Bois Forte Indian Reservation
Comprehensive Economic Development
Strategy Document
YEAR 2013
Prepared by:
Bois Forte Planning and Community Development
Page |-1Table of Contents
RESOLUTION
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Methodology
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1.A List of CEDS Strategy Committee:
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4
4
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Background – where are we as a region?
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2.A. History.
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2.B. Geography
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2.C. Transportation
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2.D. Land Use
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2.E. Environment
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2.F. Infrastructure
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2.G. Population
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2.H. Economy
. . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . .
2.I. Workforce indicators
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Occupation
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T.E.R.O
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Employment Status
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Assessment
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3.A. Cluster analyses
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3.A.1
Tourism
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3.A.2.
Retail
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3.A.3.
Timber and bio-energy
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Wild
3.A.4.
Rice
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3.A.5.
Health Care.
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3.B. Other related plans.
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3.C. Investments.
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3.D. S.W.O.T. Analysis
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Strengths
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Weaknesses
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Opportunities
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Threats
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Vision –
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4.A. Vision Statement
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4.B. Goals
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4.C. Objectives
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4.D. Suggested Projects.
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12
Implementation Plan
5.A. Possible Projects
5.B. Plan of Action
5.C. Partners
Local/Regional
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1
4
5
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Page |-2Federal and State
6
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5.D. Performance Measures
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Disaster Resiliency Strategy
6.A. Emergency Planning
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Bois Forte Emergency Plans
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ACKNOWLEDGEMENTS
Page |-3-
RESOLUTION
WHEREAS, the Bois Forte Reservation Tribal Council is the duly elected governing body of the Bois Forte Tribal
Government; and
WHEREAS, the CEDS was developed to set the Bois Forte Band Of Chippewa’s vision for economic
development and to maintain the Band’s eligibility for funding through the United States Economic
Development Administration; and
WHEREAS, the CEDS was recommended for approval by the CEDS committee;
NOW, THEREFORE BE IT RESOLVED, that the Bois Forte Reservation Tribal Council formally adopts the 2013
Bois Forte Tribal Government CEDS, authorizes the staff to implement the CEDS, and assist the Bois Forte
Tribal Government in developing EDA eligible projects that fulfill CEDS goals.
Page |-4-
1. Methodology
1.A List of CEDS Strategy Committee:
Andy Datko, Planning and Community
Development
Bernard O’Leary, Vermilion Wellness Center
Carol Burr, Commissioner of Housing
Corey Strong, Bois Forte Executive Director
Dawn Benner, TERO Officer
Gary Gotchnik, CEO Fortune Bay
Gordy Adams, Small Business Program
Coordinator
Jennie Rowland, Bois Forte Transit
Coordinator
Jennifer Pontinen, UMD
Jim Tolan, Fortune Bay
Joel Astleford, Commissioner of Public
Works
Nikki Pieratos, CDFI
Randy Long, IT Director
Tara Geshick, Natural Resources
Department
William Whiteman P&CD
1.B. This Bois Forte CEDS is being completed in cooperation and integration with the Arrowhead Regional
Development Commission’s CEDS plan.
1.C. Community and business sector participation. The CEDS committee includes representation from Tribal
Businesses and community members.
1.D. The CEDS Committee’s deadline for completion of the CEDS will allow for a 30 day Public comment period
prior to submittal in October 2013.
1.E. The RTC will adopt this document by resolution prior to submittal in October 2013.
Page |-52. Background – where are we as a region?
2.A. History.
Bois Forte, or “strong wood”, was the French name given to the Indians living in the densest forests of what is
now extreme northern Minnesota. The Bois Forte Band of Ojibwe (also referred to as Chippewa) has lived in
northern Minnesota for centuries, but they did not originate there. The people journeyed from the east coast
up the Saint Lawrence River, around the Great Lakes and followed rivers and lakes inland.
The community first entered into a treaty with the United States in 1854 that set aside an undefined region
around Lake Vermilion as a reservation. The regions at Nett Lake and Itasca County–Deer Creek–were officially
established in an 1866 treaty, and the Lake Vermilion lands were defined in an 1881 executive order. In 1997,
the Bois Forte Reservation Tribal Council assumed full responsibility for the delivery of all government
programs and services to its people.
2.B. Geography
The Bois Forte Reservation is located in northern Minnesota in Koochiching and St. Louis counties,
approximately 40 miles south of the Canadian border. The reservation is divided into five distinct geographic
areas.
The Nett Lake Reservation encompasses approximately 108,000 acres of which 43 percent is wetland. The
Nett Lake sector is home to the majority of the Bois Forte Band members (approximately 668 people) and the
Band’s primary government offices. The Nett Lake reservation contains the main population center of Nett
Lake Village, and also the smaller Palmquist residential area.
Page |-6Indian Point and Sugar Bush are separate parcels within 1 mile of each other and encompass 81.2 acres and
84.2 acres respectively. They are located on Pelican Lake near the town of Orr, Minnesota. Approximately 80
people reside in these two areas, which are located about 15 miles east of Nett Lake.
The Vermilion Lake Reservation is located on Lake Vermilion, near Tower in St. Louis County. Approximately
220 people reside on the 2,000 acres. Fortune Bay Resort Casino, the Bois Forte Heritage Center, the
Vermilion Family Wellness Center and the Vermilion Community Center and Health/Dental Clinics also are
located at the Vermilion Lake Reservation.
Deer Creek Reservation encompasses 120 acres in Deer Creek Township, Itasca County. However, no Band
members live in Deer Creek.
Most of the land on the Reservation consists of wetlands or boreal forests on rocky ground. Land
development is therefore difficult and expensive.
Bois Forte Indian Reservation
Nett Lake Sector – 108,000 acres
Lake Vermilion Sector – 2,000 acres and
Deer Creek Sector – 23,000 acres
Lakes:
Nett Lake 7,800 acres
Lake Vermilion 40,000
acres
Busties Lake 400 acres
Navigable streams:
Little Fork river
Big Fork river
Nett river
Woodduck river
Lost river
Woodduck river
Popple creek
Portage creek
Page |-7-
2.C. Transportation
The Bois Forte Reservation at Nett Lake is served by U.S. Highway 53, St. Louis County State Aid Highway 23,
and Minnesota Trunk Highway 65, along with numerous local arterial and collector streets. The Lake
Vermilion Reservation is served by U.S. Highway 169, St. Louis County road 77, and County Road 104. There is
also a pedestrian/bicycle trail at Vermilion which links several residential neighborhoods, the Vermilion Social
Center and Clinic complex, and Fortune Bay Resort Casino.
There are no direct railroad connections on the Reservation, but a major rail line serves the region, along the
Highway 53 corridor from International Falls to Duluth. Airports serving the region include the Orr Regional
Airport, Cook Regional Airport, Tower Regional Airport, Hibbing/Chisholm Regional Airport (with commercial
flights to Minneapolis), and the Duluth International Airport (with flights to Minneapolis, Chicago, Detroit, and
beyond).
Bois Forte initiated a public transit system, Big Woods Public Transportation, in 2012. This system currently
has two buses that provide commuter route service and on-demand transit, and also contracts with
Arrowhead Public Transit to provide additional routes that connect to their larger regional transit system.
2.D. Land Use
The Bois Forte Reservation Tribal Government has adopted a comprehensive land use and development plan,
and zoning ordinance, in order to encourage the most appropriate use of Reservation land; and to recognize
and preserve the economic, environmental and cultural values of all lands within the Bois Forte Reservation.
The Land use plan and zoning ordinance includes development guidelines and designated districts for
residential, commercial, industrial, public works, government and administrative, natural and cultural resource
protection, and recreational use areas.
Page |-8The Reservation is heavily forested and comprised of pine, aspen, cedar, birch, ash and other species. Timber
is managed by a Reservation Forester with an objective of maintaining an annual allowable cut that plans for
future growth.
According to timber cover type, common wetland related species including cedar, black spruce, swamp
conifer, swamp hardwoods and tamarack occupy approximately 39% of trust lands within the Reservation. It
is estimated that up to an additional 15% of trust lands are likely to be wetlands.
Nett Lake itself is a critically important natural and cultural resource, and is managed for its natural wild rice
production. It is also an important fall staging area for waterfowl, and provides migration habitat for
waterfowl and other migratory birds in the spring. White-tailed deer is considered the most important big
game animal on the Reservation. There is a small harvest of moose within Reservation boundaries annually.
Ruffed grouse are plentiful and its habitat management is largely compatible with that for deer.
2.E. Environment
As noted above, the environment consists primarily of northern boreal forest with numerous wetlands,
exposed bedrock or rocky soils, with numerous lakes and rivers. It is a natural environment rich in natural
resources such as wild rice, fish and wildlife, timber resources, and lakes and streams that are attractive for
recreational uses. The numerous wetlands and rocky soil conditions do present challenges to land and
infrastructure development.
2.F. Infrastructure
Bois Forte has a Public Works department that maintains public water and sewer systems at Vermilion, Nett
Lake Village, Palmquist, and Indian Point. There are 117 miles of roads identified on the Indian Reservation
road (IRR) system for Bois Forte. This includes 96 miles of tribal roads maintained by Bois Forte Public Works,
and 21 miles of State and County Roads.
Telecommunications infrastructure has generally been inadequate, but recent projects are bringing fiber optic
cables into Nett Lake and Vermilion beginning in 2013. This will greatly improve the telecommunications
capacity on the Reservation.
The Reservation is served by Lake Country Power, an electrical distribution cooperative. There is no natural
gas available on or near the Reservation, and little prospect of that occurring in the future. The area is served
by several propane distribution companies.
Page |-92.G. Population
Bois Forte Minimum Data Report 2012
Total Tribal Enrollment
3350
1639
Total Tribal Resident Indian Population
(TRIP)
4460
TRIP under age 16 years old (by gender)
876
433 male
TRIP between 16-64 years old (by
gender)
2691
1338
TRIP over 64 years old (by gender)
893
443
TRIP between 16-64 years old not
available for work
338
96
Total TRIP employed in Public sector
401
213
Total TRIP employed in Private sector
157
92
Total TRIP employed but below poverty
level
198
105
Total Trust/Restricted Acres
42820
1711
443 female
1353
451
243
189
65
93
2.H. Economy
The economy in the northeastern Minnesota has traditionally been dominated by mining, timber, and tourism.
Of these, tourism and timber have been most prominent on the Reservation, with tourism related businesses
the most important. Under the management of the Bois Forte Development Corporation, the Band now owns
and operates Fortune Bay Resort Casino, The Wilderness Golf Course, WELY–End of the Road Radio, the YStore, Ledge Liquors, Y-Express Lube, Nett Lake C-Store and Bois Forte Wild Rice. Fortune Bay Resort Casino
officially opened in August of 1986 and currently employs over 500 people, annually injecting more than $30
million into the economy of northern Minnesota.
The Bois Forte Band has carefully reinvested their revenues and diversified their business portfolio as part of
their commitment to strengthening the region’s economy and increasing Band member employment.
2.I. Workforce indicators
The BIA American Indian Population and Labor Force Report indicated that exactly half of the Bois Forte
Reservation population was available for work, but that 39% of Band members were out of the labor force. In
a 2010 Tribal Self-Governance Minimum Data Collection Report, Bois Forte reported nearly identical statistics.
However, the BIA and Bois Forte reports only address limited employment data. Since the 2010 U.S. Census
did not ask questions related to employment, the American Community Survey serves as the only source for
the information shared in the rest of this section and subsequent sections related to employment.
The American Community Survey provides the most current employment status data for the Bois Forte
Reservation. The trend reports that Bois Forte experiences an unemployment rate over double the rest of the
county, state, and nation (see graph). As of July 2011, the U.S. Bureau of Labor Statistics reported
unemployment rates of 8.2% for the St. Louis County area, 7.2% for Minnesota, and 9.1% for the nation.
Expecting the same disparities in the unemployment rate as before, the Bois Forte Reservation could have a
present unemployment rate between 16.5%-18%.
The American Community Survey also provides further information on employment status by the number of
hours worked. Of the 84% employed, only 65% worked full-time (over 35 hours per week). In the past 12
P a g e | - 10 months reported, only slightly more than half of those employed full-time worked the full year. In fact, 30% of
“full-time” workers actually worked less than half of the year.
Occupation
Employment in various occupations differs by gender. Nearly 2/3 of the male working population works for
private for-profit entities compared to only ½ of the female working population. Men are also twice as likely to
be self-employed. Conversely, women work for the local tribal government at nearly double the rate of men.
T.E.R.O
Tribal Employment Rights Organization
The Tribal Employment Rights Organization (TERO) was established by tribal law, enacted by the Bois Forte
Tribal Council, to promote and require Indian Preference in employment, training and contracting. The TERO
Ordinance, revised and adopted on July 20, 2005, covers all non-governmental employers and projects located
on or near the Nett Lake Indian Reservation.
The Nett Lake Band of Chippewa Indians have a sovereign right to employment opportunities on and near
their own land. These rights are protected through your local TERO Ordinance enacted by the Bois Forte Tribal
Council.
In the event a job opening occurs for which they are qualified, Tribal members register with the TERO office to
ensure they are listed by job skills and qualifications.
The TERO Commission consists of 5 members and officers and 2 alternates who are appointed by the Bois
Forte Tribal Government.
P a g e | - 11 -
Employment Status
Population Age 16 years and Older
Not in Labor Force
Unemployed
Employed
In Labor Force
38.77%
15.98%
84.02%
61.23%
37.90%
5.70%
92.43%
62.10%
United States
Minnesota
St. Louis
County
Bois Forte
Reservation
Source: American Community Survey
28.80%
5.98%
94.08%
71.20%
34.96%
7.15%
92.85%
65.04%
United States
In Labor Force
Minnesota
Employed
Unemployed
St. Louis County
Not in Labor Force
Bois Forte Reservation
0.00%
50.00%
100.00%
P a g e | - 12 -
Assessment
3.A. Cluster analyses
The Bois Forte Reservation is located within the Northeast Minnesota Economic Development District. The
Arrowhead Regional Development Commission (ARDC) has prepared a Comprehensive Economic
Development Strategy for the Northeast Minnesota Economic Development District. That strategy document
and associated planning efforts have identified nine industry clusters in the region. Those clusters are:
1. New energy production, manufacturing and servicing.
2. Regional creative clusters.
3. Innovative manufacturing.
4. Mature manufacturing.
5. Timber, wood, paper and spinoffs.
6. Mining.
7. Medical services and biomedical/biotechnical spinoffs.
8. Transportation and logistics support.
9. Arts, entertainment, recreation and visitor industries (tourism).
Some of these industry clusters have greater relevancy to economic development opportunities on the Bois
Forte Reservation, and some have less. The clusters most applicable to the Bois Forte Reservation are as
follows.
3.A.1 Tourism. The major businesses of the Bois Forte Band are tourism related. Fortune Bay Resort
Casino and the Wilderness at Fortune Bay (golf course) are very successful Band owned businesses,
and are tourism dependent. These businesses attract hundreds of thousands of visitors each year. The
success of these established businesses, and the visitors they attract, presents possibilities for other
related and complementary businesses, or for businesses that could provide support services to these
established businesses. The Band also has potential to increase Cultural Tourism activities, which is a
growing niche in the tourism market, and one that the Band is well positioned to participate in.
3.A.2. Retail. This is related to the tourism cluster listed above, but is separated out as its own cluster.
The Band has a successful track record operating two convenience stores and a liquor store. That
experience and success could be extended to other retail business opportunities to serve the
“captured” visitor market at Fortune Bay, or the local resident population.
3.A.3. Timber and bio-energy. The Band has a substantial timber and woody biomass resource on the
Reservation, and there are also significant biomass resources in the surrounding area. In 2009 the
Band completed a Biofuels Feasibility Study, with assistance from the Natural Resources Research
Institute (NRRRI) of the University of Minnesota. That study quantified the biomass resources available
for possible utilization for innovative bio-energy production. The Band also has an active forest
management program designed for sustainable harvest of its timber resources. The local paper and
wood products manufacturing industry has undergone a period of steep decline, with several local
wood products plants permanently shutting down over the past ten years. The timber and biomass
resource remains however, and could provide an opportunity for the right kind of innovative bioenergy business.
3.A.4. Wild Rice. The Band controls access to a very significant and important natural and cultural
resource – Nett Lake, which is one of the most productive wild rice lakes in North America. The Band
P a g e | - 13 has an existing wild rice sales and marketing program, but there is potential for increased economic
activity utilizing this resource, both by the Band and by individual members.
3.A.5. Health Care. The Band operates medical and dental clinics at Nett Lake and Lake Vermilion, and
is in the process of building a new clinic at Vermilion. There may be potential for support businesses,
such as pharmacy services, that could leverage these existing businesses.
3.B. Other related plans.
Other plans that were consulted and used as reference material in the preparation of this CEDS plan include:
BF Comprehensive Land Use Plan and Bois Forte Zoning Ordinance, 2010.
Bois Forte Tribal Government Strategic Plan, 2010-2015.
Bois Forte Housing Improvement Plans.
Arrowhead Regional Development Commission CEDS, 2010.
Bois Forte Business Feasibility Study, 2013..
3.C. Past and present economic development investments.
The major economic development investments on or near the Reservation are:
Fortune Bay Resort Casino, The Wilderness Golf Course, WELY–End of the Road Radio, the Y-Store, Ledge
Liquors, Y-Express Lube, Nett Lake C-Store, Powerain Systems, and Bois Forte Wild Rice. There has been very
little private business investment on the Reservation, mostly due to issues over land ownership on the
Reservation, and to some extent the lack of uniform commercial codes on the Reservation. This last problem
is currently being addressed through the Tribal Attorney, who is going to be drafting a Uniform Commercial
Code for application on the Reservation.
In 2010, the Tribal Government initiated efforts to establish a Community Development Financial Institution
(CDFI) on the Reservation. The decision was made to develop this CDFI in the form of a Tribal Credit Union. As
a result of this effort, the Northern Eagle Federal Credit Union is expected to receive its charter from the
National Credit Union Administration (NCUA) in late summer 2013, and to open sometime before the end of
calendar year 2013. The Tribal Government also has operated a small business loan fund that provides credit
counseling and small business loans to Bois Forte entrepreneurs, located both on and off the Reservation.
3.D. S.W.O.T. Analysis
The CEDS Committee has done a strengths/ weaknesses/opportunities/threats analysis as part of this CEDS
planning process.
Strengths:
•
•
Natural Resources-
•
Tax Advantages
Timber
•
Tribal Sovereignty
Wild Rice
•
Land
Wild Life
•
Tourism
Lake Vermilion
•
Cultural Heritage
Labor Forcemore skilled people looking for work
•
•
Communications Infrastructure
Experience with Partnerships with outside entities
collaboration with other Tribes
Handicrafts, artists
•
Treaty Rights
•
Access to Federal funds
•
More educated Youth
•
Vermilion Sewer and Water System
•
Strong balance sheet and ability to borrow at favorable
P a g e | - 14 •
Formation of the new Credit Union
•
New Public Transportation system
Fortune Bay & other existing businesses gaming diversified businesses
•
terms
•
Progress in lowering unemployment rate
•
Existing business assistance programs
•
New Vermilion State Park
•
Local commercial codes are discouraging to outside
businesses
Weaknesses:
•
Reliance on Federal funding
•
lack of Tax base
•
debt
•
•
Lack of educated workforce in critical skilled
occupations (technical trades)
Law Enforcement, jurisdictional and prosecutorial
jurisdiction issues (P.W. 280)
•
Lack of money
•
No post-secondary school on the Reservation
•
Future of Gaming
•
Low population density
•
Lack of Housing
•
Remote location
•
Need for more off Reservation businesses
•
Maxed out sewer systems
The availability natural gas is nonexistent
Difficulty of obtaining Mortgages on leased land
distance to markets
•
higher fuel costs
•
•
High employee turnover at Tribal businesses
•
•
•
Challenges in recruiting employees
Challenges in providing transit services to shift
workers
•
Lack of clearly defined process for starting new, privately
owned, businesses on the Reservation
•
Inadequate legal/business infrastructure
•
renewable energy
•
The Vince Shute Bear Sanctuary as a partnership opportunity
Opportunities:
•
CLEC - Coop Local Exchange
Carrier
Telecom
•
Partner with Institute of Higher Learning
•
Internet based businesses
•
Transit Program
•
Bandwidth
•
•
Adopt UCC
Reservation purchasing power
opportunity for new businesses to serve
demand on and near the reservation
•
On-line education opportunities
•
Development or acquisition off-Reservation
businesses near or on Hwy 53 and Deer Creek.
fiber optics
•
Workforce training (how to interview, basic job
expectations, etc)

New Lake Vermilion State Park
Threats:
•
The uncertain future of Indian Gaming
•
Macro-economic forces (overall state of the economy)
•
•
Sequestration, i.e. declining federal funds
Rising gasoline costs resulting in a negative impact on
tourism
•
Erratic and unreliable workforce
•
drug/alcohol abuse
•
Negative perceptions of Native businesses (e.g. native
on-line lending firms)
•
On-line Gaming
Threats of boycotts due to public perception (or
misperceptions) about the Band’s position on
regional mining issues
•
•
Tribal association with:
P a g e | - 15 Predatory lendors
Payday lending
On-line lendors
2. Vision – where do we want to go?
4.A. Vision Statement
“The Bois Forte Band of Chippewa will promote and encourage entrepreneurship and business creation for the
Band and its members through the sustainable use of its natural resources, strategic investment in its human
resources, and the wise stewardship of its financial resources.”
4.B. Goals
•
Create jobs, provide jobs.
•
Develop a trained workforce
Demystify the business development
•
process
•
Create wealth and self sufficiency
Create awareness of available resources and
•
to change perceptions
•
Establish a healthy economy
•
Diversify: locations and types of businesses
Establish the commercial and legal
•
infrastructure conducive to prosperity (e.g
Uniform Commercial Code, business leases)
•
Establish centralized business information
•
office (one stop shop)
Native Chamber Commerce
MNIBA
MICC
4.C. Objectives
 Provide Training and Education
opportunities
 Quantify sustainable business starts
 Prioritize and allocate resources
 Take advantage of off-reservation
business opportunities
 Explore and pursue partnering
opportunities
 Utilize and support Band owned and
Band member owned businesses
 Compile a list of Band member owned
businesses
4.D. Suggested Projects.
P a g e | - 16 The Bois Forte Business Feasibility Study was completed in July 2013. This comprehensive study was prepared
by Nikki Pieratos, Northern Eagle Credit Union Manager, Gordy Adams, Bois Forte Small Business
Development Manager, and Jennifer Pontinen University of Minnesota Duluth’s Center for Economic
Development (UMD CED). This study examined spending patterns of the Bois Forte Tribal Government, tribal
businesses, and individuals on and near the Reservation to gain insight into the types of businesses that might
be feasible to develop in the area. The study also looked at the limitations that population thresholds and
geographic factors have on the potential success of business development on the Reservation.
This study was reviewed and discussed by the CEDS committee. Rather than focus too much on individual
projects, we focused on several specific project types that appear to have potential for Bois Forte. Those
project types provide a useful framework to think about and evaluate potential business development
projects:
4.D.1. Look beyond the borders of the Reservation at business opportunities elsewhere. These could take the
form of strategic partnerships with other entities. It could also involve acquiring land or businesses in better
locations, for example along the Highway 53 corridor.
4.D.2. Focus on business opportunities that can take advantage of the existing business base already
developed at Fortune Bay and other established Tribal businesses . Look at opportunities to tap into that
existing market with new services or products (e.g. a salon or spa, or greenhouse operation).
4.D.3 Internet / telecommunications based businesses. The low population density, long distance to markets,
and poor transportation infrastructure put Bois Forte at a major competitive disadvantage compared to other
areas. Internet or telecommunications based industries can often avoid those issues. The Reservation is
scheduled to receive fiber optic services at both Vermilion and Nett Lake by 2014. This opens the door to
considering other types of business development opportunities, such as call centers, home based internet
business, and many others.
4.D.4. Natural resources based value added industries. Bois Forte has abundant forest resources, which could
possibly provide the basis for value added business such as specialty wood products or biofuels. Bois Forte
also has a unique and valuable wild rice resource at Nett Lake. They currently operate a small wild rice sales
and marketing enterprise, but there is potential to expand that and to add value-added wild rice products.
4.D.5. Native arts and crafts. Bois Forte is noted for its tradition of arts and crafts. There are several
renowned Bois Forte artists, and numerous individuals that produce unique hand-crafted items
P a g e | - 17 -
3. Implementation Plan
5.A. Possible Projects
Some preliminary findings in terms of possible business opportunities include the following. The CEDS
committee discussed each of these ideas and added their insight. These are the business opportunities with
some potential for success at Vermilion and Nett Lake.
Vermilion:
 Salon at Fortune Bay. Committee thought this has potential, especially given the wedding business
that Fortune Bay already attracts.
 Spa at Fortune Bay. This would also take advantage of existing business base at Fortune Bay.
 Auto repair.
 Fast food restaurant.
 Child Care services.
Nett Lake:
 Auto repair. Committee thought this has high potential.
 Grocery Store. Population threshold requirement is 700, so this does not appear feasible at Nett Lake.
But there was much discussion about the possibility of acquiring or developing a grocery store in Orr,
which could serve a larger population area.
 Car wash. Low potential for automatic carwash, but possible for a self-serve wash, and possible
opportunity for an auto detailing business.
 Arts and crafts.
Other business development ideas discussed by the committee include:
 Lawn and garden store. Low potential, but possible higher potential for a greenhouse/nursery
business to supply plants and flowers to Fortune Bay, the Wilderness Golf Course, and other area
businesses.
 Pharmacies or satellite pharmacies at Nett Lake and Vermilion. Possible potential for pharmacy
services associated with the clinics. Also possibility of satellite pharmacy in Orr.
 Consignment shop and other retail.
 On-line businesses. Discussion of how on-line businesses may be a way to mitigate the population
threshold issues of most fixed-location businesses. Some specific discussion of payday lending
businesses, but the consensus was that these should be avoided due to the predatory nature of these
firms.
 Micro-brewery, perhaps at Fortune Bay.
 Wild Rice pre-packaged food business. This would leverage one of the Band’s most significant
resources – Nett Lake Wild Rice.
 Insurance Agency. This could leverage the significant level of insurance products being purchased by
Tribal Government and Tribal businesses.
 Tourism related family entertainment at or near Fortune Bay. This has been evaluated in the past, but
may be worth another look.
 Propane company. This has also been evaluated in the past, but may be worth another look.
 Forest products and biomass resource related businesses. This has been a volatile market but may be
worth a look given the Band’s large timber resources
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Possible “Ready to Assemble Housing” manufacturing – strategic partnership. Bois Forte has been
approached by a group looking for partners to develop a large factory to produce this product which
can be marketed to northern Canadian First Nations, and to emergency response agencies and other
markets in North America.
Fiber optic to the Home. Bois Forte IT Department will investigate funding sources for a fiber to the
home project to bring high speed broadband service to residences on the Reservation.
Funding for business development projects is a very crucial component of the success or failure of the effort.
Possible funding sources include EDA, MN DEED, IRRRB, USDA-RD, Tribal funds, or commercial financing.
The lead business development organization of the Bois Forte Tribal Government is the Bois Forte
Development Corporation, which manages Fortune Bay and several other businesses, and oversees the small
business development program. Other key players are the Small Business Development Program, the
Northern Eagle Federal Credit Union, and the Bois Forte Planning & Community Development Department.
5.B. Plan of Action
The following steps and actions will be taken in regards to evaluating and developing potential business
opportunities as identified in this plan, and as may emerge in the future.
5.B.1. . Look beyond the borders of the Reservation at business opportunities elsewhere. The Bois Forte
Development Corporation (BFDC) will take the lead on investigating and evaluating potential business
development or investment possibilities off-Reservation. These opportunities could include acquisition of
existing businesses, acquiring land for new business development in strategic geographic locations, or
partnering with other businesses or entities. Specific opportunities that will be evaluated include a grocery
store in Orr, MN, partnership with outside entity in regards to a “ready to assemble” housing manufacturing
business in International Falls, MN. The Bois Forte Planning & Development Department (BFP&D) will provide
technical assistance.
5.B.2. Focus on business opportunities that can take advantage of the existing business base already
developed at Fortune Bay and other established Tribal businesses. The existing Tribal businesses provide
numerous potential business opportunities that could take advantage of the existing customer base and/or
the purchasing needs of those established businesses. The BFDC will take the lead on evaluating ancillary
businesses that might be directly tied to or managed through the BFDC. For example, a spa or salon at
Fortune Bay could be developed as another tribally owned business within the Fortune Bay complex, or
alternately it could be developed by a private entrepreneur who would enter into a leasing agreement or
management contract with the BFDC. If such businesses were to be developed by private entrepreneurs, the
Bois Forte small business loan program and the Northern Eagle Credit Union will play a role in providing
business planning advice, credit counseling, and start-up loans.
5.B.3 Internet / telecommunications based businesses. This category could especially lend itself to small
entrepreneurial and home based business start-ups. The Bois forte IT Department will take the lead on
coordinating the installation of fiber optics to the Reservation main businesses and Government facilities That
installation should be complete in 2014. IT, with assistance from the BFP&D will also take the lead in seeking
funding for a “fiber to the home” project, which would provide high-speed broadband connectivity to
residences on the Reservation. Once that fiber is in place, there is a huge potential for home based internet
business to flourish. To encourage such businesses, the Tribal Government will attempt to provide computer
and internet business training. The Bois Forte Education Department can also work with High School and
P a g e | - 19 young adults to encourage them in obtaining technical training in these fields. The Bois Forte small business
loan program and the Northern Eagle Credit Union will play a role in providing business planning advice, credit
counseling, and start-up loans.
Larger telecommunication type projects are also feasible, once the broadband fiber is available. There may be
opportunity for Tribally owned businesses as a result. The BFDC will take the lead in evaluating those larger
projects, with assistance from the Bois Forte Planning & Development department, and Bois Forte IT.
5.B.4. Natural resources based value added industries. In 2009 the Bois Forte Tribal Government completed a
Biofuels feasibility study, looking at the potential for a woody biomass based alternate fuel facility. The
conclusions of that study were that Bois forte has a significant supply of biomass material available with a 25
mile radius of Nett Lake. As the technologies for converting woody biomass to higher value fuels continues to
improve, there is potential for Bois Forte to participate in this emerging industry. The Bois Forte Planning &
Development Department will continue to monitor the progress of that technology development, and will be
prepared to propose implementation plans at the appropriate time. The BFDC would also be a major player in
any such development effort.
Nett Lake Wild Rice also presents an opportunity to develop value added products and marketing strategies to
increase the sale of Nett Lake Wild Rice. Gordy Adams, Small Business Development Coordinator for the BFDC
will continue to take the lead on implementing this project. We have sought USDA funding for this project,
and will continue to do so.
5.B..5. Native arts and crafts. This is a category that lends itself to small business entrepreneurs. The Small
Business Development Coordinator and the Northern Eagle Credit Union will take the lead role in providing
business planning advice, credit counseling, and start-up loans. The BFDC will provide support by negotiating
access to display space at the Band owned retail operations at Fortune Bay and the C-Stores. This category
will also benefit substantially by the completion of fiber optic installation on the Reservation, and eventually
fiber to the home.
5.C. Partners
These partnerships include:
The 1854 Authority,
Army Corps of Engineers,
Arrowhead Economic Opportunity Agency,
Arrowhead Regional Development Commission,
Arrowhead Transportation Partnership,
BIA 638 contracts,
Blandin Foundation
Bois Forte Business Development Corp.,
Bois Forte Reservation Tribal Government,
Indian Land Tenure Foundation,
Iron Range Economic Alliance,
Iron Range Resources & Rehabilitation Board,
Lake Superior College,
Lake Vermilion Tourism Association,
Laurentian Chamber of Commerce,
Mesabi Range College,
P a g e | - 20 Minnesota Chippewa Tribal Executive Committee
Minnesota Chippewa Tribe Finance Corporation,
Northern Tourism Alliance,
Northwest Technical College
Orr Economic Development Council,
Prior Lake Mdwakanton Sioux Tribe,
Tribal TAP/RTAP,
St. Louis County Roads,
St. Louis County,
The Minnesota Chippewa Tribe and
Tower Economic Development Authority.
Federal and State
The Bureau of Indian Affairs IRR funds,
Economic Development Agency,
Federal Highways Administration,
Federal Home Loan Bank,
Minnesota Department of Transportation,
Minnesota Housing Finance Administration,
Minnesota Indian Affairs Council,
Minnesota Indian Gaming Association,
Minnesota Interagency Fire Control Center,
HUD ARRA funds,
NAGPRA,
NAHASDA,
National Congress of American Indians,
National Indian Gaming Association,
USDA – Wildland Fire Training,
USDA Forest Service and
USDA Rural Development.
5.D. Performance Measures
The Bois Forte Planning and Development Department will annually review the performance of the CEDS in
meeting the goals and will report the assessment of the performance measures in the CEDS Annual Report.
Those measures include:
 Number of projects by category;
 Number of technology or brownfield projects by category;
 Number of investments funded by EDA and other sources;
 Number of jobs created and retained as result of CEDS initiatives;
 Number of private sector investment as a result of CEDS initiatives and
 Amount of public sector investment as a result of CEDS initiatives.
The performance measures will include:
 The number of jobs created after implementation of the CEDS;
 The number and types of investments undertaken on the reservation;
 The number of jobs retained on the reservation; and
 Changes in the economic environment of the reservation.
P a g e | - 21 
Increase in the number of Band members, including off reservation, starting businesses
6. Disaster Resiliency Strategy
6.A. Emergency Planning
6.B. Priorities to Stabilize and Support Economic Resiliency
Bois Forte Emergency Plans
The Band’s original EOP, or the “Emergency Operations Plan & Resource Manual”, was completed and
approved by the Tribal Council in 1997. It was revised and approved again in July, 2005, when Fortune Bay’s
“Emergency Manual” was added to it at that time. It also had a later addition/supplement completed in June,
2007 titled: “Community Health All-Hazard Response and Recovery Plan, Supplement I: Pandemic Influenza
Plan.” Our Tribal Emergency Response Committee (TERC) will be revising the EOP and completing the new
changes and additions needed in the Fall 2013. This dynamic document will continue to be revised annually,
as policies, programs, procedures or personnel change.
The Nett Lake School also has its own plan, titled: “Nett Lake Elementary School Emergency Crisis Plan”. It
was originally completed in August, 2011. It’s also revised annually.
Fortune Bay also has its own Emergency plan, titled: “Fortune Bay Resort Casino Emergency Operations
Plan”. It is currently in the final stages of revision, and will be submitted to the Tribal Council for approval in
August 2013. When approved it will then be reviewed at least on an annual basis, and whenever policies,
programs, procedures or personnel change. The “Fortune Bay Resort Casino Fire Emergency and Evacuation
Plan” was finalized in February of 2013.
P a g e | - 22 ACKNOWLEDGEMENTS
Gordy Adams, Bois Forte Small Business Program
Joel Astleford, Bois Forte Commissioner of Public Works
Brandon Benner, Rep. Dist. 1 Bois Forte Reservation Tribal Government
Dawn Benner, Bois Forte TERO Officer
Carol Burr, Bois Forte Commissioner of Housing
Karlene Chosa, Rep. Dist. 1, Reservation Tribal Government
Andy Datko, Bois Forte Planning and Community Development
Tara Geshick, Bois Forte Commissioner, Natural Resources
Gary Gotchnik, CEO Fortune Bay
Kevin Koski, Bois Forte Emergency Preparedness Director
Kevin Leecy, Chairman, Bois Forte Reservation Tribal Government
Randy Long, Bois Forte IT Director
Billie Mason, Bois Forte Education, Commissioner
David Morrison, Secretary/Treasurer, Bois Forte Reservation Tribal Government
Bernard O’Leary, Bois Forte Vermilion Wellness Center
Nikki Pieratos, Bois Forte CDFI
Jennifer Pontinen, UMD
Jennie Rowland, Bois Forte Transit Coordinator
Corey Strong, Corey Strong, Executive Director, Bois Forte Reservation Tribal Government
Jim Tolan, Fortune Bay
Raymond Toutloff, Rep. Dist. 2, Bois Forte Reservation Tribal Government
William Whiteman, Bois Forte Planning and Community Development