4635

Mitchell, Tim FHWA – Minnesota 

Division Office

tim.mitchell@fhwa.dot.gov 651-291-6121

Mogan, Marc Prairie Island Indian Community mmogan@piic.org 651-267-4084

Moilanen, Mike Mille Lacs Minnesota Ojibwe mikemoil@millelacsojibwe.nsn.us 320-532-7438

Myers, Bill Grand Portage Reservation 

Tribal Council

billm@grandportage.com 218-475-2277

Newby, Steve North Central Regional 

Council of Carpenters

snewby@mncarpenter.org 218-759-0153

Northbird, Gerald Leech Lake Band Of Ojibwe jerry.northbird@llojibwe.com 218-766-8738

Northbird, Gordon Leech Lake Tribal Roads 218-335-8214

Northbird, Patrick Leech Lake Tribal Roads 218-335-8214

Northrup, Patricia Lower Sioux Indian Community pnorthrup@lowersioux.com 507-697-6185

Pemberton, Arnold American Indian Health 

and Family Services

xsMp_o1x@hotmail.com 218-679-3092

Pickard, Brent Wisconsin – DOT brent.pickard@dot.state.wi.us 715-836-4623

Polich, Frank USDA Forest Service fpolich@fs.fed.us 218-556-4099

Prueser, Brent Mille Lacs Tribal Police 320-532-3430

Robinson, Mike MN DOT Mike.Robinson@dot.state.mn.us 218-725-2715

Rognerud, Michelle MN DOT michelle.rognerud@dot.state.mn.us 218-755-6572

Scheinost, Brian Mille Lacs Minnesota Ojibwe brians@millelacsojibwe.nsn.us 320-532-7437

Sherk, Dawn White Earth Minnesota Chippewa dawns@whiteearth.com 218-983-3263

Shopteese, JoLynn Minnesota Indian Affairs Council jolynnshop@yahoo.com 651-373-7742

Slettvedt, Kurt Bureau of Indian Affairs kurt.slettvedt@bia.gov 218-751-2011
Appendix A: Participants

Minnesota Tribal Road Safety Summit FINAL REPORT A-3

Name Affiliation E-mail Phone

Sorel, Tom MN DOT thomas.sorel@dot.state.mn.us 651-366-4800

Spears, Delwyn Red Lake Band dspears@paulbunyan.net 218-766-0962

Staples, Daniel Leech Lake Tribal 

Roads

218-335-8214

Swenson, Tom MN DOT thomas.swenson@dot.state.mn us 218-746-7970

Thompson, Robert Mille Lacs Minnesota Ojibwe robertt@millelacsojibwe.nsn.us 320-532-7841

Tibbetts, Burny White Earth Minnesota Chippewa burnyt@whiteearth.com 218-983-3263

Tibbetts, Terrance White Earth Minnesota Chippewa terryt@whiteearth.com 218-983-3285

Vizecky, Mark MN DOT mark.vizecky@dot.state.mn.us 651-366-3839

Vogel, Bill Grand Portage Reservation gplanduse@boreal.org 218-475-2415

Whiteman, John, Sr. Bois Forte Minnesota Chippewa 218-757-0193

Wickner, Gary Leech Lake Tribal Roads 218-335-8214

Wipson, Lorraine Grand Portage Reservation 

Tribal Council

lorrainew@grandportage.com 218-475-2277

Ybarra, Guadalupe Red Lake Band of 

Chippewa Indians

gkybarra@yahoo.com 218-679-3313

Yerbich, Diana Minnesota Indian Affairs Council diana.yerbich@mniac.org 218-755-3825
Appendix B: Agenda

Minnesota Tribal Road Safety Summit FINAL REPORT B-1

Appendix B: Agenda
Appendix B: Agenda

Minnesota Tribal Road Safety Summit FINAL REPORT B-2
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-1

Appendix C: Detailed Breakout 

Group Comments

 Data

Current Practice

White Earth employs IHS observation points to measure traffic 

flow and conducts safety belt surveys.

Tribes often get a sense of where/how many fatalities occur 

only through IHS.

Mille Lacs (and two others Tribes) report crash and safety belt 

data to the State using the state crash report form.

Red Lake is Federally funded so they report directly to the BIA 

and not to the State.

Documentation is needed to determine who collects what data, 

who reports to whom, and how can consistency be achieved in 

data collection and reporting?

Gaps and Obstacles

Local policy lacks continuity, and not all agencies submit property damage only (PDO) crash information in cases with no 

fatalities or injuries. Often the Tribal people ask for data but it 

has not been reported to DVS. The numbers of PDO crashes 

appear to be decreasing but it is because people are pressed for 

time or they do not think it is important to report such crashes. 

No one tracks whether the data are turned into the State.

Some reservations are POST (Peace Officer Standards and 

Training) certified, which mandates data reporting to keep the 

department’s licensure, and some are not.

Many times there is no sketch of the crash scene.

Often location data is inaccurate.

Data earlier than 2002 are not available.

Maintenance personnel are not required to use crash data.
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-2

Tribes appear to report either to the BIA or the State and their 

police certification is not consistent. The reason the BIA data 

are not shared with the State is unclear. It also is unclear why 

BIA police are not POST certified. (The inconsistencies may 

begin at the Federal level.) BIA requires written permission 

from the Tribal chairman to share the data, which may account 

for the lack of data sharing with MnDOT.

While it appears data are available, it is unclear whether they 

are being analyzed.

Some Tribes do not have a compact with the State, which 

results in a lack of trust.

Some reservations are checker boarded (land mass is not 

contiguous), which makes data collection between reservation 

and nonreservation roads difficult.

Next Steps

Establish reciprocity between the State and Tribes to share 

information.

Build relationships and improve collaboration with the 

counties.

Utilize partnership agreements, e.g., the State fixes the road 

and the Tribe agrees to maintain it.

Work on the politics/relationship building side of all this. 

Develop a good understanding of current practice and meet 

with the Tribal elders/leadership. The Tribes need to provide 

input and feedback to state practice.

 Education

Current Practice

Car seats/booster seats, educational campaigns.

SADD.

Public information materials:

Web-based;

Press releases;

Quarterly/seasonal materials distribution to Tribes;
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-3

Brain injury prevention materials; and

Reports and fact sheets.

Click it or ticket.

Safe and sober driving.

Impaired driving education in high schools prior to prom.

Grant funding for safe communities programs.

Parent education.

Buckling up contracts during parents’ night.

Classes for parents on keeping kids safe:

Group and one on one; and

Focus on educating to enable them to teach their parents.

55 alive (driver education course for those over 55).

Safety training video geared toward 13-35 males (provided to 

unions, companies, etc., to educate workers).

SNAP: Safe Native American Passengers program:

http://www.nhtsa.dot.gov/CPS/Training/

CPSCourses/pages/SNAP.html

Gaps and Obstacles

Safety training materials specific to ethnicity.

Data gathering (GIS) training.

Crash data consolidation.

Data collection consistency.

Communications across all areas:

Task forces;

Meetings;

Committees;

Crash data sharing; and

Language/fields on crash form that identify ethnicity 

(Tribal).

Change BIA grant guidelines to identify crash location.

Presentations decision-makers and to the community to help 

start/implement/fund/change programs.
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-4

Tribal newsletters.

Tribal Council support.

More people to assist with community outreach.

Press/newsletter coverage, better information distribution.

More peer exchanges for young drivers.

Education on law and cell phone use for those under 18.

Lack of funding.

People/staff (time).

Community buy-in/support.

Partnerships.

Law enforcement (involvement, implementation, man-power).

Collaboration among the 4 Es.

Next Steps

Communication:

Representatives who go into communities and form a trust 

with the people; and

Once partnerships are created with the communities, move 

up to Tribal Councils, etc.

Continue education and start at an early age.

Build relationship with law enforcement.

Form coalitions to demonstrate how different departments are 

working together.

Create a small task force or workgroup, including DPS, to 

address crash data collection and distribution issues.

Work with the media.

 Engineering

Current Practice

When White Earth scopes projects, they look at what types of 

problems are safety-related. State Road 59 seems to be a specific problem.
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-5

Road Safety Audits (RSA) have been conducted on reservations and some Tribes have been trained to conduct RSAs.

MnDOT is providing RSA training with cities, counties, and 

Tribes. HSIP sponsors RSAs as part of the program. Tribes are 

eligible to participate.

Crash mapping tool is available only for desktop use.

MnDOT has divided up funds for spot improvements and systemwide improvements. Two counties are funded as pilot 

counties to develop road safety plans.

Safe Routes to School (SR2S) funds are available. Fond du Lac 

has accessed funding for a SR2S planning grant.

Gaps and Obstacles

Often Tribal personnel do not really know what the other 

departments are doing within the Tribe.

Need for training, e.g., how to identify programs that can help 

them. Then make the leaders aware so they see the benefit. 

How to work their way through the program, select countermeasures, etc.

Tribes do seem to be aware of or taking advantage of RSAs.

Time and personnel limitations.

Lack of coordination/collaboration.

Locals may not understand critical crash rates, etc., so MnDOT 

funding is not available to them.

Some MnDOT personnel do not support flexing HSIP funds 

for enforcement.

White Earth is now partnering with three counties. Some 

county roads are being returned to the Tribes because it makes 

sense from a maintenance perspective.

Next Steps

Focus on data collection and analysis.

Pass a primary safety belt law – most of the Tribes have 

approached White Earth to learn how to pass the law. MnDPS 

helped White Earth with signage and education about the law.

Use MnDOT safety funding to develop safety plans. Conduct 

RSAs to identify safety problems and submit applications. 

Focus on low-cost safety improvements.
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-6

Coordinate the Technology Implementation Plan (Federal 

Lands Highway with Forest Service, BIA, National Park 

Service, Wildlife Refuge Road Systems. Competitive funds are 

available covering most aspects of transportation proposals,

including safety. The funds are not being utilized because not 

enough field staff are available to access the funds.

Use consultant services to help the Tribes identify and secure 

safety funding.

Use BIA funds to hire officers to analyze data and collaborate 

with other departments, including maintenance.

Identify programs, contacts, etc., and provide the information 

to the Tribes. (MnDOT State Aid provides a list of programs/

funding available to locals on their traffic safety page.)

Coordinate among BIA, Tribes, FHWA, counties, DOTs, IHS, 

etc., to structure approaches.

 Enforcement/Emergency Response

Current Practice

NW Toward Zero Deaths.

Expanded the MnDOT Bemidji District program.

Car Seat Giveaway.

White Earth: Safe and Sober grant and Safe Communities 

projects.

Red Lake Tribal Council: contractual agreement with Beltrami 

County for enforcement authority for nonmembers on reservations, e.g., cross-deputization.

Gaps and Obstacles

Car seat education.

Motorcycle helmet emphasis.

Identify motorcycle crash statistics for Tribal communities.

Encourage safety belts on short trips.

Target populated areas versus rural areas.

Tribal penalties differ from state penalties (often lower).
Appendix C: Detailed Breakout Group Comments

Minnesota Tribal Road Safety Summit FINAL REPORT C-7

Coordinating funding sources and manpower into one safety 

plan is challenging.

State funding versus funding for Tribes.

Lack of Tribal crash data.

Next Steps

Focus on motorcycle safety, obtain data, and pass a helmet law.

Use data to target campaigns, e.g., belt use on long versus

short trips.

Identify jurisdictions where Tribal police can enforce belt laws. 

Collaborate with the counties on enforcement issues (Red 

Lake).

Align Tribal and state traffic penalties.

Code state crash data code by Reservation.