to protect such gaming as a means of generating revenue. To understand the significance of IGRA and why Congress was willing to overlook the longstanding policy of leaving gaming regulation to state governments, there are two key historic facts that must be understood. The first is the special trust relationship between the United States, which entails both moral and legal obligations to tribal governments. The second is that tribal governments, like state governments, are an integral part of the Constitutional framework of the United States as reflected in Article I, Section 8 cl. 3 of the Constitution itself. Except in the few, rare cases where tribes owned developable natural resources, such as oil, gas, and other extractive minerals, tribal governmental revenues were largely insufficient to meet the needs of tribal citizens. Most tribal governments were largely dependent on federal resources for basic governmental services and even these were not sufficient fill the gap for even the most basic services. Much of Indian Country lacked adequate education, law enforcement, fire protection, water and sewage, doctors, clinics, hospitals, schools, roads, bridges, and other basic infrastructure and services. Even today, many tribal citizens have no or limited access to clean water and electricity, much less cellular and internet services. IGRA reflects Congress’ “outside the box” approach to addressing these terrible conditions. For those tribal governments that have been able to use gaming as a means of generating governmental revenue, the difference has been astounding. By any socioeconomic measure, improvements have been dramatic from increases in life expectancy to community health and public safety, to education to infant mortality rates to jobs and employment, and the list goes on. Gaming revenues serve as the tax base that tribal governments previously never had. Tribal gaming revenue builds and strengthens tribal governments and improves the quality of life in Indian Country. It does not enrich the few; it builds Nations. Indian gaming is the economic bloodline for 243 tribal governments. Tribal governments use Indian gaming revenue to put a new face on their communities, dedicating resources to improving basic health, education, and public safety services on Indian lands. Tribes use gaming revenue to improve infrastructure, including the construction of roads, hospitals, schools, police buildings, water projects, communications systems, and so much more. In 2024, 243 tribal governments in 29 states generated $43.9 billion in direct revenues through Indian gaming operations and $5.7 billion in ancillary revenues 2 for a total of $49.6 billion in total revenues. Without question, Indian gaming is the most successful tool for economic development for many Indian tribes in over two centuries. For many tribes, Indian gaming is first and foremost about jobs. Nationwide, Indian gaming is a proven job creator. In 2024, our industry generated more than 274,000 direct jobs. When indirect jobs are included, Indian gaming employs more than 672,000 Americans. Indian gaming has provided many Native Americans with their first opportunity for work at home on the reservation. Because of Indian gaming, reservations are again becoming livable homesteads, as promised in hundreds of treaties. These American jobs go to both Indians and non-Indians alike. Tribal governments realize that none of these benefits would be possible without a strong regulatory system to protect tribal gaming revenues and preserve the integrity of our operations. Tribes invest more than $450 million annually, employing more than 6,000 regulators to oversee
2 Ancillary revenues include hotels, food and beverage, entertainment, and other activities related to a tribal government’s gaming operation.
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