When Autumn Nelson decided she was ready to seek treatment for her alcoholism, she knew she had to act fast.

“When someone with an addiction says, ‘I need help,’ we’re begging,” she said. “We want it.”

Nelson, who lives on the Blackfeet Reservation, knew she might have to leave home to get the help she needed. Crystal Creek Lodge provides inpatient and outpatient treatment on the reservation, but community members say the place is almost always at capacity. Journey to Recovery, another facility on the reservation, provides outpatient services primarily focused on supporting individuals after they return from inpatient treatment. And sometimes, it can be helpful for people struggling with addiction to leave their environment and disconnect from people in their circles who may be using.

So when Journey to Recovery gave Nelson the contact information for a treatment center in Arizona, Nelson was hopeful. She was ready to get clean. Little did she know she’d soon be caught up in a national scandal.

Phoenix House Recovery, a treatment center in Arizona, paid for Nelson’s plane ticket to Arizona, and Nelson was eager for a fresh start. Her father died of cancer three years ago, and just before his death, her younger brother died in a car accident.

“That really set my alcoholism off,” she said. “I kind of just stepped out of reality for a while.”

But Phoenix House Recovery wasn’t what Nelson had imagined. She has a background in health care and had been to other treatment centers in the past, and as time went on, she grew suspicious about how the facility was run.

“I started asking questions,” Nelson said. “Like, ‘Where’s the 12-step plan? Why isn’t that in our daily agenda? Why aren’t we learning about triggers, external and internal? Where is our life skills training? Why aren’t we building resumés? Why is there one therapist for 30 patients?’ I asked the clients and staff, and they kicked me out the next day.”

Out on the streets in 100-plus degree weather, Nelson had to find somewhere to go. She looked into other sober living homes but grew concerned when she was offered alcohol and drugs at one of them. She didn’t know who she could trust.

“I was scared,” she said. “I’m thousands of miles away from my family and my home. I was freaking out. I was hysterical.”

While Nelson ultimately made it home to the Blackfeet Reservation, her experience in Arizona is not uncommon.

What happened to her has happened to thousands of other Native Americans in Arizona amid a widespread Medicaid fraud scheme, where treatment centers billed the state thousands of dollars per patient for services that were not actually provided. Indigenous people from Montana, Arizona, New Mexico and South Dakota were recruited to get treatment at these fraudulent facilities, and experts estimate that at least 100 Native Americans from Montana are tangled in the scam.

The scheme defrauded Arizona taxpayers, and at these fraudulent sober living homes, some clients were given drugs and alcohol. Others were told to get on food stamps. And some people seeking treatment were paid to recruit more Native Americans to these facilities. As the fraudulent treatment centers have shuttered amid a government crackdown, Montana tribes and grassroots advocates are scrambling to get their relatives home. But because these facilities changed clients’ state of residency to Arizona for billing purposes, it’s even harder for tribes and families in Montana to locate their loved ones.

What exactly is happening in Arizona?

Arizona officials have called it “a stunning failure of government.”

In a widespread scam, treatment facilities in Arizona billed for nonexistent services, and the money was paid through the Arizona Health Care Cost Containment System (AHCCCS), Arizona’s Medicaid program. The scam targeted Native Americans because a loophole in AHCCCS’s American Indian Health Program allowed individuals to pose as a treatment facility.

Reva Stewart, who launched the campaign #StolenPeopleStolenBenefits to raise awareness of the fraud, said experts have traced the origins of the scam to the pandemic.

“They targeted Native Americans because the American Indian Health Plan would pay for everything they documented,” she explained. “Once these places found out they could get something like $1,700 per day per person, you saw them popping up everywhere. With that money, one home can make $2 million in two weeks. I even saw a YouTube video on how to open a sober living home in 15 minutes.”

The Arizona Mirror reported that AHCCCS was billed $53.5 million under the outpatient behavioral health clinic code in 2019. In 2020, it more than doubled to $132.6 million, and by 2022 it exploded to $668 million.

The FBI, which is investigating the fraud, is seeking to contact victims of the scam. The agency said in some cases, organizers pick up addicts at popular gathering places; sometimes individuals are given alcohol during transport; and clients are told to obtain food stamps during their time in treatment even though their enrollment brings funding to the home. The FBI investigation has resulted in at least 45 indictments by the office of the Arizona Attorney General, and at least $75 million has been seized.

Arizona Gov. Katie Hobbs in May announced, according to The Associated Press, that the homes defrauded the state of hundreds of millions of dollars. AHCCCS has since suspended payments to hundreds of providers in the state.

As these homes have closed, Native American residents are left on the streets of Arizona in temperatures nearing 115 degrees. Some people have been reported missing, and others have turned up dead.

‘I blame them’

Mona Bear Medicine, Blackfeet, said when her 25-year-old son RayDel Calf Looking went to Phoenix for treatment, she had high hopes for him.

Calf Looking completed a longer treatment program, lasting 60 or 90 days, and Bear Medicine said he was doing well. There are many highly regarded treatment facilities in Arizona that have effective programs and competent staff, and plenty of Montana tribal members speak highly of them.

“He sent a selfie over Christmas, and he looked really healthy,” Bear Medicine said of her son. “He looked good. And I could tell he was doing good for himself.”

Bear Medicine said her son started drinking in high school, but she didn’t realize he was doing drugs until about five years ago. Calf Looking was gay, and Bear Medicine said he struggled to come out and faced adversity when people he loved didn’t accept him.

“I think that was the reason he got into drugs,” she said. “He didn’t know how to come out. He was teased for it, and it hurt him. He started doing different drugs, and it got worse and worse, and he got into meth. It was hard for me to realize the extent of it, and I didn’t realize how hard it was going to be on my family.”

Calf Looking completed the long-term program, and then went to a sober-living home in Arizona, called Calm Integrated Healthcare. Bear Medicine said, “That’s when the problems started.”

In February, Bear Medicine hadn’t heard from her son in a while, and she was worried. She and her sister flew down to Arizona and found Calf Looking, who had walked out of the home and appeared to be intoxicated.

“He was disappointed in himself for relapsing,” Bear Medicine recalled.

Bear Medicine took her son back to Calm Integrated Healthcare and almost immediately got a bad feeling about the place. She said her son was clearly intoxicated, and the staff at Calm Integrated said it was fine for him to stay with Bear Medicine at her motel for a few days.

“It was so shady,” Bear Medicine said. “When she said RayDel could stay with us, I asked, ‘What does he need to do? Does he need to go to class?’ And she just said, ‘No, he doesn’t need to do anything.’ When I drove away, I said to RayDel, ‘I’m so confused. I thought sober living was sober.’ And he said, ‘They don’t care as long as they get your money.’”

When Calf Looking stayed with Bear Medicine at the motel, he kept drinking, and after Bear Medicine left, she knew he was still drinking, even though he’d returned to the sober-living home.

In late March, Calf Looking’s cousin, Vandree Old Person, was found dead on the Blackfeet Reservation, and Calf Looking, who was supposed to fly home to be a pallbearer, was taking the death hard. Again, Bear Medicine didn’t hear from him, and again, she was worried.

One day in April, Bear Medicine got a call from a detective.

“When she called, I thought, ‘What did he do now?’” Bear Medicine recalled. “I said, ‘Is he in jail? Is he hurt?’ And she said, ‘No.’ Then she asked me, ‘Is anyone with you?’ and that’s when it started clicking. I said, ‘Oh my God. Is he dead?’ And she said, ‘Yes.’”

The detective told Bear Medicine that her son broke into a house while intoxicated and the homeowner, fearing for his life, shot Calf Looking as he walked up the stairs of his home. Bear Medicine said her son was shot in the back, which she finds incongruous with the detective’s recounting. And she still hasn’t received an autopsy. She was told the FBI is investigating her son’s case, but months later, she still hasn’t heard from the federal agency.

Calm Integrated Healthcare has told Bear Medicine that her son walked out of their facility and was not under their care at the time he was killed, but Bear Medicine maintains that the sober-living home had a part in his death.

“I do think the center was responsible for his death,” she said. “They took the money but still let him drink. He was really trying. He really did try, but it was so easy for him to have a free place to stay that allowed him to drink. I blame them. I really blame them.”

AHCCCS payments to Calm Integrated Healthcare were suspended on May 15 — about a month after Calf Looking was killed.

‘It’s systemic’

Just as with Autumn Nelson, Journey to Recovery in Browning connected Josh Racine to a treatment center in Arizona. A spokesperson for Journey to Recovery was not available for comment.

Racine, Blackfeet, flew out to Sunrise Native Recovery, an alcohol and drug treatment center in Scottsdale, in March. About a month later, he was on the streets.

Laura McGee, Racine’s sister, didn’t know where he was or what happened, but she was determined to find him. She called Sunrise Native Recovery, but they were no help. She called the hospitals in the area, but no luck there, either. Racine would occasionally ask her to send him food at the treatment center — something McGee thought was odd — so she scoured previous food orders to try and nail down a timeline of his disappearance. She scrutinized past texts with her brother to pinpoint a location, but her efforts felt futile.

“I was panicking because I knew what had happened to RayDel,” she said. “It was a feeling I can’t even describe. We lost our mother suddenly, and seven months later, our stepdad, who primarily raised Josh, died. And then our grandmother died, and our first cousin died of an overdose. So Josh is already an addict and now he’s out on the streets dealing with sudden death.”

As McGee did more research, she learned about the hundreds of other sober-living homes in Arizona that had been shut down. It became clear that the problem was bigger than just her and her brother, so she approached the Blackfeet Tribal Business Council.

“I told council, ‘I need help,’” she recalled. “’You sent him there through a program on this reservation. I need help getting him back.’”

The council ultimately paid for a few of McGee’s family members to fly to Arizona, and they successfully brought Racine home, but McGee’s work was not done. Upon her brother’s return, she began to piece together the broken system.

Through conversations with her brother, McGee said she learned that Sunrise charged AHCCCS at least $117,000 in one month for services related to Racine — services that Racine himself said he did not receive.

“That was for one month for one person,” McGee said. “So imagine doing that for 20 or 80 people in a facility. It adds up.”

Racine told McGee that the centers would give clients $50 a week to live on, and he was reportedly told by Sunrise that if he recruited other Native Americans, they would reward him with $100.

“It’s systemic,” McGee said. “There weren’t protocols, and people were being taken advantage of.”

McGee said people struggling with addiction are a particularly vulnerable population, which worked to the scheme’s advantage.

“These are addicts who have lost the trust of their families,” she said. “So when they say, ‘This treatment center isn’t good. They’re putting me out on the street,’ families weren’t believing them. These people knew that and used it against them.”

That’s exactly what happened to Wendy Bremner. Her daughter Brooke Running Crane, Blackfeet, also went to Sunrise, and Running Crane was also suspicious of the facility. She told her mother she wasn’t comfortable at Sunrise and was scared to be there. But Bremner didn’t know what to do.

“I didn’t want to be an enabler,” she said. “I don’t know if what she’s telling me is true. I don’t want to interfere with treatment.”

Later, Running Crane’s anxiety about Sunrise rose to a breaking point, and she was hospitalized for a panic attack. Sunrise told Bremner that her daughter could not return to the facility, and as far as Bremner could tell, her daughter was going to be discharged from the hospital on to the streets.

Bremner called Sunrise over and over again until they finally agreed to help transfer Running Crane to another facility. Running Crane’s new facility is a good one, but Bremner said she doesn’t know what would’ve happened to her daughter if she hadn’t intervened.

“It was really scary,” she said. “She didn’t have anywhere to go, and I was just calling people saying, ‘You can’t just throw my daughter out.’”

Bremner said her daughter ended up at Sunrise because she’d heard of several people in Browning who’d gone there. And when Running Crane expressed that she wanted to receive treatment, Bremner said the treatment facilities in Arizona “felt like a miracle.”

“Families are desperate to get their people help when they say, ‘I want to go to treatment,’” she said. “It’s very rare, so at that moment, you really want to get them in somewhere while they’re ready to go. It’s so hard to get treatment here, and sending her far away is scary, but we wanted her to get help.”

AHCCCS payments to Sunrise Native Wellness were suspended on July 21 — almost two months after Racine went missing and five months after Running Crane’s panic attack.

Tribes take action

After the Blackfeet Council helped get Racine home, it quickly became clear that its work wasn’t done.

As McGee became more vocal on Facebook, more and more families reached out saying their loved ones were missing or stuck at treatment centers in Arizona. McGee continued to present her findings to the tribal government, and eventually, the council came out with a formalized plan of action.

Councilman Lyle Rutherford directed facilities on the reservation, including Journey to Recovery, not to send clients to treatment centers in Arizona. The tribe has worked with McGee and other advocates to bring at least 10 members home. And on Tuesday, the council issued a public health state of emergency “for Blackfeet tribal members affected by the humanitarian crisis arising from shuttered fraudulent behavioral health treatment facilities in Arizona.”

The council on Thursday instituted a ban prohibiting the solicitation of individuals on the reservation to attend fraudulent treatment facilities in Arizona and established civil penalties for individuals or entities that violate the ban at $5,000 for the first offense, $10,000 for the second offense and permanent expulsion from the reservation on the third offense.

The council also pledged to continue to help members who were displaced and said it created a task force to identify displaced individuals.

Councilwoman Shelly Hall said the emergency declaration helps bring awareness to the crisis and could allow the tribe to allocate more money toward its resolution.

“I believe there are about eight or 10 more Blackfeet down there,” Hall said. “This is important because these are our members. If they’re in any kind of trouble, we want to help them. We’ve heard horror stories of people who are on the streets in this heat.”

McGee said she also urged Gov. Greg Gianforte’s office to issue a public service announcement on the matter but was told that his office needed more information on the subject. She also reached out to members of Montana’s congressional delegation, and Sen. Jon Tester sent a letter to the Centers for Medicare and Medicaid Services, urging the group to “immediately investigate this matter further and provide a detailed report of their findings.”

The Billings Area Indian Health Service has asked Montana tribes to let the agency know how many citizens have been impacted, and other tribes in Montana have also taken action.

Josie Fisher, Northern Cheyenne, was at a different treatment facility in Arizona and didn’t feel safe. She said a staff member made inappropriate sexual comments to her, and she wrote on Facebook that she wanted to leave.

Fisher got connected with advocates through Facebook, and the Northern Cheyenne Tribe paid for her plane ticket home.

“I’m so thankful to be home,” she said. “I’m at peace now. When I was there, I was just in survival mode.”

Northern Cheyenne Councilwoman Melissa Lonebear said as of Aug. 1, the tribe had helped three members get home from Arizona and added that the council is working with the tribal health department to develop a plan to get more people home.

She said part of the issue is that there is no treatment center on the Northern Cheyenne Reservation.

“The way the system is set up is if someone hits rock bottom and they want treatment, they will do an assessment at the Northern Cheyenne Recovery Center and then get referred to an outpatient 10-day program,” she said. “After 10 days, there’s a chance a bed will open in Billings or Butte, but that person may have to just return home. And because we don’t have sober living homes here, people come back and return to the same environment.”

Lonebear is hopeful that the tribe will be able to help people return home from Arizona, but acknowledged the council will have to overcome significant barriers in doing so. To be eligible for AHCCCS, treatment centers had clients change their residency address to Arizona, so it’s hard for tribal councils in Montana to know how many of their members are there. And tribes have noted that even when someone returns home, it can take time to change their residency back to Montana and re-enroll them in Medicaid.

“I just posted on Facebook asking, ‘How many Cheyenne members do we have in Arizona?’” Lonebear said. “I’m getting names from families, and it’s hard. It’s hard to reach people because there’s no way to communicate if that person doesn’t have a phone. This is a lot bigger than we know.”

Fisher’s boyfriend was at the same facility in Arizona, but it wasn’t as easy for him to get home. Jacinto Brien is Crow, and he tried reaching out to his tribe, just as Fisher had. But he had no luck.

“I tried reaching my tribe on the phone, but I couldn’t get ahold of anyone,” he said. “And because I’m Crow, the Northern Cheyenne Tribe couldn’t help.”

Reva Stewart, of the #StolenPeopleStolenBenefits campaign, ultimately fundraised to help get Brien home. Her GoFundMe has raised more than $8,000 to help Native Americans caught in the scam.

“I’m really grateful,” Brien said of Stewart’s efforts. “I’d just say, for any tribe that’s willing to help, please answer your phones. People need your help. This is important.”

Resources

If you or a loved one is at an Arizona treatment center or was at an Arizona treatment center and wants to come home, here are some resources:

• Call your tribe. See if they can help bring you or a loved one home.
• The Billings Area Indian Health Service is asking each tribe to let the agency know how many members have been impacted. Send relevant information to Jennifer.Lamere@ihs.gov and Steven.Williamson2@ihs.gov or call 406-247-7248.
• For an updated list on which Arizona treatment centers have been suspended, visit azahcccs.gov/Fraud/Providers/actions.html.
• To either verify or report an existing treatment center, visit verifyandreport.org.
• If you suspect Medicaid fraud or a health violation, call the Montana Department of Public Health and Human Services’ fraud hotline at 800-201-6308.
• If you would like to file a report to add to the ongoing FBI investigation into Arizona treatment centers, visit forms.fbi.gov/phoenixgrouphomes.
• Advocates Reva Stewart and Laura McGee can be reached on Facebook.

This article was first published in the Missoulian. 

The post Sober living fraud scheme targeted Montana tribal citizens appeared first on Buffalo’s Fire.

On a brisk February morning with snow on the ground, children arrived at Tsé Bit A’í Middle School in Shiprock, on the Navajo Nation in northwestern New Mexico. Word in the hallway was something was afoot: Substitute teachers were waiting in each classroom.  The children’s 35 regular teachers were spotted, sitting in a large circle […]

The post Growing number of NM schools pursue restorative justice to keep kids in schools appeared first on New Mexico In Depth.

Editor’s Note: This article first appeared in Keep It Rural, an email newsletter from the Daily Yonder. Like what you see here? Join the mailing list and receive more like this in your inbox each week.

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Christopher Nolan’s biopic of Robert Oppenheimer, “father of the atomic bomb,” opened recently and the internet exploded with praise and #Barbenheimer jokes (the Barbie movie premiered on the same day and the contrast between the two made for some excellent memes). 

While I’ve certainly spent my fair share of time indulging in these memes, one aspect of “Oppenheimer” that’s been largely overlooked are the real-life impacts of the Manhattan Project, the lab Oppenheimer led that developed the atomic bomb. 

Oppenheimer’s work took him to Los Alamos, New Mexico, where the world’s first nuclear weapon was developed and eventually tested in the Alamogordo Bombing Range, also known as the Jornada del Muerto desert, 210 miles south of Los Alamos. One hundred more tests were conducted between 1945 and 1962 in New Mexico and Nevada, according to Princeton University research. 

The fallout of these tests in rural communities near and far has been felt ever since.

The bomb was developed by the United States, with support from Canada and the United Kingdom, during World War II in response to threats that Germany was developing their own nuclear weapons. Atomic bombs were dropped over Hiroshima and Nagasaki, Japan, in August of 1945, killing an estimated 110,000 to 210,000 people, most of them civilians. 

As the United States developed its nuclear weapons technology, scientists chose remote areas in Nevada and New Mexico to drop test bombs under the assumption that nothing was out there. Of course, this wasn’t true: the desert is home to thousands of plant and animal species that have built remarkable adaptations to the extreme temperatures — high and low — this biome is known to bring. But not everyone recognizes the value of the desert, which is why it’s been the site of not just nuclear bomb testing but radioactive waste storage proposals and aircraft boneyards.

The desert is home to people, too. “Downwinders” is the term used to describe people exposed to radioactive contamination from nuclear fallout. The health effects are deadly: 19 types of cancer are listed as compensable under the Radioactive Exposure Compensation Act that provides financial support to people who were exposed to nuclear fallout. The law has awarded more than $2.5 billion to nuclear workers and downwinders near the Nevada test site in the south of the state (crowds used to flock to the Las Vegas strip to view the mushroom clouds that formed from the dropped bombs). 

But New Mexicans were left out of much of this funding, even though Los Alamos was where the first atomic test bomb — called the Trinity Test — was dropped. This test is the main plot of the new Oppenheimer movie. 

According to reporting from Source New Mexico, “despite the government’s continued description of the Jornada del Muerto test site as ‘isolated,’ and ‘remote’ in archives, tens of thousands of people lived within 50 miles of the first nuclear blast. These people, and their descendants were marked by diseases without family histories [that might predispose them] – including leukemia and other cancers.”

The Tularosa Basin Downwinders Consortium is a group of New Mexicans who claim they were exposed to nuclear fallout from the Trinity Test and suffered from illness and death afterward. Some downwinders were as close as 12 miles to the drop, according to the group. 

The Radioactive Exposure Compensation Act has never provided this group compensation. And new research shows the Trinity Test’s nuclear fallout may have reached even farther than New Mexico, to 46 states and Mexico and Canada. 

These are the details “Oppenheimer” leaves out, making it a painful watch for people still suffering from the Trinity Test aftermath.

The post ‘Oppenheimer’ Discourse Leaves Out Downwind Communities appeared first on The Daily Yonder.

Savanna Greywind. Daisy Mae Heath. Ashlynne Mike. The reading aloud of those names and five other missing or murdered Indigenous women and girls followed by a moment of silence opened a three-day hearing of the Not Invisible Act Commission in Albuquerque on Wednesday.  The federal commission — made up of tribal leaders, law enforcement, service […]

The post Crisis of missing and murdered Indigenous people brings federal commission to Albuquerque appeared first on New Mexico In Depth.

Once so polluted no one could see the mountains 100 miles away, Farmington’s air is now clear – but fossil fuels may power its future.

This story was produced in partnership with the nonprofit newsroom Type Investigations and is co-published with ICT.

In any given year, thousands of people are incarcerated in dozens of detention facilities run by tribal nations or the Bureau of Indian Affairs. Often left out of research on climate and carceral facilities, the tribal prisoner population is one of the most invisible and vulnerable in the country.

Now, climate change threatens to make matters worse.

According to a Grist analysis, more than half of all tribal facilities could see at least 50 days per year in temperatures above 90 degrees Fahrenheit by the end of the century if emissions continue to grow at their current pace. Ten facilities could experience more than 150 days of this kind of heat. Yet many tribal detention centers do not have the infrastructure, or funding, to endure such extreme temperatures for that long. This kind of heat exposure is especially dangerous for those with preexisting conditions like high blood pressure, which Indigenous people are more likely to have than white people.

“Tribal court jails are the worst jails in the country. They’re worse than any facilities you’ll ever go to,” said Diego Urbina, a public defender for the Pueblo of Laguna. “I worked at a [veterinary] hospital when I was 15 years old, and the vet hospital had better facilities than we have out here.”

In the Pueblo of Laguna jail, just 45 minutes west of Albuquerque, New Mexico, the air conditioner was often down, according to Brandon Chavez, a Laguna citizen who has been detained multiple times over the past few years. Even when doors were left open for cross ventilation, the effort did little to blunt the hot desert air, Chavez said.

“Climate change and excessive heat factors into Pueblo planning for all aspects of Laguna government and the Laguna community,” officials from the Pueblo of Laguna wrote in an email to Grist and Type Investigations. When asked whether Laguna currently has plans to manage climate impacts like excessive heat, officials wrote, “The [detention facility’s] HVAC system is less than 10 years old and normally keeps the occupants warm in the colder months and cool in the hotter months. Malfunctions will occasionally happen and are quickly repaired.”

While New Mexico’s Cibola County rarely sees a heat index over 90 degrees, both Chavez and Urbina said that the Laguna Tribal Detention Center, located there, can be unbearably hot. And temperatures are only expected to go up: According to data from the Union of Concerned Scientists, Cibola County — and the Laguna jail — could see about 50 days per year above 90 degrees by the end of the century if emissions and temperatures continue to rise at their current pace, a drastic change from the present day.

According to Chavez, the Laguna jail is already a grim place. “There was literally pipes exposed,” said Chavez. “There was mold on places, and we used to tell [the guards]. They didn’t care. I’ve been into some pretty huge jails around some places, and nothing still compares to the mistreatment [at] my Pueblo jail.”

Urbina said his clients detained in the jail have complained about backed-up toilets, overdue repairs, and overcrowding, including having to share a shower with 20-plus other people. “At one time, they packed that thing like sardines,” Urbina said of the Laguna jail.

In response, James Burson, an in-house attorney for the Pueblo of Laguna, told Grist and Type that a renovation of showers, toilets, and sinks in the facility was completed in February 2022.

Tribes have their own justice systems, including courts, law enforcement, jails, and prisons. In a given year, thousands of people are incarcerated in these detention facilities. In 2021, more than half of those detainees were held for nonviolent offenses, and a majority had not been convicted of a crime.

Tribal jails have a long history of mismanagement. In 2004, the Department of Interior, which oversees the Bureau of Indian Affairs, issued a report that called the state of tribal jails a “national disgrace.” It examined everything from deaths in facilities, attempted suicides, and escapes — serious incidents that were not reported to supervisors 98 percent of the time — to smaller issues including broken lights, malfunctioning cameras, faulty plumbing, and leaking water pumps. “Nothing less than a Herculean effort to turn these conditions around would be morally acceptable,” investigators wrote at the time.

​​In the aftermath of the report, funding for facilities increased, the percentage of certified officers grew, and new jails were built. However, multiple reports and investigations over the years have shown that little else has changed since 2004. According to an NPR report in June 2021, at least 19 people had died in tribal detention centers since 2016, while one out of five correctional officers had not completed required basic training. Reporters also highlighted facilities with broken pipes, dirty water, and other infrastructure problems.

“Under Interior’s new leadership, we are seeking increased funding and conducting a comprehensive review of law enforcement policies, practices and resources to ensure that [Bureau of Indian Affairs] detention center staff are adequately trained, that our facilities are upgraded, and that we respect the rights and dignity of those within our system to the fullest extent,” Darryl LaCounte, the director of the Bureau of Indian Affairs, or BIA, said in a written statement to NPR at the time.

In an April report, the Office of Inspector General, or OIG, highlighted serious health and safety concerns at three tribal detention facilities: San Carlos Apache Adult/Juvenile Detention Center, the White Mountain Apache Adult Detention Center, and the Tohono O’odham Adult Detention Facility. The report comes as part of an ongoing performance audit of BIA-funded or BIA-operated detention programs, and says that the problems identified need immediate attention. Issues include holes in walls, broken air-conditioning, nonoperational toilets and sinks, and moldy shower ceilings. Many of those challenges were also included in a 2016 OIG report.

“The safety issues raised in this report are disturbing enough on their own, but the fact that they span multiple administrations is inexcusable,” U.S. Representative Raúl M. Grijalva, a ranking member of the House Natural Resources Committee, said in a statement on the recent report.

In 2022, The Intercept assessed the growing risk of extreme heat in jails and prisons across the United States. But of the roughly 6,500 facilities The Intercept analyzed, only 16 were tribal detention centers and jails, excluding the vast majority of tribal facilities across the country. Grist and Type Investigations built on The Intercept’s reporting to fill this gap.

Based on an analysis from the Union of Concerned Scientists, information collected via Freedom of Information Act, or FOIA, requests from the BIA, and research conducted in partnership with the Carceral Ecologies Lab at the University of California, Los Angeles, we tracked heat risk for 81 tribal jails and prisons spread across 20 states.

In 2019, the Union of Concerned Scientists published a county-by-county analysis of just how hot the contiguous U.S. could become under different levels of global climate action, from rapid action to reduce global emissions to effectively no action. The researchers then looked at the heat index, or the “feels like” temperature, which takes both humidity and air temperature into account, to paint a holistic picture of how heat would actually be experienced by communities on the ground. The National Weather Service also uses the heat index when issuing advisories or excessive heat warnings.

The researchers found that by mid-century, under a no-action scenario, “the average number of days per year with a heat index above 100°F will more than double, while the number of days per year above 105°F will quadruple.” In other words, in just a few decades, dangerous heat will become much more commonplace unless aggressive action is taken to limit climate change.

Jails across the country already face challenges when it comes to managing heat. The Intercept’s analysis found that “hundreds of thousands of incarcerated people are being subjected to prolonged periods of high heat every year.” Tribal jails are no different.

According to information Grist obtained through FOIA, most tribal facilities are in the Western U.S., where climates tend to be arid or hot. Nearly 20 percent of tribal facilities already face more than 50 days per year with a heat index above 90 degrees — the point at which heatstroke and heat exhaustion become much greater risks, particularly for vulnerable groups, such as elderly and obese people, and those with preexisting health conditions.

Within 80 years, if emissions continue to grow at their current rate, three out of four tribal facilities could experience 50 days or more in those temperatures.

Hundred-degree temperatures are a key marker for the National Weather Service. Generally, heat advisories are issued once the heat index reaches 100 degrees for 48 hours. Just five tribal facilities typically experience more than 50 days per year where the heat index tops 100 degrees F. But at the world’s current rate of emissions growth, that number will more than triple by the end of the century, with 17 tribal facilities experiencing 50 or more days per year where the heat index tops 100 degrees. Places like the Colorado River Indian Tribes Female Adult Detention Center and the Salt River Pima-Maricopa Department of Corrections Juvenile facility, located in Parker and Scottsdale, Arizona, respectively, could experience well over 100 days per year in 100-degree heat.

In states not historically considered “hot,” like Montana, Idaho, or Washington, tribal detention facilities could also see dramatic increases in excessive heat, according to Grist’s analysis. Facilities typically accustomed to experiencing only a day or two of temperatures above 90 degrees could see up to 24 days per year where the heat index tops 90, just within the next few decades.

“That ramp-up from zero to 10 [days out of the year] — that’s really significant for places where the infrastructure is less prepared,” said Kristina Dahl, the principal climate scientist for the Union of Concerned Scientists’ climate and energy program. “Generally, in any given year, heat kills more people in the U.S. than any other hazard like a hurricane, a flood, tornadoes, etc.”

Dahl and her fellow researchers have called for aggressive action to limit global warming, but for some communities in the U.S., more frequent extreme heat is inevitable.

Even if world leaders take rapid action to curb global temperature rise and reach goals set by the 2015 Paris Agreement, the number of tribal jails and detention centers experiencing more than 50 days over 90 degrees could increase by roughly 70 percent by the end of the century.

The Union of Concerned Scientists used statistical models to predict the number of days each county in the contiguous United States would experience temperatures above 90, 100, and 105 degrees F by the end of the century. But a county’s risk of experiencing extreme heat can change, depending on the degree to which world leaders are able to lower fossil fuel emissions and stop global warming.

A “rapid action” scenario represents the fulfillment of the goals set forth in the Paris climate accord, or limiting temperature rise to 3.6 degrees F above preindustrial temperatures.

Under the “slow action” scenario, greenhouse gas emissions will have declined by mid-century and temperature rise would be limited to roughly 4.3 degrees F by the start of the next century. Scientists consider this scenario to be the most likely.

According to Grist’s analysis — which combines Union of Concerned Scientists’ data with information on detention center locations obtained via FOIA requests — under this scenario, roughly one-third of tribal facilities would see more than 50 days per year with a heat index reaching at least 90 degrees F.

Roughly 14 percent would see more than 50 days with a heat index topping 100 degrees F.

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One of the biggest hurdles to understanding and addressing the heat risks tribal facilities face is gathering even the most basic information about them.

The Bureau of Indian Affairs places tribal corrections facilities into four categories: direct, 638, self-governance, and tribal. Direct means the facility is run directly by the BIA; there are 23 of these programs. Meanwhile, 638 programs, which receive BIA funding but are contracted out to tribes to operate, make up roughly half of all facilities, according to BIA documents. Self-governance facilities can also receive federal funding and allow tribes more control. Tribal facilities are run and funded directly by tribes themselves.

The U.S. Department of Homeland Security publishes hundreds of datasets related to critical infrastructure for public use. Among them is a database containing addresses for over 6,700 correctional institutions in the United States. Of these records, only 16 are tribal facilities, representing less than 20 percent of tribal detention centers in operation.

The BIA does not make publicly available the exact number and locations of many tribal jails and detention centers, including the physical address of the jail at Pueblo of Laguna — Department of Interior Secretary Deb Haaland’s home community. In an email to Grist and Type, a BIA spokesperson attributed this lack of transparency to “security reasons.” When asked to explain the nature of these security concerns, BIA did not expand, but instead wrote in an email that tribes are “not required to report address changes to the BIA.” The agency added that it provides oversight, including onsite visits to monitor compliance with federal standards.

Last year, Grist filed a Freedom of Information Act request for the specific locations of all tribal detention facilities, including those previously kept private by the Bureau of Indian Affairs. The BIA released the locations of 23 active detention centers managed by the agency, but withheld the addresses of tribally operated detention centers. Those include 638, self-governance, and tribal facilities.

A second FOIA request for these locations revealed only the cities in which these facilities are located, and no street or mailing addresses. The Salt River Pima-Maricopa Department of Corrections juvenile and adult facilities, for instance, are located in “Scottsdale, AZ,” but where those centers are in the city’s roughly 185 square miles was not revealed. Grist has appealed the agency’s response.

Grist partnered with the Carceral Ecologies Lab at the University of California, Los Angeles, to begin answering these questions.

The U.S. Department of Justice tracks information about the population in tribal jails through the Annual Survey of Jails in Indian Country. According to its midyear surveys from 2010 to 2019, an average of 70 percent of tribal jail detainees were held for nonviolent offenses. By midyear 2021, that percentage had dropped slightly to roughly 60 percent of detainees. According to the Justice Department, the average length of stay for a tribal detainee in 2021 was roughly 11 days, with 53 percent of those held in these facilities that year having not been convicted of a crime.

Heating and cooling are common problems in tribal jails, according to tribal public defenders, who also said water quality, bathroom maintenance, overcrowding, and staff training are of concern.

Those conditions can make incarcerated people, as well as those who work at carceral facilities, more susceptible to health risks associated with extreme heat. Preexisting conditions such as asthma, hypertension, and obesity can increase susceptibility to heatstroke and heart attack.

“[Incarcerated people] have limited mobility and suffer from a disproportionate amount of mental health and medical comorbidities that are exacerbated by exposure to extreme temperatures,” environmental epidemiologist Julianne Skarha and her coauthors wrote in a 2020 paper in the American Journal of Public Health assessing the health effects of extreme heat among incarcerated populations.

There is limited research on the intersection of extreme temperatures and carceral facilities, and in research Grist reviewed, tribal jails were not included.

However, between 1988 and 2019, Skarha and her team inspected at least 100 legal cases citing violations of the Eighth Amendment — that no imprisoned person can be subject to “cruel and unusual punishment” — based on exposure to extreme temperatures. In Texas alone, Skarha found that approximately 270 heat-related deaths occurred between 2001 and 2019 in carceral facilities that do not have air-conditioning. Yet no national database tracks air-conditioning availability in jails, let alone tribal jails.

In Arizona, one of the hottest states in the country, three tribes have seven facilities that face the greatest risk for excessive heat among tribal jails. These facilities include the Colorado River Indian Tribes’ male, female, and juvenile detention centers, and adult and juvenile centers for the Salt River Pima-Maricopa Indian Community’s Department of Corrections and the Gila River Department of Corrections.

The Salt River Pima-Maricopa Indian Community Department of Corrections adult and juvenile facilities are located in Maricopa County. Last summer, temperatures in Maricopa County reached a high of 115 degrees, with the National Weather Service issuing 17 heat warnings for the Phoenix area in 2022. As of October 2022, the total number of heat-associated deaths in the county reached nearly 380 — up at least 50 percent from the same month in 2021.

“As a tribe, we’re starting to realize climate change,” said Wi-Bwa Grey, a member of the Salt River Pima-Maricopa Indian Community tribal council. “We’re in the desert, where the sun hits us the most. Now, leadership, our council, is starting to really take that into consideration.”

About a four-hour drive northeast of Salt River, the Zuni Pueblo adult and juvenile detention facilities in McKinley County, New Mexico, have historically seen very few days where the heat index tops 90 degrees. But by the end of the century, Zuni Pueblo could experience more than roughly 55 days a year with temperatures above 90 degrees if emissions continue at their current rate, representing a massive change to the area’s typical climate.

Tyler Lastiyano, Zuni Pueblo’s director of public safety, said the Zuni jail, a 638 facility, recently updated its HVAC system. To deal with rising temperatures and higher energy costs, he hopes that the facility can transition to renewable energy. “If we can get the funding to do that, it’ll help us in the long run,” he said. For now, however, Lastiyano has to make trade-offs.

“Our tribal government can help. They can advocate, and they have advocated, but it’s the Bureau [of Indian Affairs] that has to approve our funding,” he said.

Of the 27 tribal jails visited by Department of Interior investigators in 2004, 10 were run directly by the BIA while 17 were 638 programs, run by local tribes with a combination of federal and tribal funding. Investigators noted that, in general, the 638 facilities were better managed.

In 2022, after NPR’s reporting, the BIA announced reforms to its corrections program, including updated policies for death investigations, revised processes for cell checks, and improvements to staff training.

But Ed Naranjo, a member of the Confederated Tribes of the Goshute Reservation and a former supervisory special agent for the BIA who helped spark the 2004 investigation, says that not enough has been done since the report’s release. “You got people sitting in D.C. in these offices, and they don’t really give a damn about what’s going on in the field,” Naranjo said. “It seems that they just neglect what’s going on as long as nobody makes any waves, and everything’s supposedly fine.”

In a statement, a BIA spokesperson wrote, “In accordance with procedures developed in partnership with Tribes, facility conditions are monitored quarterly to assess facility needs and to prioritize projects to be completed with available funding.” The BIA also wrote that it does not track how much funding tribes contribute toward detention facilities or whether optimal staffing levels are fulfilled. In response to a question about how many functioning HVAC systems there are in tribal detention centers, the spokesperson wrote that there is no centralized monitoring program relating to the maintenance of HVAC systems, but that “essential airflow systems are closely monitored and maintained by Tribal/BIA maintenance crews.”

For 2023, the BIA has budgeted over $15 million for “public safety and justice facilities improvement and repair,” roughly two-thirds of which is earmarked for “minor improvement and repair,” which can include accessibility updates and disposal of property. Just $1 million is designated for environmental projects like managing air and water quality, which comes to just over $12,000 per facility if divided equally among the 81 facilities listed by the BIA.

In its 2023 budget, the BIA plans for the construction of nine new detention centers, including three 638 facilities, most of which are replacing existing facilities. According to the BIA’s 2023 Budget Justifications report, without these new facilities, “Employee and Inmate safety will also continue to be impaired by inadequate facilities incapable of addressing modern detention requirements.”

Derrick Marks, a Yankton Sioux Council Member, says one of the biggest issues with relying on federal funding is that money is tied to the whims and policies of the administration in power. “As Native Americans, the less that we can have other people making decisions on our behalf, the better it is,” said Marks.

The Yankton jail, located in Wagner, South Dakota, less than 15 miles north of the Nebraska border, is currently run directly by the BIA. While Marks says he would prefer the tribe manage the jail itself, he’s hesitant about pushing for a shift to a 638 contract. Although 638 facilities receive BIA funding, Marks says that the amount provided would not be sufficient to properly run the jail and the tribe simply doesn’t have the resources to fill in the gaps. Beyond day-to-day upkeep and administration, preparing for a more extreme climate future comes with its own hurdles. “I don’t know where the next administration is going to go with this stuff, with climate change,” Marks said. “It’s just so up in the air.”

Some Indigenous activists, however, are not convinced that tribal management and increased funding are real solutions. Some, like Brandon Benallie, who is Diné and a member of the K’é Infoshop, a Diné Anarchist and Communist Collective, believe that jails are part of a punitive justice system that has never worked for Indigenous people. Instead of spending millions on upgrading tribal jails, tribes should be spending money on resources to build culturally appropriate treatment centers for substance use disorders and working to address the root causes of crime, argues Benallie.

“We can’t just call everything an experiment of sovereignty when it harms our people,” said Benallie. Later in the interview, he explained, “We’re looking for short-term or nearsighted solutions to handle things that take an immense amount of time and responsibility.”

Experts and tribal officials who Grist spoke to for this story underscored the obligations the federal government owes to tribes but routinely violates — legal agreements between Indigenous nations and the United States that exchanged large swaths of land for guarantees like education, health care, and financial support.

“The feds can always help out more,” Urbina, the public defender at Pueblo of Laguna, said. “They have a trust obligation to the Native American tribes, and I think they can always do a better job, considering the historical trauma, the stuff that’s been done by the federal government to these tribes.” Officials from Laguna wrote to Grist that they need additional resources from the federal government for the detention facility and regularly request additional funding for staff and facility improvements.

In lieu of relying on the United States, though, tribes have adapted. When heat reached dangerous levels in Arizona this past summer, tribal council member Grey said Salt River detainees were kept inside, safe in indoor recreation areas with air-conditioning, tablets, and televisions. According to Grey, the center is able to avoid infrastructure problems found in some other tribal jails because it is a self-governance facility funded by the tribe, in part through tribally operated casinos. In addition to infrastructure, funding goes to initiatives such as language classes for detainees and culturally appropriate programs that focus on rehabilitation.

“We’re blessed because we’re able to have our own HVAC people on staff dedicated to the facility,” said Grey. “A lot of communities aren’t that blessed to have that.”

To help close the gap and protect some of the country’s most vulnerable prisoners, advocates say that the federal government needs to uphold its obligations.

“Tribes need to raise a lot more hell about this whole thing, demand things,” said Naranjo. “I don’t think a lot of tribes realize they have a voice. If they unify and get together, they can make some changes and get things done.”

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Additional research by Precious Ivy Molina, Liz Barry, and Nicholas Shapiro of Carceral Ecologies at UCLA

This story was originally published by Grist with the headline Extreme heat will take an unequal toll in tribal jails on May 10, 2023.

He calls it the “tin can.” Its heater is broken. The cold creeps through its thin walls. Wind rattles the wooden cabinets. But it’s all he could afford.

A year ago, two runaway fires set by the U.S. Forest Service converged to become the Hermits Peak-Calf Canyon wildfire. It rode 74 mph wind gusts, engulfing dozens of homes in a single day as it tore through canyons and over mountains.

The blaze became the biggest wildfire in the continental United States in 2022 and the biggest in New Mexico history. And it was the federal government’s fault: An ill-prepared and understaffed crew didn’t properly account for dry conditions and high winds when it ignited prescribed burns meant to limit the fuel for a potential wildfire.

By the time the blaze was fully contained in August, it had destroyed about 430 homes, according to the Forest Service. Monsoons helped extinguish the fire, but they spurred floods that caused more damage.

FEMA stepped in to help, offering cash for short-term expenses and, after the state requested it, temporary housing to 140 households. But the federal government has acted so slowly and maintained such strict rules that only about a tenth of them have moved in, an investigation by Source New Mexico and ProPublica has found.

A year after the fire began, FEMA says most of the 140 households it deemed eligible for travel trailers or mobile homes — essentially, people whose uninsured primary residences sustained severe damage — have found “another housing resource.”

What the agency doesn’t say: For some, that resource is a vehicle, a tent or a rickety camper. It’s a friend or relative’s couch, sometimes far from home. It’s a mobile home paid for with retirement funds or meager savings.

The fire upended a constellation of largely Hispanic, rural communities that have cultivated their land and culture in the shadows of the Sangre de Cristo Mountains for hundreds of years. Many residents can find their family names on land grants issued by Mexican governors in the 1830s.

Now they’re dispersed across the region, even out of state. Source New Mexico and ProPublica obtained records from local officials and volunteer groups and eventually interviewed more than 50 people who between them lost 45 homes.

Many of them said FEMA’s trailers were offered too late, cost too much to get hooked up or came with too many strings attached. Several said they went through multiple inspections, only to learn weeks later that one rule or another made it impossible to get a trailer on their land. In some cases, FEMA officials told people that their only option was a commercial mobile home park, miles down winding, damaged mountain roads from the homes they were trying to rebuild.

People who between them lost 17 homes said they withdrew from the housing program because of those problems.

As of April 19, just 13 of the 140 eligible households had received FEMA housing. Only two of them are on their own land.

Martinez said he got a call from FEMA in mid-October, seemingly out of the blue. By then, he had been living in the tin can for a couple of months. As temperatures dropped, he had started sleeping on the couch, closer to the space heater.

A FEMA representative asked if he needed a trailer to live in.

“I told them it was too late,” he said. “Way too late.”

FEMA said terrain and weather, among other factors, presented challenges in providing housing to survivors. But the agency said it made an exception to its rules by providing trailers and mobile homes in the first place — normally such programs are reserved for disasters that displace a large number of residents.

The agency said it tries to place temporary housing on people’s property, but couldn’t in many cases because of federal laws and its own requirement that trailers be hooked up to utilities. State and local officials have asked the agency to loosen its rules, but it hasn’t.

FEMA knows it has a problem with its response to wildfires. A 2019 Government Accountability Office report said FEMA’s housing programs are better suited to help those displaced by hurricanes and floods because some victims can remain in their damaged homes, there’s often more rental housing in those areas and there’s more space for large mobile home parks than there is in the rugged mountains scorched by wildfires.

FEMA agreed with the findings and said it would explore providing housing funding to states because they’re better positioned to guide recovery. That didn’t happen after the Hermits Peak-Calf Canyon fire.

Last month, Martinez woke up on the couch in severe pain from a swollen bladder. Now he needs frequent medical appointments to check his catheter and figure out what’s causing the pain. His sister has been trying to get him a FEMA trailer in a commercial park closer to a clinic in the town of Mora. It’s just 8 miles away, but it can take 45 minutes to drive there.

What neither of them knew when he bought that old trailer last summer is that doing so made him ineligible for a FEMA trailer.

Martinez wants to stay on his property if he can. His great-grandfather once owned the land where he built that cabin. He raised his hands to show his stiff, swollen fingers. “They ain’t worth shit now,” he said. “But a man builds his own castle, right?”

The cost of free housing

By mid-June, firefighters had finally started to get the blaze under control, and people were being allowed back into communities in the area known as the burn scar. New Mexico officials turned their attention to those who had nothing to return to.

Kelly Hamilton, deputy secretary for the state Department of Homeland Security and Emergency Management, told FEMA in a letter that people were living in their cars, at work and in churches, in campers and even in tents.

He asked FEMA to provide travel trailers or mobile homes. “If the housing situation is not immediately addressed, the survival of each community is bleak,” he wrote.

“If the housing situation is not immediately addressed, the survival of each community is bleak.”

He cited an analysis showing there was just one rental apartment available in Mora and San Miguel counties, the two hardest hit by the fire. He noted that roughly 20% of residents in those counties were below the poverty line and that one-third of Mora County residents were disabled, according to U.S. Census Bureau figures.

It took FEMA a month to approve Hamilton’s request and about two weeks more to tell the public. On Aug. 2, the agency announced it would launch a small housing program, which “will likely entail placing a manufactured home on the resident’s property for the length of time it takes to rebuild.”

But there were strict rules for where those trailers could go. Recipients would need to have electrical service, septic tanks and drinking water close to the housing site. The agency’s draft contract for the housing program specified details down to the width of straps that were required to secure trailers against wind.

Local and state officials and disaster survivors told Source and ProPublica that the utility requirements were unreasonable, especially in this area. It’s common for homes to be heated with wood stoves fed with timber harvested from the surrounding land. Some people didn’t have running water or septic tanks even before the fire. Electrical outages were common in remote areas.

Martinez’s cabin never had running water; he got it from his neighbor’s well. So even if FEMA had offered him a trailer earlier, he would have had to pay thousands of dollars to build a well — if he could’ve found someone to do it.

FEMA is “very efficient in deeming people ineligible.”

“I’m trying to put this diplomatically,” said David Lienemann, spokesperson for New Mexico’s emergency management department. FEMA is “very efficient in deeming people ineligible.”

The effect of those rules is clear. As of April 19, FEMA said 140 households were eligible for trailers, as determined by the agency’s own inspections and policies. Of those, 123 had “voluntarily withdrawn.”

People dropped out because they “opted to live in their damaged homes, located another housing resource or declined all Direct Housing options,” said FEMA spokesperson Angela Byrd in an email. “However, those households remain eligible for the program should their situation change.”

FEMA wouldn’t allow Vicki Garland to connect a trailer to her solar panels, which weren’t touched by the flames. Instead, the agency insisted that she connect to the power grid, which would’ve cost her about $20,000. She’s now moving to the outskirts of Albuquerque, about 140 miles away.

Six individuals and families said they left the program because it would’ve cost too much to hook a trailer up to electricity, restore their wells or meet other utility rules.

Emilio Aragon was living in his office when he was told he was third on the list for a FEMA trailer. After waiting six months, he gave up and spent his retirement savings on a mobile home. He was among six individuals and families who said they were offered housing too late or faced delays that forced them to find housing on their own.

In response to those accounts, FEMA said in a written statement that it must ensure housing is safe and secure. “Generally, this is not a fast process because it requires us to be so thorough and meticulous. Working during the monsoon season meant it took additional time to make sure these sites were safe.”

FEMA has had a hard time getting people into temporary housing quickly after disasters. After Hurricane Ida struck Louisiana in 2021, FEMA said its housing program “is not an immediate solution for a survivor’s interim and longer-term housing needs” because it takes months to get sites ready. The agency praised Louisiana’s decision to launch its own federally funded housing program alongside FEMA’s.

A few months after the storm, The New York Times reported, the state’s program had housed around 1,200 people in about the same time it had taken for FEMA’s program to house 126.

Because FEMA’s housing programs end 18 months after a disaster declaration, every delay runs down the clock. Unless the Hermits Peak housing program is extended, it will expire in November, when the next winter is approaching.

FEMA declined to say whether it would extend the program, saying it would work with the state to meet survivors’ needs.

Wesley Bennett and his wife, JoDean Williams Cooper, said they went through three inspections to see where a trailer could be placed on their property. No spot was suitable, and they were instead offered a site at a mobile home park. Five other individuals and families said they pulled out of the housing program because of the red tape.

FEMA has noted that nine households declined to live in a mobile home park. Several of the trailers it has installed at those sites stand empty.

Some survivors, including Bennett and Cooper, said it wasn’t feasible to live in a trailer park an hour away from the homes they were rebuilding, especially with so many roads washed out by the flooding that followed the fire. They needed to stay on their land to take care of crops and deter theft.

“People who have largely lived in a rural setting are not going to be as comfortable in a trailer park. It’s just their whole way of life,” said Antonia Roybal-Mack, a lawyer who’s from the area and is assisting hundreds of victims in filing administrative claims for damage with the federal government.

“Here’s hoping it’s a paperwork issue”

Erika Larsen and her partner, Tyler White, were living in a camper van after losing their home in the village of San Ignacio when they learned FEMA was offering temporary housing.

Their livelihoods depended on being on their land, they said. Larsen is an herbalist who before the fire made tinctures and elixirs with ambrosia, hops and nettle she grew in gardens dotting the property. White works in construction and gets a lot of her work from neighbors who know where to find her.

Early on, White was feeling optimistic. She posted to a private Facebook group of disaster survivors on Aug. 23, a day after a FEMA inspection.

“Amazingly enough, yesterday we were approved for a trailer to live in. There is only one place to put anything on our property because of flooding. Our well and septic are shot because of fire and floods so we didn’t think we’d qualify. But we did. We should get it in a couple months,” she wrote.

“All this is to say as much as it stinks dealing with FEMA,” she wrote, “as hard of a fight as it can be, you might just get something out of it.”

Two days later, she added something.

Their case manager had “asked us if we wanted to live in a FEMA trailer park. We told him we’d been approved for a trailer at home and he said there was no record of that. Here’s hoping it’s a paperwork issue!”

She and Larsen waited for word while living nearby in their camper van. By late August, afternoon storm clouds often formed over the mountains, bringing monsoons that seeped through the roof and flooded their land. They worried about further damage to their property while they were away.

Two weeks after her first post, White offered another update. FEMA said the proposed site was in a floodplain, so the couple wasn’t allowed to put a trailer there.

“Our case manager said lots of people have been saying they were told they were approved for a trailer just to be declined,” she wrote. “So the moral of my story is: If a bunch of FEMA people come and tell you you are getting a trailer, you still might not be eligible.”

“If a bunch of FEMA people come and tell you you are getting a trailer, you still might not be eligible.”

They appealed the decision, but more inspections over the next two months determined that other sites on their property were too far from a septic tank, well or electricity hookup.

The agency also apparently made an error in its denial: Inspection records provided by Larsen showed the proposed trailer site isn’t actually in the floodplain on the map that FEMA says it uses for such decisions.

FEMA officials declined to comment on particular cases without written permission from the people who’d filed the claims.

By early November, as temperatures dropped and a long winter loomed, they’d had enough and decided to move into a dilapidated mobile home on a neighbor’s property. The landowner used it for storage, but at least it had a wood stove.

Larsen likened dealing with FEMA to an abusive relationship. “It really has been the worst part of this whole experience for me,” she said. “I feel capable of doing the work of processing this trauma. But having to keep talking to these people that are just fucking with my mind is pretty intense.”

The flood that never came

It wasn’t just residents who saw that the program wasn’t working. State and local officials asked FEMA to relax its requirements or make accommodations, but the agency didn’t budge.

After FEMA announced in early August that it would provide trailers, officials met with Amanda Salas, the planning and zoning director for San Miguel County, and told her inspections and approvals could take 10 weeks.

Across the burn scar, survivors were arranging inspections with caravans of contractors and FEMA employees who poked around their properties to evaluate possible sites.

In late-September, Salas cleared her desk, expecting a flood of building permit requests from residents seeking permission to place FEMA trailers on their land.

Getting people back was “number one,” she said in an interview. “I need them to be in a warm place, you know?”

The flood of permit requests never came. About 35 people expressed interest in FEMA’s housing program when she told them about it after they showed up in her office to ask questions about cleanup and rebuilding. Most withdrew due to bureaucratic hurdles and delays, she said. Her counterpart in Mora County said he observed the same thing.

FEMA spokesperson Aissha Flores Cruz said in an email that the agency respects survivors’ decisions not to apply.

In mid-October, Salas attended a meeting of local and federal officials. It was her first opportunity to talk to high-ranking FEMA officials in person, and she spoke up.

She told them it didn’t make sense to require electricity, wells or septic systems in a rugged area where people didn’t rely on those services before the fire. She asked FEMA to provide gas generators.

“It seemed like they heard us,” Salas said of the meeting. “But they didn’t do anything about it.”

“It seemed like they heard us, but they didn’t do anything about it.”

Meanwhile, state officials sought waivers for the utility requirements and urged FEMA to outfit homes with portable water tanks or composting toilets. The state wanted “to at least get people back in a safe, warm home, on their property,” said Lienemann, the state emergency department spokesperson.

On Dec. 19, as temperatures dropped to single digits in parts of the burn scar, the state had not heard back from FEMA about its request. Ali Rye, an official with the state Department of Homeland Security and Emergency Management, asked for a response and again requested that FEMA approve waivers for high-need cases.

Lienemann said FEMA told the state that it would make decisions on waiving rules on a case-by-case basis. The agency never made any exceptions.

FEMA said federal law doesn’t allow it to waive the rules for its housing programs. And Flores Cruz said FEMA funds cannot pay to reconnect or rebuild utilities because that would be “permanent work” funded through a program intended to be temporary.

Payment for permanent repairs falls to a special FEMA claims office created in January, but it hasn’t cut any checks to survivors yet. Congress set aside about $4 billion in compensation funds in acknowledgement of the federal government’s role in starting the fire.

Sheltered but not home

Daniel Encinias is one of the two people who got trailers on their own land. Each month, a FEMA representative stops by and asks for proof that he’s trying to find permanent housing — one of the conditions of living in the agency’s trailers.

He tells them he’s waiting for a check from the $4 billion compensation fund. “The minute FEMA releases the money and gives me enough money to build my home back,” he said, “that’s when things are gonna get done.”

The claims office will handle such requests. It was supposed to start sending out money in early 2023, but the agency is behind schedule.

“I have to tell you, opening an office is hard,” claims office Director Angela Gladwell told a packed lecture hall of frustrated fire survivors at Mora High School on April 19.

FEMA said it now expects to open three field offices to the public this month and it is trying to make partial payments while it finalizes its rules. Case navigators — who are locals who know the communities, the agency pointed out — are reaching out to those who have filed claims for damages.

The throngs of FEMA employees who swarmed into the area last summer to offer short-term aid have moved on. Some survivors are in limbo, running low on disaster aid and lacking the money to rebuild.

For Rex “Buzzard” Haver, a disabled veteran, the first disaster has split into a tangle of smaller ones. After his home burned in May, his family spent nearly $64,000 on a mobile home — more than the roughly $48,000 he’s gotten from FEMA so far. He doesn’t have the money to install a wheelchair ramp.

The company that delivered his replacement home broke its windows, tore the siding and ripped off lights during delivery. But they won’t come and fix it until the county repairs the road to his house. Haver has no washer or dryer, and for months, his satellite TV provider kept calling to collect a dish that had melted into black goo.

Haver didn’t learn that FEMA was offering trailers until several months after his new mobile home arrived in July, according to his daughter, Brandy Brogan. Now he’s in hospice, and he’s struggling.

“He doesn’t feel that he has a purpose anymore,” Brogan said. “There’s nothing for him to do. There’s nowhere for him to go.”

On a recent snowy afternoon, just down the road from Haver, strong winds rushed past blackened trees and through gaps in David Martinez’s trailer. He raised his voice to be heard over the wind.

“I’ve never been a sick man,” he said, wincing. “Till lately.”

Martinez can hardly walk due to his medical problems. The once-avid outdoorsman spends most days sitting in the kitchenette, the space heater on full blast, watching hunting shows on a 16-inch television. He ultimately got $34,000 from FEMA in short-term aid, but he’s down to a few grand.

On a recent afternoon, his sister, Bercy Martinez, and her grand-nephew drove up the washed-out driveway to deliver groceries and bottled water, which she does a few times a week. She loaded her brother’s fridge. “This is very good,” she said in Spanish of the meatloaf she bought. “It’s not too spicy.”

She’d been asking FEMA for weeks about getting her brother a spot in a mobile home park so he doesn’t have to navigate the bumpy road that makes drives to the clinic so painful.

Two weeks ago, she reached a FEMA employee on the phone and asked if the housing program that had arrived too late for her brother could help him now. The answer, she said, was no. He’s no longer eligible because he has a place to live.

Patrick Lohmann is a reporter for Source New Mexico and a recipient of ProPublica’s Local Reporting Network grant. He reports from Las Vegas, New Mexico. We welcome reader letters. Email High Country News at editor@hcn.org or submit a letter to the editor. See our letters to the editor policy.