[Federal Register Volume 80, Number 201 (Monday, October 19, 2015)]
[Rules and Regulations]
[Pages 63094-63115]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-26176]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF THE INTERIOR

Bureau of Indian Affairs

25 CFR Parts 81 and 82

[156A2100DD/AAKC001030/A0A501010.999900 253G]
RIN 1076-AE93


Secretarial Election Procedures

AGENCY: Bureau of Indian Affairs, Interior.

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: The Bureau of Indian Affairs is amending its regulations 
governing Secretarial elections and procedures for tribal members to 
petition for Secretarial elections. This rule reflects changes in the 
law and the requirement that regulations be written in plain language. 
The rule also clarifies how tribes may remove Secretarial election 
requirements from their governing documents.

DATES: This rule is effective November 18, 2015.

FOR FURTHER INFORMATION CONTACT: Laurel Iron Cloud, Chief, Division of 
Tribal Government Services, Central Office, Bureau of Indian Affairs at 
telephone (202) 513-7641. Individuals who use a telecommunications 
device for the deaf (TDD) may call the Federal Information Relay 
Service at 1-800-877-8339 between 8 a.m. and 4 p.m. Monday through 
Friday, excluding Federal holidays.

SUPPLEMENTARY INFORMATION:
I. Executive Summary
II. Summary of Comments on the Proposed Rule and Responses to 
Comments
    A. General
    1. Application to Federally Recognized Tribes Only
    2. General
    3. Removal of Requirement for Secretarial Election
    B. Definitions
    C. Provisions Applicable to All Secretarial Elections
    1. Tribal Request
    2. Informal Review and Official Request
    3. Who May Vote in a Secretarial Election
    4. Costs of Holding a Secretarial Election
    D. IRA (and OIWA, as applicable) Secretarial Elections
    1. Secretarial Election Board
    2. Ballot and Submission of Ballot
    3. Eligible Voters List
    4. Notice
    5. Registration
    6. Polling Sites
    7. Challenges
    8. Participation in the Election
    E. Petitioning
    F. Miscellaneous
III. Consultations
IV. Procedural Matters
    A. Regulatory Planning and Review (E.O. 12866)
    B. Regulatory Flexibility Act
    C. Small Business Regulatory Enforcement Fairness Act
    D. Unfunded Mandates Reform Act
    E. Takings (E.O. 12630)
    F. Federalism (E.O. 13132)
    G. Civil Justice Reform (E.O. 12988)
    H. Consultation With Indian Tribes (E.O. 13175)
    I. Paperwork Reduction Act
    J. National Environmental Policy Act
    K. Information Quality Act
    L. Effects on the Energy Supply (E.O. 13211)

I. Executive Summary

    The Bureau of Indian Affairs (BIA) is amending 25 CFR parts 81 
(Tribal Reorganization under a Federal Statute) and 82 (Petitioning 
Procedures for Tribes Reorganized under Federal Statute and Other 
Organized Tribes), combining them into one Code of Federal Regulations 
part at 25 CFR part 81 (Secretarial Elections). The Secretarial 
elections regulations were originally adopted in 1964, and the 
Petitioning Procedures regulations were originally adopted in 1967. See 
29 FR 14359 (October 17, 1964); 32 FR 11779 (August 16, 1967). The 
Department has not updated either of these regulations since 1981. See 
46 FR 1668 (January 7, 1981).
    A Secretarial election is a Federal election conducted by the 
Secretary of the Interior (Secretary) under a Federal statute or tribal 
governing document under 25 CFR part 81. See Cohen's Handbook of 
Federal Indian Law section 4.06[2][a]-[b], at 286-297 (Nell Jessup 
Newton ed., 2012). See also Cheyenne River Sioux Tribe v. Andrus, 566 
F. 2d 1085 (8th Cir. 1977), cert. denied, 439 U.S. 820 (1978). This 
final rule:
     Responds to the 1988 amendments made to section 16 of the 
Indian Reorganization Act (IRA) (June 18, 1934, 48 Stat. 984) (25 
U.S.C. 476), as amended, which established time frames within which the 
Secretary must call and conduct Secretarial elections;
     Provides that all elections will be handled by mailout 
ballot unless polling places are expressly required by the amendment or 
adoption article of the tribe's governing document;
     Responds to the amendments made to Section 17 of the IRA 
by the Act of May 24, 1990 (104 Stat. 207) (25 U.S.C. 477) under which 
additional tribes may petition for charters of incorporation and 
removes the requirement of an election to ratify the approval of new 
charters issued after May 24, 1990, unless required by tribal law; and
     Reflects the 1994 addition of two subsections to section 
16 of the IRA by the Technical Corrections Act of 1994 (108 Stat. 707) 
(25 U.S.C. 476(f) & (g)) that prohibit the Federal government from 
making a regulation or administrative decision ``that classifies, 
enhances, or diminishes the privileges and immunities available to a 
federally recognized Indian tribe relative to the privileges and 
immunities available to other federally recognized tribes by virtue of 
their status as Indian tribes.''
    When Congress enacted the Oklahoma Indian Welfare Act (OIWA) in 
1936, the language it used to guarantee the right of tribes to organize 
and adopt constitutions and bylaws was different from that used in the 
IRA. The OIWA language requires the Secretary to approve the 
constitution before it is submitted to the tribal membership for a vote 
to ratify it. These regulations reflect the difference in language 
between the IRA and the OIWA.
    For many tribes, the requirement for Secretarial elections or 
Secretarial approval is anachronistic and inconsistent with modern 
policies favoring tribal self-governance. The rule includes language 
clarifying that a tribe reorganized under the IRA may amend its 
governing document to remove the requirement for Secretarial approval 
of future amendments. The Department encourages amendments to governing 
documents to remove vestiges of a more paternalistic approach toward 
tribes. Once the requirement for Secretarial approval is removed 
through a Secretarial election, Secretarial approval of future 
amendments is not required, meaning there will be no future Secretarial 
elections conducted for the tribe, and future elections will be purely 
tribal elections, governed and run by the tribe rather than BIA. 
Additionally, without a requirement for Secretarial approval, the 
constitution will no longer be governed by the other election-related 
requirements of the IRA, such as the minimum number of tribal voters to 
make an election effective. Such matters will be governed by tribal 
policy decisions rather than Federal ones.

[[Page 63095]]

Tribes with Secretarial election requirements are encouraged to remove 
them in furtherance of tribal sovereignty and self-determination.
    The rule also clarifies that the Secretary will accept petitions 
for Secretarial elections only from federally recognized tribes 
included on the list of recognized tribes published by the Secretary 
pursuant to section 479a-1.
    It is the policy of the Federal government to support tribal self-
governance as a substitute for Federal governance to the maximum extent 
permitted under Federal law. This rule seeks to effectuate that policy.

II. Summary of Comments on the Proposed Rule and Responses to Comments

    BIA published a proposed rule on Secretarial elections procedures 
on October 9, 2014. See 79 FR 61021. The original comment deadline was 
then extended to January 16, 2015. See 79 FR 75103. We received several 
comments during the public comment period and at tribal consultation 
and listening sessions. Several commenters stated their support for the 
proposed revisions to simplify and clarify the process, as well as 
provisions that recognize tribal self-determination and self-
governance. A few commenters opposed the revisions, stating that the 
proposal exceeds statutory authority, establishes quasi government-to-
government relationships with individuals, and includes 
inconsistencies. The following summarizes specific comments received 
and BIA's responses to those comments.

A. General

1. Application to Federally Recognized Tribes Only
    Comment: One tribal commenter opposed the proposal to limit the 
availability of Secretarial elections to federally recognized tribes 
only. This commenter stated that the IRA, at 25 U.S.C. 479, allows for 
organization of residents of a reservation as a tribe, and that, as 
such, BIA is bound to allow residents to organize as a tribe under 
these regulations. The tribe points to several instances throughout the 
rule that fail to account for residents of a reservation organizing for 
the first time (e.g., Sec.  81.4 does not include in the definition of 
``petition'' organization for the first time; ``spokesman for 
petitioners'' does not include an eligible voter selected by 
reservation residents seeking to organize for the first time; Sec.  
81.10(a)(2) allows any member to vote regardless of residence; Sec.  
81.52 limiting authority to petition to those instances where the 
tribe's governing document or charter of incorporation allows 
petitioning; Sec.  81.57(b) requires a certain percentage of tribal 
members but does not include residence on reservation requirement).
    Response: The final rule retains the draft rule's limitation of the 
availability of Secretarial elections to federally recognized tribes. 
The commenter is correct that, as a matter of law, a group of half-
bloods on a reservation could seek to organize through a Secretarial 
election, even though the group is not listed as a federally recognized 
tribe. See Pit River Home & Agric. Coop. Ass'n v. U.S., 30 F.3d 1088, 
1096 (9th Cir. 1994). However, federal reservations currently in 
existence are under the jurisdiction of a federally recognized tribe. 
In practice, this means that it is no longer necessary to allow 
individual Indians residing on a federal reservation the option of 
requesting a Secretarial election. The Department has therefore 
determined that it is appropriate to limit the definition of ``tribe'' 
in the Secretarial elections regulation to listed federally recognized 
Indian tribes.
2. General
    Comment: A few commenters stated that, where a tribe's election 
code is sufficient, the Secretarial elections should follow the tribe's 
procedures rather than the procedures in these regulations. The 
commenters stated that having different requirements causes unnecessary 
complications and that using the tribe's procedures would minimize the 
potential for confusion and show greater respect for tribal 
sovereignty.
    Response: The Department agrees with the spirit in which this 
comment was made. The current rule included a provision, at Sec.  
81.5(d), that the election would be conducted as prescribed by the 
regulations unless the amendment article for the tribe's constitution 
and bylaws or charter provided otherwise, in which case the provisions 
of those documents would rule where applicable. The proposed rule 
omitted this provision without including a basis for its omission. The 
final rule reinserts this provision, with the addition that the tribal 
procedures must not violate Federal law. See Sec.  81.2(b). This 
provision allows for the use of tribal election procedures. If a tribe 
wishes to use tribal voting procedures for a Secretarial election, it 
may prescribe voting procedures in its amendment article. The exception 
is that a tribe may not apply voting qualifications that conflict with 
Federal voting qualifications, such as the requirement that voters be 
at least 18 years of age. Federal voting qualifications continue to 
apply, regardless of tribal voting qualifications, because a 
Secretarial election is a Federal election in which Federal voting 
standards apply (see discussion below).
    If a tribe wishes to avoid entirely the application of all Federal 
voting requirements, including Federal voting qualifications, the tribe 
may hold a Secretarial election to remove the requirement for 
Secretarial approval, such that all future elections would be tribal 
elections conducted in accordance with tribal voting procedures and 
substantive requirements.
    Comment: A tribal commenter questioned why, in proposed Sec.  
81.2(f), a tribe would have to undergo a Secretarial election to amend 
a Federal charter of incorporation if the charter was ratified before 
the 1990 IRA amendments.
    Response: Prior to 1990, the IRA required a Secretarial election 
for the issuance and amendment of a Federal charter of incorporation. 
Therefore, the amendment article of the corporate charter would have 
language requiring a Secretarial election. The 1990 amendments to the 
IRA removed this election requirement as a matter of Federal law, 
allowing the tribal governing body, rather than ``a majority vote of 
the adult Indians living on the reservation,'' to ratify the charter. 
The regulations had not been updated since 1990, so they continued to 
include the requirement for a Secretarial election for the issuance of 
a Federal charter of incorporation, and the proposed rule would have 
carried forward that requirement. In response to the comment, the final 
rule removes this requirement, so that a Secretarial election is 
required to amend a charter only if the charter itself states that a 
Secretarial election is required to amend it. See final Sec.  
81.2(a)(6).
3. Removal of Requirement for Secretarial Election
    Comment: Several tribal commenters stated their support for the 
provision at proposed Sec.  81.2(h), which states that a tribe may 
amend its governing documents to remove the requirement for Secretarial 
approval. One tribe stated that this provision promotes tribal 
sovereignty and self-governance, allowing the tribe to have the 
ultimate say in whether a Secretarial election should be required. One 
tribe asked about the consequences to a tribe of removing the 
requirement for Secretarial approval of future governing document 
amendments.
    Response: The final rule retains this proposed provision, as each 
tribe has the discretion to require a Secretarial

[[Page 63096]]

election or not in its governing documents. See final Sec.  81.2(a)(8). 
As explained by a Federal representative at the tribal consultation 
sessions, removing the requirement for Secretarial approval of future 
amendments means that Secretarial elections will no longer be required 
for additional amendments to the tribe's governing document and the 
governing document will no longer be considered to have been adopted 
pursuant to a Federal statute. Of course, removing the Secretary from 
the amendments section does not diminish the government-to-government 
relationship or Federal trust responsibilities owed to the tribe. The 
Department encourages tribes to take such action in furtherance of 
tribal self-governance.
    Comment: One tribal commenter asked whether a tribe that has 
reorganized under the IRA and wishes to remove the requirement for a 
Secretarial election must hold a Secretarial election to remove that 
requirement.
    Response: The tribe must hold a Secretarial election to remove the 
requirement for a Secretarial election from its governing document. 
Final Sec.  81.2(a)(8) addresses this issue.
    Comment: One tribal commenter requested clarification in Sec.  81.2 
that removing the requirement for Secretarial approval of amendments 
does not mean removing the requirement for Secretarial elections.
    Response: The IRA makes it clear that Secretarial approval of a 
tribe's organic documents is part of the Secretarial election process, 
not a separate action. See, e.g., 25 U.S.C 476(d)(1).

B. Definitions

    Comment: Two tribal commenters opposed including Solicitor opinions 
in the definition of ``applicable law.'' One stated it is unclear 
whether ``opinion of the Solicitor'' includes opinions written by those 
in regional Solicitor offices or only M-opinions. The other stated that 
such opinions may provide guidance, but do not carry the force of law.
    Response: The proposed rule included Solicitor opinions and 
Interior Board of Indian Appeals (IBIA) decisions to alert the public 
that the Department intends to abide by its own prior interpretations 
of statutes, regulations, and other primary law. In response to the 
concern expressed by the commenters, the final rule removes these items 
from the definition of ``applicable law.'' However, the Department is 
bound by opinions of the Solicitor and IBIA decisions to the extent 
such interpretations resolve any ambiguity or vague provision of the 
law.
    Comment: One commenter stated confusion over defining ``cast'' as 
``received'' because the Secretarial Election Board would not know a 
ballot was spoiled before cast.
    Response: No change to the proposed definition of ``cast'' is 
necessary in response to this comment because the voter must recognize 
a ballot is spoiled before cast and identify it as such to the Board in 
order to obtain a new ballot. If the voter does not recognize the 
ballot is spoiled, then the vote is considered cast when the Board 
receives it.
    Comment: One commenter stated that the ``Eligible Voters List'' and 
``tribal request'' should not include individuals' birthdates for 
privacy reasons.
    Response: The Eligible Voters List, and the list provided as part 
of the tribal request, must include individuals' birthdates to allow 
the Secretarial Election Board to ascertain whether each individual is 
over 18 years of age and to distinguish between individuals with the 
same name. The Secretarial Election Board does not make these lists 
public; it posts only the Registered Voters List, which does not 
include birthdates. See final Sec.  81.30.
    Comment: A tribal commenter asked whether ``local Bureau office'' 
means the agency or regional office or both, and noted that ``local 
Bureau Official'' includes the Superintendent, Field Representative, or 
other official with delegated responsibility, stating that there is a 
potential for confusion.
    Response: In most of Indian country, the BIA office serving as the 
primary point of contact between tribes and the Bureau is an Agency 
headed by a Superintendent. In some places, however, the primary point 
of contact may be a BIA Field Office; in other places, the Regional 
Office may serve as the primary point of contact. The terms ``local 
Bureau office'' and ``local Bureau official'' are used because these 
terms embrace all three possibilities. For this reason, no changes to 
these terms have been made in response to the comment.
    Comment: A commenter stated that the proposed definition of 
``member'' would not provide for tribes without written criteria for 
membership or for tribes that do not have formal enrollment.
    Response: The final rule revises the definition of ``member'' to 
account for tribes without written criteria, by deleting the word 
``written.'' The final rule also accounts for tribes without formal 
enrollment by deleting ``duly enrolled'' and instead providing that the 
member must be someone who meets the criteria for membership in the 
tribe and, if required by the tribe, is formally enrolled. This 
definition signifies that there is a rebuttable presumption that the 
tribe's identification of its members is accurate in the list it 
provides of all members who will be 18 years old or older within 120 
days of the tribal request. This definition also signifies that the 
list must, in fact, be accurate, by including all persons who meet the 
tribe's criteria for membership and who will be 18 years old or older 
within 120 days of the request (and, if the tribe's governing 
document's amendment article imposes additional requirements for 
petitioning, also meets those requirements).
    Comment: A commenter stated that the definitions of ``petition'' 
and ``spokesperson for the petitioners'' should be revised to include 
circumstances in which a tribe may be adopting or ratifying a governing 
document for the first time.
    Response: The final rule makes no change to the proposed definition 
of ``petition'' because it would already cover circumstances in which a 
federally recognized tribe is adopting or ratifying a governing 
document for the first time. The final rule makes a change to the 
definition of ``spokesperson for the petitioners'' to replace 
``eligible voter'' to ``member'' in response to this comment, because 
the tribe would not yet have a list of eligible voters if adopting or 
ratifying a governing document for the first time.
    Comment: A tribal commenter stated that using the same definition 
for ``absentee ballot'' and ``mailout ballot'' is confusing and makes 
it difficult to discern the difference in procedures in proposed Sec.  
81.22(f) and (g).
    Response: A mailout ballot and an absentee ballot are the same 
types of ballots; they are identified with different nomenclature 
depending on whether the entire election is conducted by mail 
(``mailout ballot'') or whether polling sites are used but individual 
voters submit their ballots by mail on a case-by-case basis because 
they are unable to vote in person at the polls (``absentee ballot''). 
In response to this comment, the final rule clarifies the differences 
between procedures for absentee ballots and mailout ballots by making 
the differences explicit in final Sec. Sec.  81.4 and 81.22(f) and (g).
    Comment: A few commenters asked why the term ``Indian'' is not 
defined in the rule. One noted that such a definition is necessary to 
allow groups of Indians residing on a reservation to organize.
    Response: The rule does not need to define the term ``Indian'' 
because the rule does not use this term and instead

[[Page 63097]]

relies on whether an individual meets the criteria for membership in 
the tribe.

C. Provisions Applicable to All Secretarial Elections

1. Tribal Request
    Comment: One commenter requested clarification on what BIA 
considers to be the official date the tribal request is submitted, 
starting the clock on the statutory deadline for holding the election.
    Response: The final regulations consider the clock to start when 
the Bureau receives a complete tribal request, as defined in 83.4 to 
include the duly adopted tribal resolution or other appropriate tribal 
document, the exact document or amended language to be voted on, and 
the list of all tribal members who will be 18 or older within 120 days 
of the request with last known addresses, dates of birth, and voting 
district, if any.
2. Informal Review and Official Request
    Comment: A tribal commenter stated that proposed Sec.  81.5 should 
include an instruction that the local Bureau official will also review 
and comment on the procedures set out in the federally approved 
governing document.
    Response: The final rule addresses this comment by clarifying in 
Sec.  81.5 that Bureau officials will offer technical assistance to the 
tribe during an informal review.
    Comment: A few commenters opposed the proposed approach of 
requiring the tribe to seek technical assistance from the Bureau prior 
to submitting a request for Secretarial election, noting that the 
statute provides that technical assistance should occur following 
submission of the request. One commenter stated that imposing a pre-
submission requirement that would bar any formal requests unless and 
until BIA comments and a tribe or petitioners respond is unlawful. A 
few other commenters stated that the proposed regulations call for a 
quick time period in which the election may be held after the request, 
leaving a short turnaround time for notice, voter education and 
registration. One of these commenters stated that the timeframe is 
``unrealistic'' and noted that the Board becomes ``overwhelmed with 
workload'' once the process begins.
    Response: The statute requires the Secretary to call and hold an 
election within a certain period of time following the receipt of a 
tribal request for an election. See 25 U.S.C. 476(c) (requiring the 
Secretary to call and hold an election within 180 days to ratify a 
proposed document or revoke an existing document or 90 days to ratify 
an amendment to an existing document). The statute also requires that, 
during this time period, the Secretary provide technical advice and 
assistance and review the final draft of the document to determine if 
any provision is contrary to applicable laws. See 25 U.S.C. 476(c)(2).
    Practically, these timeframes pose a challenge for even the most 
skilled and experienced of Bureau and Department personnel because 
there are many steps required to ``call and hold'' an election and 
require considerable responsive cooperation from tribal officials 
(e.g., allow the tribe at least 10 days to appoint members to the 
Secretarial Election Board, prepare and send the Secretarial Election 
Notice Packet sufficiently in advance of the election date, allow time 
for the return of registration forms, prepare the Registered Voters 
List, allow for challenges to the Registered Voters List, prepare and 
send official ballots to voters). As some commenters pointed out, 
taking all these steps leaves little time to provide technical advice 
and assistance or review the final draft to determine if any provision 
is contrary to applicable laws. Further, in nearly all cases, Bureau 
expertise is required to perfect a request to include all necessary 
information and avoid inconsistencies. For these reasons, while it is 
not required by law or regulation, the Department strongly recommends 
that tribes seek an informal review from the Department to take 
advantage of the Bureau's and Department's accumulated experience 
before submitting an official request for election. This informal 
review will provide the Department with the time to ensure that all the 
necessary documents are internally consistent and as compliant as 
possible with applicable laws and avoid complications resulting from 
conflicting or noncompliant documents. Informal review reflects best 
practices and good governance. It helps to ensure competent and 
thoughtful handling of this most important of government functions and 
seeks to avoid inadvertent disenfranchisement of voters. While the 
informal review is entirely optional, and a tribe may choose instead to 
immediately submit a request for Secretarial election, the informal 
review will ultimately be more efficient by helping to ensure that the 
election runs as smoothly as possible and that the results are 
meaningful. The final rule clarifies at Sec. Sec.  81.5 and 81.6 that 
this informal review is prior to, and separate from, the process that 
follows the submission of a request for election that triggers the 
statutory timeframes.
    Comment: A commenter also noted that requiring two submissions (a 
pre-submission review and then the formal request) will require two 
tribal resolutions.
    Response: No tribal resolution is required to request the informal 
review. The Bureau has the discretion to ask for confirmation in some 
form of the authority of the person requesting, however, that the 
request is on behalf of the tribe.
    Comment: A commenter also noted that BIA is under no deadline to 
provide comments in the initial review.
    Response: While the commenter is correct that the rule does not 
provide a deadline for the Bureau to assist the tribe as part of the 
informal review, it is in the Bureau's best interest to respond as 
expeditiously as possible because, at any time, the tribe could submit 
a formal request triggering the statutory timeframe.
    Comment: A tribal commenter stated that the rule should allow the 
tribe to end the consultation process and require BIA to move forward 
in holding the election, in lieu of responding to BIA's issues.
    Response: The final rule allows a tribe to end the informal review 
and require the Bureau to move forward in holding an election at any 
time by submitting a tribal request for election. For IRA elections, 
once a formal request for election is submitted, the Bureau will 
provide technical assistance, culminating in a letter that either 
authorizes the election with no suggestions for changes, or authorizes 
the election with suggestions for changes and advises the tribe of any 
provisions that are contrary to applicable laws. The tribe may choose 
to accept the suggested changes, or may choose to reject the suggested 
changes; in either case, the election will proceed. Note, however, that 
if the tribe chooses to reject the suggested changes, it risks having 
the Bureau disapprove of the constitution or amendment if it contains 
provisions that are contrary to applicable laws. The final rule 
clarifies this risk at Sec.  81.7(b). For OIWA elections, once a formal 
request for election is submitted, the Bureau will provide technical 
assistance, culminating in a letter that either authorizes the 
election, or identifies a provision of the proposed document that is 
contrary to law to be addressed before the election may be authorized. 
See final Sec.  81.46.
    Comment: A commenter stated that the technical assistance 
provisions in proposed Sec. Sec.  81.6 and 81.47 contain

[[Page 63098]]

similar provisions but are not worded the same.
    Response: These sections in the final rule are combined in Subpart 
C, General Provisions, to ensure that they match. Please note that 
there is a substantive difference in how the Bureau handles the request 
depending on whether the election occurs under the IRA or OIWA because 
of differences in the language of the statutes. Documents adopted 
pursuant to the OIWA become effective upon ratification by the 
membership; therefore, Departmental review and approval must 
necessarily be completed before the election is held. Stated 
differently, elections under the OIWA require a Secretarial 
determination that the proposed document or amendment is not contrary 
to applicable law before the Secretary may authorize the election.
    Comment: A tribal commenter stated concern that the authorizing 
official could reverse positions after the election results are in, by 
finding the proposal is contrary to Federal law even though the 
official did not find it was contrary to Federal law during the initial 
review. This commenter suggested that the determination should be made 
only once--when the proposal is first presented.
    Response: The commenter is correct that the determination as to 
whether the proposal is contrary to applicable laws is made twice: when 
the request for election is first submitted, and then after the 
election. The statute requires the Department to make the determination 
at these points. See 25 U.S.C. 476(c)(2)(B) (when the Department 
reviews the tribal request) and 476(d))(when the Department determines 
whether to approve of the document). The Department's first 
interpretation of whether any provision is contrary to applicable laws 
is binding on the Department's later interpretation, to ensure 
consistency; however, it is conceivable that, between the time the 
Department makes its first determination to the end of the election, a 
change in the applicable law could occur. The Department must review 
the results of the election in light of whether any provision is 
contrary to applicable laws at the time approval is given.
    Comment: A few commenters stated their support for the provision at 
proposed Sec.  81.8 that the Department will defer to the tribe's 
interpretation of its own documents, but stated their opposition to the 
second sentence of proposed Sec.  81.8 that allows the Secretary to 
interpret tribal law when necessary ``to carry out the government-to-
government relationship with the tribe.'' These commenters disagreed 
with the implication that the Secretarial interpretation of tribal law 
would trump the tribe's interpretation.
    Response: The final rule retains the proposed language at final 
Sec.  81.9, reserving the Secretary's authority to interpret tribal law 
when necessary. Udall v. Littell, 366 F.2d 668, 672 (D.C. Cir. 1966), 
cited in United States v. Eberhardt, 789 F.2d 1354, 1361 (9th Cir. 
1986), and in Cal. Valley Miwok Tribe v. United States, 515 F.3d 1262, 
1267 (D.C. Cir. 2008). The specific provision allowing the Secretary to 
interpret tribal law in those rare cases when it is necessary to carry 
out the government-to-government relationship with the tribe 
incorporates IBIA precedent establishing that the Bureau should refrain 
from interpreting tribal law unless it must do so in order to make a 
decision it is required to make in furtherance of its government-to-
government relationship with the tribe. William H. Richards, et al. v. 
Acting Pacific Regional Director, 2007 I.D. LEXIS 50, *10, 45 IBIA 187 
(2007); Sandra Maroquin v. Anadarko Area Director, 29 IBIA 45 (1996), 
citing Parmenton Decorah, 22 IBIA 98. Consistent with its strong 
policies in favor of tribal self-governance, the Bureau will not 
exercise this authority to interpret tribal law lightly or often, and 
reserves the authority for those cases where, for example, it believes 
a tribe diverges from the apparent mandate of its governing document 
without a reasonable explanation. The Secretary must balance deference 
to tribes with the duty to ensure the Secretarial election includes the 
safeguards of any other Federal election.
3. Who May Vote in a Secretarial Election
    Comment: Several tribes asked questions regarding who may vote in a 
Secretarial election. For example, at least one tribe asked for 
language stating that the tribe's governing documents may establish 
eligibility for voting. Another tribe asked what happens if the tribe's 
governing document establishes an age different from 18 years to define 
eligible voters.
    Response: The 26th Amendment to the Federal constitution 
established the minimum voting age for Federal elections to be 18. 
Secretarial elections are Federal elections, and, as such, anyone who 
is 18 years of age or older and otherwise qualified is eligible to 
vote, even if the tribal governing document requires voters to be 21 to 
be eligible to vote in tribal elections. This provision is at final 
Sec.  81.11. Any other eligibility qualifications that the tribal 
governing document imposes for voting in Secretarial elections apply.
    Comment: A tribal commenter asked under what circumstances voting 
is limited to only the class of citizens who voted on the original 
tribal charter or governing document.
    Response: Voting is limited to the class of citizens who voted on 
the original tribal charter or governing document only if the tribe's 
governing documents establish that limitation.
    Comment: A commenter stated that proposed Sec.  81.9 appears to 
allow any tribal member to vote on an amendment to a governing 
document, even if the governing document limits who may vote to those 
members who reside on the reservation.
    Response: The proposed Sec.  81.9(b)(2) and final Sec.  81.10(b)(2) 
state that the member must meet the qualifications in the tribe's 
governing documents or charter in addition to being over the age of 18. 
Any restrictions in the tribe's governing document or charter on who 
can vote continue to apply (unless it is an age restriction, because 
Federal law establishes a voting age of 18). For example, if the 
governing document's amendments article limits the vote to those 
members who reside on the reservation, then only those members who 
reside on the reservation (and are age 18 or older) may vote.
4. Costs of Holding a Secretarial Election
    Comment: One commenter requested that the rule clarify that once a 
tribe removes the Secretarial election requirement, the tribe must pay 
for all subsequent elections.
    Response: The final rule clarifies in Sec.  81.16 that the tribe is 
responsible for paying the costs of tribal elections.
    Comment: A commenter asked whether the Bureau will pay for 
interpreters, audio-visual aids, or reasonable accommodations for those 
with impairments required by proposed Sec.  81.12. Another commenter 
asked for additional detail on what covered costs would include.
    Response: The final rule states that the Bureau will pay for costs 
of holding a Secretarial election. See final Sec.  81.16. Examples of 
costs the Bureau will pay for are the costs of printing and mailing 
ballots and, if polling places are required, use of voting machines. In 
many cases, the Secretarial Election Board is able to arrange for 
facilities and services such as interpreters and audio-visual aids at 
no cost. In those cases where such costs are necessary, the Bureau will 
pay for them.
    Comment: A few commenters stated that compacting and contracting 
tribes

[[Page 63099]]

should be responsible for paying for Secretarial elections only if they 
received compact or contract funds specifically for the purpose of 
conducting a Secretarial election.
    Response: The final rule clarifies that a tribe will be responsible 
for the costs of a Secretarial election only if it has contracted or 
compacted for that function.
    Comment: One commenter suggested the rule should require the Bureau 
to pay for an election requested by petition where the tribe 
contracting or compacting for that function refuses.
    Response: If a contracting or compacting tribe that has contracted 
for this function refuses to pay the costs of a Secretarial election 
for any reason, the tribe would be in violation of the contract or 
compact. If necessary to meet statutory timeframes, the Regional 
Director may draw Bureau funds to pay for the election and seek 
reimbursement from the tribe.

D. IRA (and OIWA, as Applicable) Secretarial Elections

1. Secretarial Election Board
    Comment: A few commenters requested that proposed Sec.  81.19(b) 
clarify that, when a tribe fails to appoint two tribal members to the 
Secretarial Election Board, the individuals that the Local Bureau 
Official appoints will be tribal members.
    Response: The final rule at Sec.  81.19(c) adds that the Local 
Bureau Official will appoint tribal members if they are available.
    Comment: A commenter stated that the Chair of the Secretarial 
Election Board should be a tribal member, rather than a Bureau 
employee.
    Response: The final rule retains the requirement for the Chair to 
be a Bureau employee. A Federal employee is necessary for this role 
because a Secretarial election is a Federal election and a Federal 
responsibility and, as such, it is the Bureau's responsibility to 
fulfill the Chair duties of ensuring the Board fulfills its 
responsibilities and that the proper procedures are followed. In most 
cases, a tribe may ultimately avoid this provision in the future by 
amending its governing documents to remove the requirement of a 
Secretarial election.
    Comment: A few commenters stated that where the election is being 
held as a result of a petition, the spokesperson for the petitioners, 
rather than the tribe, should appoint the two members to the 
Secretarial Election Board.
    Response: The final rule provides that, where the election is being 
held as a result of a petition, the spokesperson for the petitioners 
may appoint one member to the Board and the tribe may appoint one 
member to the Board.
    Comment: A commenter requested replacing ``tribe'' with ``tribe's 
governing body'' in Sec.  81.19 to clarify who specifically appoints 
individuals to the Board.
    Response: The final rule retains the term ``tribe'' because who 
speaks for the tribe may vary by tribe.
    Comment: A commenter stated that the 10-day timeline is not 
sufficient time for the Tribe to appoint two members to the Board, and 
requested increasing the time to 15 days. This commenter stated that 
there are times of the year, such as during Tribal Council breaks, that 
it could be difficult to make an appointment within 10 days.
    Response: Because the tribe has control over when it submits a 
tribal request for election and has advance notice that it will need to 
appoint two members to the Board and because BIA is required to move 
very quickly, the final rule does not increase the 10-day timeline for 
appointment.
    Comment: A commenter asked whether the Board must conduct business 
at a known location so voters will know where to request a new ballot.
    Response: There is no established location for the Board to conduct 
its business. Final Sec.  81.40 clarifies that voters can go to the 
local Bureau official to request a new ballot.
2. Ballot and Submission of Ballot
    Comment: A commenter stated that proposed Sec.  81.24(f) is 
confusing because it implies that a voter must submit a request for a 
mailout ballot in addition to registering, rather than automatically 
receiving a mailout ballot upon registering.
    Response: The final rule clarifies at Sec.  81.24(f) the procedure 
required only where a voter needs an absentee ballot even though there 
are polling sites.
    Comment: A commenter suggested that the regulations require a cover 
sheet describing all proposed amendments and ballots if there are 
several amendments to be voted on, and therefore several ballots.
    Response: As proposed and final Sec.  81.34(a) state, each proposed 
amendment will have a separate ballot so there may be several ballots, 
as the commenter notes. The final regulations adopt the commenter's 
suggestion for a cover sheet enumerating the ballots in final Sec.  
81.36(a).
    Comment: A commenter asked what ``ballot transactions'' in proposed 
Sec.  81.35 are. A few commenters suggested using alternative delivery 
methods, beyond U.S. mail, such as commercial carrier or personal 
delivery, to increase voter turnout. Another commenter stated that the 
proposal to allow voting only through U.S. mail may stifle voter 
participation by disallowing voters the opportunity to return 
registration forms and ballots in person.
    Response: The final rule clarifies Sec.  81.35 to use the word 
``deliveries'' rather than ``transactions.'' The final rule also adds 
hand-delivery as a method for submitting ballots. Other methods of 
delivery are not added because the regularity and uniformity of the 
U.S. mail allows the Bureau to better track receipt of ballots by 
limiting intake to one carrier.
    Comment: A commenter requested that a timeline be added by which 
ballots must be mailed to voters, to ensure that the voters receive the 
ballot a minimum amount of time before the election.
    Response: The final rule adds that the Board must send the ballots 
to registered voters ``promptly upon completion'' of the final list of 
registered voters (i.e., after resolution of any challenges).
3. Eligible Voters List
    Comment: A commenter stated that the tribe should have the option 
to request that the Board return the Eligible Voters List to the tribe 
for retention, to avoid opening it to the possibility of being 
disclosed under FOIA.
    Response: Because the Secretary's determination of who can vote is 
based on the Eligible Voters List, the list becomes a Federal record, 
which is retained in accordance with Federal records schedules. While 
Federal documentation is subject to FOIA disclosure, it is also 
protected by the Privacy Act, as applicable, and tribal rolls are 
generally excluded from disclosure under one or both of these laws.
    Comment: A commenter stated that tribes, rather than the Bureau or 
Board, should determine who qualifies as registered voters under tribal 
standards for eligibility to vote. This voter also stated that eligible 
voters should be determined in accordance with eligible voter 
qualifications in tribal ordinances.
    Response: The Eligible Voters List, supplied by the tribe, is the 
starting point for determining who can register to vote; however, the 
Federal requirement that individuals must be 18 years of age or older 
to vote applies to Secretarial elections because they are Federal 
elections. The Department has a responsibility to verify the list 
provided

[[Page 63100]]

by the tribe to ensure that the rights of individual tribal members to 
vote in the Federal election are protected. If the amendment section of 
the tribe's governing document includes eligibility qualifications, the 
Bureau will apply those qualifications.
4. Notice
    Comment: A few commenters suggested requiring the Secretarial 
election notice and results to be posted on the tribe's Web site.
    Response: The Department encourages tribes to publicize both the 
notice and results, including encouraging tribes to post such 
information on their Web sites. Proposed and final Sec.  81.25 require 
the Board to post the Secretarial election notice at the local Bureau 
office and tribal headquarters, and provides the flexibility for the 
Board to post in other public places, which may include posting on the 
tribe's Web site. The Board is also required to post the results at the 
local Bureau office, tribal headquarters, and other places listed in 
the Secretarial lection notice under Sec.  81.42. The final Sec.  81.42 
also adds that the Board may publicize the election results in other 
ways, such as by posting on the tribe's Web site.
    Comment: One commenter stated that access to information is 
especially needed where a large portion of the tribal voting population 
is located off the reservation. This commenter also stated that the 
information such voters receive is not always clear or complete.
    Response: The regulations require the Board to send the Secretarial 
election notice to all eligible voters. The Bureau also encourages the 
tribe to provide informational meetings to members. The Board Chairman 
works with the tribal government, including any appointed board 
members, to ensure the information in the Secretarial election notice 
packet is as complete and as accurate as possible. For example, if an 
amendment is to be voted on, the packet will include a side-by-side 
comparison of the new and old language. The final rule adds to Sec.  
81.23 that such a comparison will be included in the packet.
    Comment: A commenter stated that the lack of an accurate membership 
roll has disenfranchised voters and is a chronic problem. This 
commenter recounted experiences with Secretarial elections in the past 
in which mailings were returned as undeliverable.
    Response: Each tribe is responsible for its own enrollment and 
maintaining its membership roll, if any. Tribal members are responsible 
for updating their addresses with the tribe. Tribes are strongly 
encouraged to engage in address update initiatives with members as soon 
as the tribe realizes it will need to eventually provide a list of 
eligible voters as part of an upcoming tribal request. The Department 
relies on the tribe's Eligible Voters List in compiling the Registered 
Voters List; however, in recognition that there may be inaccuracies, 
the regulations allow individuals the opportunity to challenge the 
Registered Voters List.
    Comment: A commenter suggested developing internal procedures, 
based on input from election boards, to help ensure compliance with 
Secretarial election regulations.
    Response: These updates to the regulations are intended to provide 
more explicit procedures for Secretarial elections to ensure 
uniformity. To the extent necessary to fully implement these revised 
regulations, the Department will develop handbooks or other 
implementing documents.
    Comment: A commenter stated that the proposed requirement at Sec.  
81.22(b) for the Board to send the Secretarial Election Notice Packet 
at least 60 days before the election leaves too little time for the 
Bureau to conduct the other necessary activities, such as preparing the 
notice packet.
    Response: The proposed rule required the packet to be sent at least 
60 days before the election to ensure that voters had as much notice as 
possible of the election. In response to the comment that this leaves 
too little time on the front end for other activities, the final rule 
instead provides that the Board must mail the package at least 30 days 
before the election, but no more than 60 days before the election. This 
final language at Sec.  81.22(b) adopts the timeframes set out in the 
current rule at Sec.  81.14.
5. Registration
    Comment: One commenter suggested editing proposed Sec.  81.9 to 
clarify that the voters must meet the qualifications required by the 
tribe's governing documents or charter ``for that particular type of 
Secretarial election.'' The commenter also stated that the section 
should state that, for a tribe already reorganized under Federal 
statute, if the tribe's governing documents or charter do not define 
the voting qualifications, then the tribe's election code or ordinance 
should apply. A few commenters stated that voting qualifications 
established by the tribe should apply. A tribe stated that its 
constitution requires amendments to be approved by a majority of 
tribally registered voters, but the proposed regulations require the 
constitutional amendments be approved by federally registered voters.
    Response: The final Sec.  81.10 incorporates the suggested edits 
clarifying that the voting qualifications must be required ``for that 
particular type of Secretarial election.'' The final rule does not make 
any change to address when the tribal governing documents or charter of 
a tribe already reorganized under Federal statute do not define voting 
qualifications. In these situations, any tribal member age 18 or older 
may vote.
    Comment: One commenter stated that voters should not have to ``re-
register'' to vote in a Secretarial election, but that registration for 
a tribal election should also count as registration for a Secretarial 
election. The commenter stated that requiring separate registration 
could cause confusion, suspicion, and disenfranchisement if voters are 
unaware of or disinclined to comply with the registration requirement. 
This commenter stated that eliminating the need for separate 
registration would also allow Secretarial elections to be conducted at 
the same time as tribal elections, minimizing confusion and maximizing 
voter participation.
    Response: Registration for a Secretarial election must be separate 
from registration for a tribal election because Federal voting 
qualifications may be different from tribal voting qualifications. The 
Board will work with the tribal governing body to ensure that voters 
are informed of the need to register specifically for the Secretarial 
election, separately from tribal election registration. Tribes have the 
option of holding a Secretarial election to remove the Secretarial 
election requirement if they believe the separate registration process 
is unnecessary or inappropriate. Indeed, tribes are encouraged to do 
so, consistent with the strong Federal policy favoring tribal self-
governance. The proposed and final regulations recommend that 
Secretarial elections not be conducted at the same time as tribal 
elections because of the potential for confusion, given that different 
voting qualifications may apply.
    Comment: A few commenters stated that, in the past, several tribal 
members failed to register for the Secretarial election. One asked how 
the Board can verify that every eligible member registers.
    Response: The tribe provides the Board with the Eligible Voters 
List, and the Board then sends out the registration form to each 
individual on the list. While the Board will work with the tribe to 
inform voters of the need to register specifically for the Secretarial

[[Page 63101]]

election, it is up to each individual to register.
    Comment: One commenter stated that the definition of ``Registered 
Voters List,'' which states that the posted list will include the 
voting district, is inconsistent with proposed Sec.  81.31, which 
states that the list will show names only.
    Response: The final Sec.  81.31 clarifies that the Registered 
Voters List will include both the names and, if applicable, voting 
districts.
    Comment: A commenter stated that there should be a mechanism, even 
if after the fact, to challenge the removal of a name from the 
Registered Voters List.
    Response: Both the proposed and final Sec.  81.32 provide the 
opportunity to challenge the Registered Voters List prior to the 
election. The election occurs only after the Board has resolved 
challenges and finalized the Registered Voters List. If someone 
disputes how the Board resolved a challenge to the Registered Voters 
List, that person may appeal the Board's determination.
    Comment: One commenter stated that if the registration of a voter 
is rejected, that person should be allowed to vote under supervised 
circumstances, rather than holding a whole new election.
    Response: If a voter's registration is rejected, that person has 
the opportunity to challenge his or her omission from the registered 
voter's list. The election is not held until challenges to the 
Registered Voters List are decided.
    Comment: One commenter stated that voters should be able to mail 
the registration form at the same time as the ballot, or if polling 
sites are used, to allow same-day registration. This commenter stated 
that doing so would reduce unnecessary steps, eliminate confusion, and 
increase voter turnout.
    Response: The regulations establish a process whereby registration 
is completed as a first, and separate, step from voting, to allow for 
the compilation of a Registered Voters List prior to the election, and 
allow time for resolution of challenges to the Registered Voters List 
prior to the election. This process is designed to promote due process 
and confidence in the election's outcome. By combining these steps, 
there would be no allowance for challenges to the Registered Voters 
List. Allowing for challenges to the Registered Voters List after the 
election would delay posting of election results, because the Board 
would first have to review and resolve challenges, and would require 
tracking the source of each individual ballot, undermining anonymity, 
to allow the Board to extract the vote of anyone ultimately removed 
from the Registered Voters List. However, a tribe may request a waiver 
to allow for registration and voting at the same time; for example, if 
a tribe plans to hold an event where most of the membership is expected 
to be present, same-day registration and voting may be appropriate.
    Comment: One commenter suggested having a universal registration 
form showing the address to which the ballot may be mailed.
    Response: With this proposed rule, the Department submitted a 
request for approval under the Paperwork Reduction Act, including a 
universal registration form. We have revised the form to include a 
placeholder for the address to which the ballot may be mailed.
6. Polling Sites
    Comment: A commenter opposed the proposed rule's requirement that 
mailout ballots be used, rather than polling places, except where the 
tribe's governing documents require polling sites. This commenter 
stated that it is unlikely that a tribe's governing document would even 
address whether polling sites are required. According to this 
commenter, the regulations should provide for more flexibility to allow 
a tribe to decide to use polling sites by including the decision in the 
tribal request. This commenter also stated the rationale for using 
mailout ballots is unclear, as the tribes will have to pay for mailing 
through contracts/compacts, and the requirement is unnecessary and 
could have unintended consequences. The commenter pointed out that 
mailout ballots may not increase voter participation in remote areas 
where tribal members do not retrieve mail on a daily basis or open mail 
from the tribe or Bureau because they receive so much of it. Another 
tribal commenter stated they ``wholeheartedly support'' the proposed 
rule's requirement for voting through mailout ballots, rather than 
polling places, because mailout ballots lessen the burden of voting, 
encourage greater voter participation overall, and allow voters 
flexibility and convenience. This commenter stated that voter 
participation increased by 51 percent for a tribally held referendum by 
mailout ballot as compared to the prior election that relied on polling 
places and absentee ballots.
    Response: The proposed rule and final rule require the use of 
mailout ballots, rather than polling sites, because polling sites 
require more resources and because mailout ballots tend to maximize 
voter turnout and prevent the disenfranchisement of urban members and 
others who are living away, temporarily or permanently, from the 
reservation. The rule accounts for the fact that some tribes have 
governing documents with amendment articles requiring use of polling 
sites, providing that, in such cases, polling sites will be provided in 
addition to mailout ballots.
    Comment: A commenter stated that their tribe's constitution refers 
only to a ``polling site'' but does not require polling sites.
    Response: To be considered required, the amendments section of the 
tribe's governing document must require polling sites in Secretarial 
elections. If you have a question as to whether your tribal governing 
document requires polling sites, please consult with your local Bureau 
official.
    Comment: A tribal commenter stated that voting in person would 
allow Secretarial elections to be held at the same time as tribal 
elections to increase voter turnout. Another tribal commenter stated 
that they agree Secretarial elections should not be scheduled at the 
same time as tribal elections and recounted a personal experience, in 
the past, where the two were held at the same time, resulting in 
``complete confusion between the two elections.''
    Response: Generally, the Department suggests avoiding holding 
Secretarial elections and tribal elections at the same time because the 
lists of registered voters are different, but final Sec.  81.14 allows 
the Board to hold a Secretarial election at the same time as a tribal 
election as long as voters are educated as to the need for separate 
ballots.
    Comment: One commenter stated that the requirement to notarize 
absentee ballots is outdated.
    Response: Notarization is not required for absentee ballots. The 
voter must sign a certification, but there is no need for a notary.
7. Challenges
    Comment: One commenter stated their support for the provision that 
anyone who submitted a registration form, even one that was ultimately 
rejected, can challenge the results of an election.
    Response: The proposed rule at Sec.  81.43 stated that ``any person 
who submitted a voter registration form'' may challenge the election 
results. The final rule requires that a challenger also be an eligible 
voter, such that only eligible voters who submitted a registration form 
may challenge election results. Requiring that the person be an 
eligible voter prevents a non-member who happens to obtain and submit a 
registration form from challenging the election results. Therefore, 
someone

[[Page 63102]]

who submitted a registration form but was ultimately rejected from the 
Registered Voters List may challenge the results only if he or she is 
also an eligible voter.
    Comment: A commenter asked whether the 3-day time period for 
challenges established in proposed Sec.  81.43 includes the day of 
posting.
    Response: Final Sec.  81.43 clarifies that the time period does not 
include the day of posting. The final rule further clarifies what is 
considered a ``business day'' by adding a definition in Sec.  81.4.
    Comment: One commenter stated that the 3-day challenge period is 
too short and suggested 10 calendar days instead.
    Response: The final rule increases the challenge period to 5 days 
at Sec.  81.43, to better accommodate filing challenges by mail. The 
final rule allows for 5, rather than 10, days to prevent undue delay, 
given that the Secretary is required by statute to issue an approval 
decision within 45 days of the election results.
    Comment: One commenter stated that election results should not be 
publicized until all challenges have been resolved.
    Response: Challenges to the election results must necessarily 
follow posting of the election results; challenges to the results 
generally require knowing the results. Following resolution of any 
challenges, the Authorizing Official's approval of the governing 
document or amendment is the finalization of the process.
    Comment: A commenter stated that the proposed Sec.  81.45(a) is 
vague, in that it states that a recount or new election may be held if 
a challenge is sustained and ``may have an impact on the outcome of the 
election.''
    Response: The final rule clarifies that a recount or new election 
may be held if a challenge is sustained and the errors would invalidate 
the election.
    Comment: One commenter stated that the rule should provide more 
specificity on what types of challenges merit consideration by the 
Board.
    Response: To clarify, the Board decides challenges to the 
Registered Voters List prior to the election, and the Authorizing 
Official decides challenges to the election results after the election. 
The final rule does not provide any greater specificity on what types 
of challenges merit consideration because each challenge is fact-
specific.
    Comment: One commenter asked how challenges may be made and when 
they must be filed.
    Response: Proposed and final Sec.  81.43 set out how challenges may 
be made and when they must be filed.
    Comment: One commenter requested that the provision that the 
``Secretary's approval of the documents must be considered as given'' 
in Sec.  81.45(e) instead state simply that the governing document or 
amendment ``is approved.''
    Response: The language providing that the Secretary's approval must 
be ``considered as given'' is taken directly from the statute: ``If the 
Secretary does not approve or disapprove the constitution and bylaws or 
amendments within the forty-five days, the Secretary's approval shall 
be considered as given.'' 25 U.S.C. 476(d). In other words, it shall be 
deemed approved by the Secretary. The statutory language is retained in 
the final rule.
8. Participation in the Election
    Comment: A few commenters stated that the regulation should 
establish a threshold for participation by eligible voters in the 
election--either that a certain percentage of eligible voters register 
to vote or that a certain percentage of eligible voters vote. The 
requested provision would deem an election invalid if a certain 
percentage of the eligible voters failed to register or vote. One 
commenter illustrated that if there are 6,500 eligible voters, but only 
100 register, and only 40 of those actually cast a ballot, the election 
would be valid under the proposed regulation because more than 30 
percent of registered voters voted, even though less than 1 percent of 
the eligible voters cast a vote. Another commenter stated that often, a 
voter will protest by not voting rather than by submitting a ``no'' 
vote, and that the regulation disregards this form of protest by not 
requiring a minimum number of voters to register.
    Response: The final rule does not add a minimum participation 
threshold for eligible voters, because it includes other provisions 
designed to increase voter participation (e.g., all mailout packets). 
The Board Chair will work with the tribe to improve voter education for 
each Secretarial election to promote participation in the elections.
    Comment: One commenter stated that there is no requirement for 30 
percent participation by registered voters in the statute. This 
commenter stated that the tribe's governing documents should be the 
sole source of voter participation requirements.
    Response: The requirement for 30 percent participation by 
registered voters is statutorily required at 25 U.S.C. 478a. Because 
Federal law establishes this participation requirement, it supersedes 
any contrary requirement in the tribe's governing documents. Therefore, 
if a tribe has a threshold for participation that is lower than 30 
percent in their amendment article, a 30 percent threshold will be 
applied.
    Comment: One commenter stated that a ``spoiled ballot'' should not 
be included in the tally to determine if enough registered voters voted 
because the vote is not counted toward the results.
    Response: A spoiled ballot that has been cast indicates that a 
voter intended to vote, and indeed attempted to vote. To protect that 
intention to participate, the spoiled ballot is counted for the purpose 
of determining the number of registered voters who participated, even 
though the vote cannot count toward the results of the election because 
its spoiled state obscures whether the voter intended to vote for or 
against the proposed document or amendment.

E. Petitioning

    Comment: One commenter stated that the petitioning procedures set 
out in proposed Sec.  81.65 ignore statutory deadlines for holding 
Secretarial elections. This commenter stated that the rule should 
specify that the petition need not undergo the initial review, and that 
the petition may simply request an election by filing a completed 
petition with the Bureau.
    Response: The IRA timeframes for calling and holding an election 
apply to requests by ``an Indian tribe.'' See 25 U.S.C. 476(a), (c). We 
interpret a request by petition to be a request by the tribe. 
Therefore, like the commenter, we interpret the statutory timeframes as 
applying to election requests in the form of a petition. Nevertheless, 
the regulations apply the timeframes once the petition is validated, 
and the procedures set out in final Sec.  81.62 for validating a 
petition occur before timeframes are triggered. The final rule 
clarifies when the petition is considered a ``tribal request'' that 
triggers the timeframes for calling and holding the election. Unlike 
when a tribal governing body submits a resolution requesting an 
election, petitioners must first undergo a review to verify the 
petition. This review is necessary to determine if the request is a 
valid tribal request.
    Comment: Several commenters pointed out various points in the 
process where the petitioner or Bureau must rely on the tribe to 
provide a list of tribal members who are 18 and older. One commenter 
noted that in most cases, petitions do not have the support of elected 
tribal officials and the tribe has no incentive to assist the 
petitioners by providing membership lists. A commenter stated that 
requiring the list as part of the ``tribal request'' will 
``eviscerate'' the ability of petitioners, who have a constitutional 
right to petition, to make a proper request for election.

[[Page 63103]]

     One commenter stated that petitioners do not have access 
to a list of all tribal members who are 18 and older because those 
records are maintained by the tribe, and that requiring such a list in 
the definition of ``tribal request'' effectively prevents petitioners 
from making a proper request for election.
     Another commenter stated that proposed Sec.  81.60(a), 
which provides that the Bureau will determine how many signatures are 
needed on a petition, should provide some alternative to relying on the 
tribe to provide the current number of tribal members 18 years of age 
and older, in case the tribe refuses to turn over the information.
     A commenter asked how the Bureau creates its own list of 
members where the tribe refuses to provide an Eligible Voters List.
    Response: It is not necessary for the petitioner to provide the 
Eligible Voters List. For each petition, the Bureau requests the 
Eligible Voters List from the tribe. This process has been Bureau 
practice and is now being codified in the regulation. Although 
commenters expressed concern that the tribe may refuse to provide the 
information, tribes generally cooperate with this request. If a tribe 
refused to provide the information, the Bureau will make a reasonable 
effort given its responsibilities and statutory requirements to 
coordinate with the tribe to obtain the information through some means 
in order to allow the Bureau to meet its statutorily mandated duties. 
For example, in a past occasion when a tribe refused to provide the 
Eligible Voters List, the Bureau conducted its own research to compile 
a number and then provided the tribe a certain time period to correct 
the number or affirm by silence.
    Comment: A commenter stated that the rule should define 
``petitioner'' to better specify how a petitioner may request a 
Secretarial election upon filing a petition.
    Response: The final rule adds a definition for ``petitioner.''
    Comment: A commenter stated that proposed Sec.  81.54 provides that 
the Bureau will provide technical assistance to the tribe and notify 
the tribe of any provisions that are contrary to Federal law, rather 
than providing the petitioner with assistance and notifying the 
petitioner. Another commenter noted that the IRA requires the Bureau to 
provide tribes, not individual members, with technical assistance. The 
commenter stated that proposed Sec. Sec.  81.53 and 81.54, in allowing 
the Bureau to provide technical assistance to petitioners, puts the 
Bureau in a position to advocate against the tribe's governing body in 
a manner potentially adverse to the tribe's best interests. A commenter 
also stated that the section is of concern because the Bureau has an 
obligation to the existing tribe, rather than to the group of 
petitioners.
    Response: The final rule clarifies that technical assistance on a 
petition will be provided to both the tribal governing body and 
spokesperson for the petitioners. The Bureau does not provide technical 
assistance to petitioners to undermine tribal governments; rather, it 
provides technical assistance to petitioners to facilitate bringing the 
issue to a vote, without taking sides on the content of the vote. This 
approach furthers tribal self-determination because the tribe provided 
for the petitioning process in its governing document amendments 
article. Technical assistance on a petition is provided only after the 
Bureau has determined that the petition is valid, and represents the 
required percentage of tribal membership rather than any one individual 
who wants to challenge the tribal governing body in some way. Both the 
tribal governing body and petitioners benefit from this technical 
assistance, because it ensures that the issue is as clearly stated as 
possible for voters' understanding. The technical assistance provided 
to the petitioners is also provided to the tribal governing body as 
part of the Bureau's government-to-government relationship with the 
tribe.
    Comment: A commenter suggested reducing the amount of time allowed 
for gathering signatures from one year to 6 months to prevent the 
number of signatures required under Sec.  81.60 from changing 
dramatically during the petitioning process.
    Response: When the tribe or Local Bureau Official provides the 
spokesperson with the number of signatures required for a petition, 
under final Sec.  81.57 (proposed Sec.  81.60), that number is set 
regardless of whether the number actually increases because more tribal 
members turn 18 or decreases because of tribal members passing away 
over the course of the year in which signatures are collected.
    Comment: A commenter stated that the proposal to allow tribal 
members a year to gather signatures is too lengthy and is supported by 
no known legal authority. This commenter expressed concern that over 
the course of a year, a voter could change his or her decision.
    Response: The final rule establishes a year to gather signatures 
because in some cases, the number of signatures required would require 
several months and possibly up to a year, to collect them all. The 
commenter's concern as to a signer changing his or her decision may not 
have considered that the original signer still has an opportunity to 
express his or her change of position by removing his or her signature 
from the petition. Ultimately, signatures on a petition represent only 
a request to bring the issue to a vote, rather than a decision on the 
question to be voted upon.
    Comment: A commenter stated that proposed Sec.  81.63(b)(2), which 
states that the Bureau official must provide a copy of the receipt and 
petition to the recognized tribal governing body, should add ``if any'' 
since the tribe may not have a recognized tribal governing body.
    Response: The final rule does not add the words ``if any'' because 
they are surplusage: if there is no recognized tribal governing body 
for whatever reason, then there is no recognized tribal governing body 
to whom to provide a copy of the receipt and petition. See final Sec.  
81.60.
    Comment: One commenter opposed the proposed requirement that 20 
percent of the tribal members who are 18 or older must sign a petition 
for a federally recognized tribe adopting a governing document under 
Federal statute for the first time. See proposed Sec.  81.60. That 
commenter stated that the 20 percent threshold relaxes requirements, 
and the switch from the 60 percent requirement is ``concerning.'' 
Another commenter stated that the 20 percent standard could be 
appropriate if, at the tribe's request, the members are establishing 
the first governing document and thus the 20 percent standard would 
provide a more realistic opportunity for tribes to reorganize. This 
commenter stated their belief that the 60 percent requirement has never 
been used, thus rendering the process obsolete.
    Response: The final rule lowers the current 60 percent requirement 
to 50 percent. The lowering recognizes that the current 60 percent 
requirement may never have been met, but keeps it high enough to avoid 
the harassment of the governments of organized tribes through frivolous 
petitions by a small minority of the membership. See final Sec.  81.57. 
A lower percentage, such as the proposed 20 percent, may be appropriate 
for unorganized tribes.
    Comment: A commenter asked for clarification on whether the 
percentage ``of the tribal members who are 18 years of age or older'' 
should instead be attached to eligible voters rather than the entire 
enrollment.

[[Page 63104]]

    Response: The percentage requirement applies for a federally 
recognized tribe adopting a governing document under Federal statute 
for the first time; therefore, the tribe will not have a governing 
document imposing restrictions on who may vote beyond the baseline of 
being a tribal member 18 years or older.
    Comment: One commenter stated that the proposed rules for 
petitioners place unnecessary obstacles and processes designed to 
thwart the efforts of petitioners.
    Response: The rule is not designed to thwart the efforts of 
petitioners, but to balance the Secretary's duties to tribal 
governments and to tribal members. As mentioned above, the Bureau will 
provide technical assistance to petitioners and will work with the 
tribe to obtain necessary information that the petitioners lack.
    Comment: One commenter stated that proposed Sec.  81.56, which 
provides that a member of the tribe who is 18 or older may sign the 
petition, is misleading because the tribe's governing document may 
impose additional qualifications, such as residence on the reservation.
    Response: The final rule clarifies that if the tribe's governing 
document includes additional requirements for petitioning, that are not 
inconsistent with Federal law such as the 26th Amendment to the 
Constitution, then those additional requirements also apply. See final 
Sec.  81.53.
    Comment: A commenter requested clarification on how an election 
request is withdrawn if the request is based on a petition. The 
commenter asked specifically whether the same number of people that 
signed the petition must agree on withdrawing.
    Response: The final rule clarifies that a majority of those who 
signed the original petition must request the withdrawal of the 
petition; this is intended to prevent the spokesperson from withdrawing 
the petition without authority from the other petitioners to do so. See 
final Sec.  81.18.

F. Miscellaneous

    Comment: A commenter requested retaining the current Sec.  81.5(e) 
in the regulations as currently published, which states ``if the 
amendment provisions of a tribal constitution or charter have become 
outdated and amendment cannot be effected pursuant to them, the 
Secretary may authorize an election under this part to amend the 
documents when the recognized tribal government so requests.''
    Response: The final rule adds the substance of current Sec.  
81.5(e), as requested. See final Sec.  81.2(c).
    Comment: A commenter stated that proposed Sec.  81.14 should 
clarify what a ``final action'' is that allows for resubmission of a 
conflicting proposal.
    Response: The final rule provides a definition of ``final agency 
action'' to include the Authorizing Official's approval or disapproval 
of the election, or acknowledgment of the tribe's or petitioners' 
withdrawal. See final Sec.  81.15.
    Comment: A tribal commenter stated that proposed Sec.  81.17, 
allowing withdrawal of a request for election, does not address what 
happens if a tribal judicial forum makes a ruling on the subject of the 
election.
    Response: Because Secretarial elections are Federal elections, the 
Bureau is bound by the statutory requirements regardless of whether a 
tribal judicial forum makes a ruling on the subject of the election.
    Comment: One commenter suggested requiring notarization of ballots 
to avoid ballot fraud. Another commenter objected to requiring 
notarization of ballots because of the inconvenience.
    Response: Neither the proposed nor final rule requires notarization 
of ballots. Notarization of ballots is not required because it often 
requires money and may negatively impact voter participation, 
potentially resulting in disenfranchisement.
    Comment: A tribal commenter requested cross-referencing 25 CFR 1.2 
to allow for waivers of the Part 81 requirements, when in the best 
interest of the Indians, to acknowledge that such a waiver is 
available. This tribal commenter also stated that adding escape clauses 
in the regulations would help address situations that were 
unanticipated or where the regulations inadvertently undermine the 
tribe.
    Response: The Secretary's regulations at 25 CFR 1.2 provide that, 
``the Secretary retains the power to waive or make exceptions to his 
regulations as found in chapter I of title 25 CFR in all cases where 
permitted by law and the Secretary finds that such waiver or exception 
is in the best interest of the Indians.'' The Secretary's authority to 
waive regulations applies regardless of whether it is restated in the 
rule. The final rule does not address waiver, but it nevertheless 
exists as an option of the Secretary. The final rule does not add 
escape clauses because the Secretary already has the authority to waive 
requirements. In addition, waiving regulations is an extraordinary 
remedy. Pointing out the existence of that remedy in the rule might be 
misconstrued as suggesting that such waivers are routine.
    Comment: One commenter asked whether the Bureau can unilaterally 
withdraw a request in 81.17, and suggested the rule provide limits on 
when the Bureau can withdraw.
    Response: The Bureau may not withdraw a tribal request; there is no 
provision in the statute allowing the Bureau to do so.
    Comment: A commenter stated that the statute requires submission of 
the tribal request to the ``Area Office'' and recommended changing the 
regulation to require filing at the Bureau's Regional Offices (the 
organizational successor to Area Offices).
    Response: While the statute does refer to the Area Office, see 102 
Stat. 2938, 2939, the Local Bureau Official, who is most often in the 
local agency office rather than the regional office, is the first point 
of contact for tribes and petitioners and reviews the request for 
validity.

III. Consultations

    Efforts to revise this regulation date back to 1992, when the first 
consultations were held. More recently, the Department hosted tribal 
consultation sessions on December 1, 2009, in Anchorage, Alaska; 
Brooks, California, on January 12, 2010; Minneapolis, Minnesota, on 
January 20, 2010; Oklahoma City, Oklahoma, on January 26, 2010; Pala, 
California, on February 2, 2010; and Albuquerque, New Mexico, on 
February 4, 2010. The Department also accepted written comments on the 
regulations. The Department reviewed the comments and made significant 
changes to the draft in response to tribes' comments and suggestions. 
Following publication of the proposed rule in October 2014, the 
Department hosted additional tribal consultation sessions including a 
session on October 26, 2014, in Atlanta, Georgia during the National 
Congress of American Indians (NCAI) annual convention; on November 18, 
2014, in Oklahoma City, Oklahoma; and on November 20, 2014, in Rocklin, 
California. The Department also held a listening session with tribes in 
Alaska in December 2014. Several tribes provided their input at these 
sessions or in writing. The final rule incorporates this input and 
responds to comments, above.

IV. Procedural Matters

A. Regulatory Planning and Review (E.O. 12866)

    Executive Order (E.O.) 12866 provides that the Office of 
Information and Regulatory Affairs (OIRA) at the Office of Management 
and Budget (OMB) will review all significant rules. OIRA has

[[Page 63105]]

determined that this rule is not significant. E.O. 13563 reaffirms the 
principles of E.O. 12866 while calling for improvements in the nation's 
regulatory system to promote predictability, to reduce uncertainty, and 
to use the best, most innovative, and least burdensome tools for 
achieving regulatory ends. The E.O. directs agencies to consider 
regulatory approaches that reduce burdens and maintain flexibility and 
freedom of choice for the public where these approaches are relevant, 
feasible, and consistent with regulatory objectives. E.O. 13563 
emphasizes further that regulations must be based on the best available 
science and that the rulemaking process must allow for public 
participation and an open exchange of ideas. We have developed this 
rule in a manner consistent with these requirements. This rule is also 
part of the Department's commitment under the Executive Order to reduce 
the number and burden of regulations and provide greater notice and 
clarity to the public.

B. Regulatory Flexibility Act

    The Department certifies that this rule will not have a significant 
economic effect on a substantial number of small entities under the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq.). It does not change 
current funding requirements or regulate small entities.

C. Small Business Regulatory Enforcement Fairness Act

    This rule is not a major rule under 5 U.S.C. 804(2), the Small 
Business Regulatory Enforcement Fairness Act. Secretarial elections are 
funded by the BIA. Nor will this rule have significant adverse effects 
on competition, employment, investment, productivity, innovation, or 
the ability of the U.S.-based enterprises to compete with foreign-based 
enterprises.

D. Unfunded Mandates Reform Act

    This rule does not impose an unfunded mandate on State, local, or 
tribal governments, in the aggregate, or the private sector, of more 
than $100 million per year. The rule does not have a significant or 
unique effect on State, local, or tribal governments or the private 
sector. A statement containing the information required by the Unfunded 
Mandates Reform Act (2 U.S.C. 1531 et seq.) is not required.

E. Takings (E.O. 12630)

    Under the criteria in Executive Order 12630, this rule does not 
affect individual property rights protected by the Fifth Amendment nor 
does it involve a compensable ``taking.'' A takings implication 
assessment is not required.

F. Federalism (E.O. 13132)

    Under the criteria in Executive Order 13132, this rule has no 
substantial direct effect on the States, on the relationship between 
the national government and the States, or on the distribution of power 
and responsibilities among the various levels of government. This rule 
clarifies the procedures for conducting a Secretarial election, which 
is a Federal election, for federally recognized Indian tribes.

G. Civil Justice Reform (E.O. 12988)

    This rule complies with the requirements of Executive Order 12988. 
Specifically, this rule has been reviewed to eliminate errors and 
ambiguity and written to minimize litigation; and is written in clear 
language and contains clear legal standards.

H. Consultation With Indian Tribes (E.O. 13175)

    In accordance with the President's memorandum of April 29, 1994, 
``Government-to-Government Relations with Native American Tribal 
Governments,'' Executive Order 13175 (59 FR 22951, November 6, 2000), 
and 512 DM 2, we have held several consultation sessions with 
representatives of federally recognized tribes throughout the 
development of this rule. Details on these consultation sessions and 
the comments received are described above.

I. Paperwork Reduction Act

    The Paperwork Reduction Act (PRA), 44 U.S.C. 3501 et seq., 
prohibits a Federal agency from conducting or sponsoring a collection 
of information that requires OMB approval, unless such approval has 
been obtained and the collection request displays a currently valid OMB 
control number. Nor is any person required to respond to an information 
collection request that has not complied with the PRA. In accordance 
with 44 U.S.C. 3507(d), BIA submitted the information collection and 
recordkeeping requirements of the rule to OMB for review and approval. 
The following describes the information collection requirements in each 
section of the rule and any changes from the current rule.
    Title: Secretarial elections (25 CFR part 81).
    OMB Control Number: 1076-0183.
    Requested Expiration Date: Three years from the approval date.
    Summary: Section 81.6 of the revised Part 81 regulations requires 
the Department of the Interior to collect information from tribes that 
are requesting a Secretarial election. The information to be collected 
includes the language to be voted on, and a certified list of tribal 
members who will be age 18 at the time of the Secretarial election and 
their current addresses or a certified Eligible Voters List with 
addresses. Such a list with names and addresses is necessary to ensure 
that all eligible voters receive notice of the Secretarial election and 
the opportunity to register and vote in the election.
    Section 81.55 of the revised Part 81 regulations requires the 
Department to collect information from tribal members who petition for 
a Secretarial election. Such petitioners are required to provide 
certain information in the petition, that tribal members who wish to 
vote in the election to register for the election, that votes be 
submitted via ballots. In addition, the section requires anyone wishing 
to challenge the results of an election to provide substantiating 
evidence for the challenge.
    Frequency of Collection: On occasion.
    Description of Respondents: Indian tribes, Indian tribal members.
    Total Annual Responses: 252,041.
    Total Annual Burden Hours: 64,305 (1,280 hours for tribal 
submissions, 63,025 hours for member submissions).
    Total Annual Cost Burden: $ 110,880.
    You can receive a copy of BIA's submission to OMB by contacting the 
person listed in the FOR FURTHER INFORMATION CONTACT section, or by 
requesting the information from the Indian Affairs Information 
Collection Clearance Officer, Office of Regulatory Affairs & 
Collaborative Action, 1849 C Street, NW., MS-3623, Washington, DC 
20240. You may also view the information collection request as 
submitted to OMB at www.reginfo.gov.
    Comments should address: (1) Whether the collection of information 
is necessary for the proper performance of the Program, including the 
practical utility of the information to the BIA; (2) the accuracy of 
the BIA's burden estimates; (3) ways to enhance the quality, utility, 
and clarity of the information collected; and (4) ways to minimize the 
burden of collection of information on the respondents, including the 
use of automated collection techniques or other forms of information 
technology.

J. National Environmental Policy Act

    This rule does not constitute a major Federal action significantly 
affecting the quality of the human environment.

[[Page 63106]]

K. Information Quality Act

    In developing this rule, we did not conduct or use a study, 
experiment, or survey requiring peer review under the Information 
Quality Act (Pub. L. 106-554).

L. Effects on the Energy Supply (E.O. 13211)

    This rule is not a significant energy action under the definition 
in Executive Order 13211. A Statement of Energy Effects is not 
required.

List of Subjects in 25 CFR Parts 81 and 82

    Administrative practice and procedure, Elections, Indians--tribal 
government, Reporting and recordkeeping requirements.

    For the reasons given in the preamble, under the authority of 5 
U.S.C. 301 and 25 U.S.C. 2 and 9, the Department amends parts 81 and 82 
of chapter I, title 25 of the Code of Federal Regulations, as follows:

0
1. Revise part 81 to read as follows:

PART 81--SECRETARIAL ELECTION PROCEDURES

Subpart A--Purpose and Scope

Sec.
81.1 What is the purpose of this part?
81.2 When does this part apply?
81.3 Information collection.
Subpart B--Definitions
81.4 What terms do I need to know?
Subpart C--Provisions Applicable to All Secretarial Elections
81.5 What informal review is available to a tribe or petitioner when 
anticipating adopting or amending a governing document?
81.6 How is a Secretarial election requested?
81.7 What technical assistance will the Bureau provide after 
receiving a request for election?
81.8 What happens if a governing Federal statute and this part 
disagree?
81.9 Will the Secretary give deference to the Tribe's interpretation 
of its own documents?
81.10 Who may cast a vote in a Secretarial election?
81.11 May a tribe establish a voting age different from 18 years of 
age for Secretarial elections?
81.12 What type of electioneering is allowed before and during a 
Secretarial election?
81.13 What types of voting assistance are provided for a Secretarial 
election?
81.14 May Secretarial elections be scheduled at the same time as 
tribal elections?
81.15 How are conflicting proposals to amend a single document 
handled?
81.16 Who pays for holding the Secretarial election?
81.17 May a tribe use its funds to pay non-Federal election 
officials?
81.18 Who can withdraw a request for a Secretarial election?
Subpart D--The Secretarial Election Process under the Indian 
Reorganization Act (IRA)
81.19 How does the Bureau proceed after receiving a request for a 
Secretarial election?
81.20 What is the first action to be taken by the Chair of the 
Election Board?
81.21 What are the responsibilities of the Secretarial Election 
Board in conducting a Secretarial election?
81.22 How is the Secretarial election conducted?
81.23 What documents are included in the Secretarial Election Notice 
Packet?
81.24 What information must be included on the Secretarial election 
notice?
81.25 Where will the Secretarial election notice be posted?
81.26 How does BIA use the information I provide on the registration 
form?
81.27 Must I re-register if I have already registered for a tribal 
or Secretarial election?
81.28 How do I submit my registration form?
81.29 Why does the Secretarial Election Board compile a Registered 
Voters List?
81.30 What information is contained in the Registered Voters List?
81.31 Where is the Registered Voters List posted?
81.32 May the Registered Voters List be challenged?
81.33 How does the Secretarial Election Board respond to challenges?
81.34 How are the official ballots prepared?
81.35 When must the Secretarial Election Board send ballots to 
voters?
81.36 What will the mailout or absentee ballot packet include?
81.37 How do I cast my vote at a polling site?
81.38 When are ballots counted?
81.39 How does the Board determine whether the required percentage 
of registered voters have cast ballots?
81.40 What happens if a ballot is spoiled before it is cast?
81.41 Who certifies the results of the Election?
81.42 Where are the results of the Election posted?
81.43 How are the results of the Election challenged?
81.44 What documents are sent to the Authorizing Official?
81.45 When are the results of the Secretarial election final?
Subpart E--The Secretarial Election Process under the Oklahoma Indian 
Welfare Act (OIWA)
81.46 How does the Bureau proceed upon receiving a request for an 
OIWA Election if no provisions are contrary to applicable law?
81.47 How is the OIWA Secretarial election conducted?
81.48 When are the results of the OIWA Election final?
Subpart F--Formulating Petitions to Request a Secretarial Election
81.49 What is the purpose of this subpart?
81.50 Who must follow these requirements?
81.51 How do tribal members circulate a petition to adopt or amend 
the tribe's governing document?
81.52 Who may initiate a petition?
81.53 Who may sign a petition?
81.54 Who is authorized to submit a petition to the Secretary?
81.55 How is the petition formatted and signed?
81.56 Do petitions have a minimum or maximum number of pages?
81.57 How do I determine how many signatures are needed for a 
petition to be valid?
81.58 How long do tribal members have to gather the signatures?
81.59 How does the spokesperson file a petition?
81.60 How does the Local Bureau Official process the petition?
81.61 How can signatures to the petition be challenged?
81.62 How is the petition validated?
81.63 May the same petition be used for more than one Secretarial 
election?

    Authority : 25 U.S.C. 473a, 476, 477, as amended, and 503.

Subpart A--Purpose and Scope


Sec.  81.1  What is the purpose of this part?

    This part prescribes the Department's procedures for authorizing 
and conducting elections when Federal statute or the terms of a tribal 
governing document require the Secretary to conduct and approve an 
election to:
    (a) Adopt, amend, or revoke tribal governing documents; or
    (b) Adopt or amend charters.


Sec.  81.2  When does this part apply?

    (a) This part applies only to federally recognized tribes, in the 
circumstances shown in the following table.

------------------------------------------------------------------------
       If a tribe wants to . . .                    And . . .
------------------------------------------------------------------------
(1) Adopt a new governing document to    The Federal statute requires an
 reorganize under Federal statute.        election before or after
                                          Secretarial approval.
(2) Adopt a new governing document to    The governing document requires
 reorganize outside Federal statute.      approval under the Secretary's
                                          general authority to approve.

[[Page 63107]]

 
(3) Amend or revoke a governing          The Federal statute requires an
 document adopted under Federal statute.  election and approval for
                                          amendment or revocation.
(4) Amend or revoke a governing          The governing document requires
 document adopted outside Federal         Secretarial approval of an
 statute.                                 amendment or revocation.
(5) Ratify a federal charter of          The charter requires
 incorporation.                           Secretarial approval or is
                                          being ratified under the
                                          Oklahoma Indian Welfare Act
                                          (OIWA).
(6) Amend a federal charter of           The charter requires a
 incorporation.                           Secretarial election to amend.
(7) Take other action..................  A Federal statute or tribal law
                                          requires a Secretarial
                                          election in order to take that
                                          action.
(8) Remove the requirement for a         A Federal statute or tribal law
 Secretarial approval from a governing    requires a Secretarial
 document.                                election in order to take that
                                          action.
------------------------------------------------------------------------

    (b) Secretarial elections will be conducted in accordance with the 
procedures in this part unless the amendment article of the tribe's 
governing document provides otherwise and is not contrary to Federal 
voting qualifications or substantive provisions, in which case the 
provisions of those documents shall rule, where applicable.
    (c) If the amendment provisions of a tribal governing document have 
become outdated and the amendment cannot be effected under them, and 
the recognized tribal governing body requests a Secretarial election, 
the Bureau may authorize a Secretarial election under this part to 
amend the documents.


Sec.  81.3  Information collection.

    The information collection requirements contained in this part are 
approved by the Office of Management and Budget under the Paperwork 
Reduction Act of 1995, 44 U.S.C. 3507(d), and has been assigned OMB 
control number 1076-0183. This information is collected when, under 
Federal statute or the tribe's governing documents, the Secretarial 
election is authorized to adopt, amend, or revoke governing documents; 
or adopt or amend charters. This information is required to obtain or 
retain benefits. A Federal agency may not collect or sponsor an 
information collection without a valid OMB control number.

Subpart B--Definitions


Sec.  81.4  What terms do I need to know?

    For purposes of this part:
    Absentee ballot means a ballot the Secretarial Election Board 
provides to a registered voter, upon request, to allow him or her to 
vote by mail even though polling sites are used.
    Amendment means any modification or change to one or more 
provisions of an existing governing document or charter.
    Applicable law means any treaty, statute, Executive Order, 
regulation, or final decision of a Federal court, which is applicable 
to the tribe.
    Authorizing Official means the Bureau official with delegated 
Federal authority to authorize a Secretarial election.
    Bureau means the Bureau of Indian Affairs, Department of the 
Interior.
    Business day means a weekday (Monday through Friday), excluding 
Federal holidays.
    Cast means the action of a registered voter, when the ballot is 
received through the mail by the Secretarial Election Board, or placed 
in the ballot box at the polling site.
    Charter means a charter of incorporation issued under a Federal 
statute and ratified by the governing body in accordance with tribal 
law or, if adopted before May 24, 1990, by a majority vote in an 
election conducted by the Secretary.
    Day means a calendar day. A Secretarial election may be held on a 
Saturday, Sunday or Federal holiday.
    Department means the Department of the Interior.
    Director means the Director of the Bureau of Indian Affairs or his 
or her authorized representative.
    Electioneering means campaigning for or against the adoption, 
ratification, revocation or amendment of a proposed governing document 
or a charter.
    Eligible voter means a tribal member who will be 18 years of age or 
older on the date of the Secretarial election (and, if the tribe's 
governing document imposes additional requirements for voting in a 
Secretarial election, also meets those requirements).
    Eligible Voters List means a list of eligible voters, including 
their birthdates and their last known mailing addresses. The Eligible 
Voters List is compiled and certified by the tribe's governing body or 
the Bureau if the Bureau maintains the current membership roll for the 
tribe.
    Federal statute means the Indian Reorganization Act (IRA), 25 
U.S.C. 476, 477, as amended, the Oklahoma Indian Welfare Act (OIWA), 25 
U.S.C. 503, and any tribe-specific Federal statute that requires a 
Secretarial election for the adoption of a governing document.
    Final agency action means the Authorizing Official's approval or 
disapproval of a Secretarial election or acknowledgment of the tribe's 
or petitioners' withdrawal of a request for Secretarial election, and 
is final for the Department.
    Governing document means any written document that prescribes the 
extent, limitations, and manner in which the tribe exercises its 
sovereign powers.
    Local Bureau office means the local administrative office of the 
Bureau that is the primary point of contact between the Bureau and the 
tribe.
    Local Bureau Official means the Superintendent, Field 
Representative, or other official having delegated Federal 
administrative responsibility under this part.
    Mailout ballot means a ballot the Secretarial Election Board 
provides to a registered voter to allow him or her to vote by mail in 
an election conducted entirely by mail.
    Member of a tribe or tribal member means any person who meets the 
criteria for membership in a tribe and, if required by the tribe, is 
formally enrolled.
    Petition means the official document submitted by the petitioners 
to the Secretary to call a Secretarial election for the purpose of 
adopting or ratifying a new governing document, amending the tribe's 
existing governing document, or revoking the tribe's existing governing 
document.
    Petitioner means a tribal member who is 18 years of age or older 
(and, if the tribe's governing document imposes additional requirements 
for petitioning, also meets those requirements), and signs a petition.
    Polling site ballot means the ballot the Secretarial Election Board 
provides to a registered voter, allowing him or her to vote when 
polling sites are required by the amendment and adoption article of the 
tribe's governing document.
    Recognized governing body means the tribe's governing body 
recognized by the Bureau for the purposes of government-to-government 
relations.

[[Page 63108]]

    Registered Voter means an eligible voter who has registered to vote 
in the Secretarial election.
    Registered Voters List means the list of all Registered Voters 
showing only names and, where applicable, voting districts.
    Registration means the process by which an eligible voter signs up 
to vote in the Secretarial election.
    Revocation means that act whereby the registered voters of a tribe 
vote to revoke their current governing document.
    Secretarial election means a Federal election conducted by the 
Secretary under a Federal statute or tribal governing document under 
this part.
    Secretarial Election Board means the body of officials appointed by 
the Bureau and the tribe (and the spokesperson for petitioners, as 
applicable) to conduct the Secretarial election.
    Secretary means the Secretary of the Interior or his or her 
authorized representative.
    Spoiled ballot means the ballot is mismarked, mutilated, rendered 
impossible to determine the voter's intent, or marked so as to violate 
the secrecy of the ballot.
    Spokesperson for the petitioners or spokesperson means a tribal 
member who provides a document signed by other tribal members that 
provides him or her authority to speak or submit a petition on their 
behalf.
    Tribal request means a request that includes all of the components 
set out in 81.6.
    Tribe means any Indian or Alaska Native tribe, band, nation, 
pueblo, village or community that is listed in the Federal Register 
under 25 U.S.C. 479a--1(a), as recognized and receiving services from 
the Bureau of Indian Affairs.
    Voting district means a geographic area established to facilitate 
the voting process, if required, by the amendment and adoption articles 
of the tribe's governing document.

Subpart C--Provisions Applicable to All Secretarial Elections


Sec.  81.5  What informal review is available to a tribe or petitioner 
when anticipating adopting or amending a governing document?

    A tribe that plans to adopt or amend a governing document or a 
spokesperson for a petitioner may, but is not required to, submit the 
proposed document with a request for informal review to the Local 
Bureau Official.
    (a) During the informal review:
    (1) Bureau personnel will help the tribal government or petitioner 
spokesperson in drafting governing documents, bylaws, charters, 
amendments and revocations, explain the Secretarial election process, 
and provide guidance on methods for voter education, such as 
informational meetings.
    (2) The Local Bureau Official will review the proposed document and 
will offer technical assistance and comments to the tribe or petitioner 
spokesperson, including but not limited to guidance on whether any of 
the provisions of the proposed document or amendment may be contrary to 
applicable laws.
    (b) The Bureau will provide technical assistance for a petition 
only upon request of the spokesperson. Bureau personnel will provide a 
courtesy copy to the tribe's governing body of all correspondence 
regarding technical assistance to the petitioners. The spokesperson 
will be responsible for obtaining the approval of the tribal members it 
represents on changes to the content of the petition.


Sec.  81.6  How is a Secretarial election requested?

    To request a Secretarial election:
    (a) The tribe or petitioner must submit:
    (1) A duly adopted tribal resolution, tribal ordinance, other 
appropriate tribal document requesting the Secretary to call a 
Secretarial election, or, in the absence of an existing governing 
document or if authorized or required by the existing governing 
documents, a petition that has been verified by the Bureau as having 
the minimum number of required signatures of tribal members; and
    (2) The exact document or amended language to be voted on; and
    (b) The tribe must submit a list in an electronically sortable 
format with names, last known addresses, dates of birth, and voting 
district, if any, of all tribal members who:
    (1) Will be 18 years of age or older within 120 days of the date of 
the request; and
    (2) Meet any other voting restrictions imposed by the tribe's 
governing document for voting in the Secretarial election.


Sec.  81.7  What technical assistance will the Bureau provide after 
receiving a request for election?

    After receiving a tribal request for election under Sec.  81.6, the 
Bureau will provide the following technical assistance.
    (a) The Local Bureau Official will review and make a recommendation 
on the proposed document or amendment, prepare background information 
on the tribe, and submit to the Authorizing Official.
    (b) The Authorizing Official must do all of the following:
    (1) Review the proposed document or amendment and offer technical 
assistance to the tribe (and spokesperson, for petitions);
    (2) Consult with the Office of the Solicitor to determine whether 
any of the provisions of the proposed document or amendment may be 
contrary to applicable law; and
    (3) Notify the tribe (and spokesperson, for petitions) in writing 
of the results of the review.
    (i) If the review finds that a provision is or may be contrary to 
applicable law, the notification must explain how the provision may be 
contrary to applicable law and list changes to the document that would 
be required to allow the Authorizing Official to approve the document 
as not contrary to applicable law.
    (ii) The notification must be sent to the tribe (and spokesperson, 
for petitions) promptly but in no case less than 30 days before calling 
the election.
    (iii) For IRA elections, the tribe may choose to proceed with the 
election without incorporating required changes, but the Authorizing 
Official may not approve election results ratifying provisions that are 
contrary to applicable law.
    (iv) For OIWA elections, the Authorizing Official may not authorize 
a Secretarial election on any proposed document that contains 
provisions that may be contrary to applicable law.


Sec.  81.8  What happens if a governing Federal statute and this part 
disagree?

    If a conflict appears to exist between this part and a specific 
requirement of the Federal statute, this part must be interpreted to 
conform to the statute.


Sec.  81.9  Will the Secretary give deference to the Tribe's 
interpretation of its own documents?

    The Secretary will give deference to the tribe's reasonable 
interpretation of the amendment and adoption articles of the tribe's 
governing documents. The Secretary retains authority, however, to 
interpret tribal law when necessary to carry out the government-to-
government relationship with the tribe or when a provision, result, or 
interpretation may be contrary to Federal law.


Sec.  81.10  Who may cast a vote in a Secretarial election?

[[Page 63109]]



------------------------------------------------------------------------
                                          Then the following individuals
             If the tribe:                       may cast a vote:
------------------------------------------------------------------------
(a) Is reorganizing under Federal        Any member of the tribe who:
 statute for the first time,.            (1) Will be 18 years of age or
                                          older on the date of the
                                          Secretarial election; and
                                         (2) Has duly registered,
                                          regardless of residence or
                                          other qualifications contained
                                          in the tribe's governing
                                          documents or charter
(b) Is already reorganized under         Any member of the tribe who:
 Federal statute,.                       (1) Will be 18 years of age or
                                          older on the date of the
                                          Secretarial election; and
                                         (2) Otherwise meets the
                                          qualifications required by the
                                          tribe's governing documents or
                                          charter for that particular
                                          type of Secretarial election;
                                          and
                                         (3) Has duly registered.
(c) Is not reorganized under a Federal   Any member of the tribe who:
 statute but tribal law requires a       (1) Will be 18 years of age or
 Secretarial election.                    older on the date of the
                                          Secretarial election; and
                                         (2) Otherwise meets the
                                          qualifications, if any,
                                          required by the tribe's
                                          governing documents or charter
                                          for that particular type of
                                          Secretarial election, if any;
                                          and
                                         (3) Has duly registered.
------------------------------------------------------------------------

Sec.  81.11  May a tribe establish a voting age different from 18 years 
of age for Secretarial elections?

    No. A Secretarial election is a Federal election. According to the 
26th Amendment of the U.S. Constitution, adopted July 1, 1971, all 
individuals 18 years of age and older must be allowed to vote in 
Federal elections.


Sec.  81.12  What type of electioneering is allowed before and during 
Secretarial election?

    There shall be no electioneering within 50 feet of the entrance of 
a polling site.


Sec.  81.13  What types of voting assistance are provided for a 
Secretarial election?

    If polling sites are required by the amendment or adoption article 
of the tribe's governing document, the Chair of the Secretarial 
Election Board will:
    (a) Appoint interpreters;
    (b) Ensure that audio or visual aids for the hearing or visually 
impaired are provided;
    (c) Ensure that reasonable accommodations are made for others with 
impairments that would impede their ability to vote; and
    (d) Allow the interpreter or Secretarial Election Board member to 
explain the election process and voting instructions. At the request of 
the voter, the interpreter or Board member may accompany the voter into 
the voting booth, but must not influence the voter in casting the 
ballot.


Sec.  81.14  May Secretarial elections be scheduled at the same time as 
tribal elections?

    The Secretarial Election Board will, generally, avoid scheduling 
Secretarial elections at the same time as tribal elections to avoid 
confusion. If the Secretarial Election Board decides to schedule a 
Secretarial election at the same time as a tribal election, the 
Secretarial Election Board must clearly inform eligible voters of any 
differences between the tribal election and the Secretarial election 
and separate ballots must be used for each type of election.


Sec.  81.15  How are conflicting proposals to amend a single document 
handled?

    When conflicting proposals to amend a single provision of a tribal 
governing document or charter provision are submitted, the proposal 
first received by the Local Bureau Official, if properly submitted as a 
complete tribal request, must be voted on before any consideration is 
given other proposals. Other proposals must be considered in order of 
their receipt if they are resubmitted following final agency action on 
the first submission. This procedure applies regardless of whether the 
proposal is a new or revised tribal governing document.


Sec.  81.16  Who pays for holding the Secretarial election?

    (a) A Secretarial election is a Federal election; therefore, 
Federal funding will be used to cover costs. The Bureau will pay for 
the costs, unless the tribe has received funding for this function 
through contracts or self-governance compacts entered into under the 
Indian Self-Determination and Education Assistance Act, as amended, 25 
U.S.C. 450f, et seq.
    (b) Once a tribe removes the requirement for Secretarial approval, 
all subsequent elections it holds to amend the governing document are 
tribal elections and the tribe is responsible for the costs of those 
elections.


Sec.  81.17  May a tribe use its funds to pay non-Federal election 
officials?

    A recognized tribal governing body may use tribal funds to 
compensate non-Federal personnel to respond to the needs of the tribal 
government in the conduct of the Secretarial election.


Sec.  81.18  Who can withdraw a request for a Secretarial election?

    The tribe may withdraw the request for Secretarial election in the 
same manner in which the Secretarial election was requested. The 
petitioners may withdraw the request for Secretarial election by 
submitting a new petition, with signatures of at least a majority of 
the signers of the original petition, seeking withdrawal of the 
original petition. However, the request for a Secretarial election 
cannot be withdrawn after the established deadline for voter 
registration.

Subpart D- The Secretarial Election Process under the Indian 
Reorganization Act (IRA)


Sec.  81.19  How does the Bureau proceed after receiving a request for 
a Secretarial election?

    (a) Upon receiving a request for a Secretarial election, the Local 
Bureau Official will forward the request to the Authorizing Official 
with any appropriate background information.
    (b) The Authorizing Official will issue a memorandum to the Local 
Bureau official. The memorandum will do all of the following:
    (1) Direct the Local Bureau Official to call and conduct a 
Secretarial election by one of the following deadlines:
    (i) If the tribal request is to amend an existing governing 
document, within 90 days from the date of receipt of the request;

[[Page 63110]]

    (ii) If the tribal request is to adopt a new governing document 
(including an amendment to a governing document in the nature of an 
entire substitute) or to revoke an existing governing document, within 
180 days after receiving the request.
    (2) Include as an attachment the document or proposed language to 
be voted upon;
    (3) Include as an attachment the Certificate of Results of Election 
with instructions to return it after the Secretarial election. The 
Certificate shall read as follows:

Certificate of Results of Election

    Under a Secretarial election authorized by (name and title of 
authorizing official) on (date), the attached [insert: Governing 
document and Bylaws, charter of incorporation, amendment or 
revocation] of the (official name of tribe) was submitted to the 
registered voters of the tribe and on (date) duly (insert: adopted, 
ratified, rejected or revoked) by a vote of (number) for and 
(number) against and (number) cast ballots found spoiled in an 
election in which at least 30 percent (or such ``percentages'' as 
may be required to amend according the governing document) of the 
(number) registered voters cast their ballot in accordance with 
(appropriate Federal statute).
Signed:----------------------------------------------------------------
(by the Chair of the Secretarial Election Board and Board Members)
Date: ____; and

    (4) Advise that no changes or modifications can be made to any 
attached document, without the Authorizing Official's prior approval.
    (c) The Local Bureau Official will appoint a Bureau employee to 
serve as the Chair of the Secretarial Election Board and notify the 
tribe of the need to appoint at least two tribal members, who are at 
least 18 years of age, to the Secretarial Election Board. If the 
election is to be held as the result of a petition, then the Local 
Bureau Official will appoint a Bureau employee to serve as the Chair of 
the Secretarial Election Board and notify the tribe and the 
spokesperson for the petitioners of the need to appoint one tribal 
member each, who is at least 18 years of age, to the Secretarial 
Election Board. If the tribe or spokesperson for the petitioners 
declines or fails for any reason to make the appointment(s) by close of 
business on the 10th day after the date the notice letter is issued, 
the Chair of the Secretarial Election Board must appoint the 
representative(s), who are tribal members, if available, on the 11th 
day after the notice letter is issued.


Sec.  81.20  What is the first action to be taken by the Chair of the 
Election Board?

    Within 5 days after the Secretarial Election Board representatives 
are appointed, the Chair must hold the first meeting of the Secretarial 
Election Board to set the election date.


Sec.  81.21  What are the responsibilities of the Secretarial Election 
Board in conducting a Secretarial election?

    The Secretarial Election Board conducts the Secretarial election. 
Except as provided in Sec.  81.43, decisions of the Secretarial 
Election Board are not subject to administrative appeal.


Sec.  81.22  How is the Secretarial election conducted?

    The Secretarial Election Board:
    (a) Uses the list provided in the tribal request as the basis for 
the Eligible Voters List;
    (b) Assembles and mails the Secretarial Election Notice Packet at 
least 30 days, but no more than 60 days, before the date of the 
Secretarial election to all persons on the Eligible Voters List;
    (c) Confirms that registration forms were received on or before the 
deadline date;
    (d) Retains the completed registration form as part of the record;
    (e) Develops the Registered Voters List for posting;
    (f) Where the election is conducted entirely by mailout ballot, 
notes on a copy of the Registered Voters List, by the individual's 
name, the date the ballot was mailed, and the date the ballot was 
returned; and
    (g) Where polling sites are required and an individual requests an 
absentee ballot, notes on a copy of the Registered Voters List, by the 
individual's name, the date his or her absentee ballot request was 
received, the date the absentee ballot was mailed, and the date the 
absentee ballot was returned.


Sec.  81.23  What documents are included in the Secretarial Election 
Notice Packet?

    The Secretarial Election Notice Packet includes the following:
    (a) Mailout Balloting:
    (1) The Secretarial election notice;
    (2) A registration form with instructions for returning the 
completed form by mail;
    (3) An addressed envelope with which to return the completed 
registration form;
    (4) If the entire document is to be amended or adopted, a copy of 
the proposed document including proposed language; and if applicable, a 
copy of the current document proposed for change; and
    (5) A side-by-side comparison showing the current language to be 
changed, if applicable, in the left column and the proposed language in 
the right column.
    (b) Polling Sites (if required by the amendment or adoption 
articles of the tribe's governing document):
    (1) The Secretarial election notice;
    (2) A registration form with instructions for returning the 
completed form by mail;
    (3) An absentee ballot request form with instructions for returning 
the completed form by mail;
    (4) An addressed envelope with which to return the completed 
registration form and absentee ballot request form;
    (5) If the entire document is to be amended or adopted, a copy of 
the proposed document including proposed language; and if applicable, a 
copy of the current document proposed for change; and
    (6) A side-by-side comparison showing the current language to be 
changed, if applicable, in the left column and the proposed language in 
the right column.


Sec.  81.24  What information must be included on the Secretarial 
election notice?

    The Secretarial election notice must contain all of the following 
items.
    (a) The date of the Secretarial election;
    (b) The date which registration forms must be received by the 
Secretarial Election Board;
    (c) A description of the purpose of the Secretarial election;
    (d) A description of the statutory and tribal authority under which 
the Secretarial election is held;
    (e) The deadline for filing challenges to the Registered Voters 
List;
    (f) If polling sites are to be used, the date an absentee ballot 
request must be received by the Secretarial Election Board;
    (g) A statement as to whether the Secretarial election is being 
held entirely by mailout ballot or with polling sites, in accordance 
with the tribe's governing document's amendment or adoption articles; 
and
    (h) The locations and hours of established polling sites, if any.


Sec.  81.25  Where will the Secretarial election notice be posted?

    The Secretarial election notice will be posted at the local Bureau 
office, if any, the tribal headquarters, and other public places 
determined by the Secretarial Election Board.


Sec.  81.26  How does BIA use the information I provide on the 
registration form?

    We use the information you provide on the registration form to 
determine whether you will be registered for and vote in the 
Secretarial election. The

[[Page 63111]]

registration form must include the following statements:
    (a) Completing and returning this registration is necessary if you 
desire to vote in the forthcoming Secretarial election;
    (b) This form, upon completion and return to the Secretarial 
Election Board, will be the basis for determining whether your name 
will be placed upon the list of registered voters, and therefore may 
receive a ballot, and
    (c) Completion and return of this form is voluntary, but failure to 
do so will prevent you from participating in the Secretarial election.


Sec.  81.27  Must I re-register if I have already registered for a 
tribal or Secretarial election?

    Yes. A Secretarial election is a Federal election and you must 
register for each Secretarial election.


Sec.  81.28  How do I submit my registration form?

    You must submit your registration form to the Secretarial Election 
Board by U.S. mail.


Sec.  81.29  Why does the Secretarial Election Board compile a 
Registered Voters List?

    The Registered Voters List is a list of eligible voters who have 
registered and are, therefore, entitled to vote in the Secretarial 
election. We use this list, after all challenges have been resolved, to 
determine whether voter participation in the Secretarial election 
satisfies the minimum requirements of the tribe's governing documents 
and Federal law.


Sec.  81.30  What information is contained in the Registered Voters 
List?

    The Registered Voters List must contain the names, in alphabetical 
order, of all registered voters and their voting districts, if voting 
districts are required by the tribe's governing document's amendment or 
adoption articles.


Sec.  81.31  Where is the Registered Voters List posted?

    A copy of the Registered Voters List, showing only names and, where 
applicable, voting districts, must be posted at the local Bureau 
office, the tribal headquarters, and other public places the 
Secretarial Election Board designates.


Sec.  81.32  May the Registered Voters List be challenged?

    (a) It is possible to challenge in writing the inclusion or 
exclusion or omission of a name on the Registered Voters List. The 
written challenge must be received by the Secretarial Election Board by 
the established deadline and include the following:
    (1) The name of the affected individual or individuals;
    (2) The reason why the individual's name should be added to or 
removed from the Registered Voters List; and
    (3) Supporting documentation.
    (b) If an individual failed to submit his or her registration form 
on time, that individual is precluded from challenging the omission of 
his/her name from the list.


Sec.  81.33  How does the Secretarial Election Board respond to 
challenges?

    All challenges must be resolved by close of business on the third 
day after the date of the challenge deadline established by the 
Secretarial Election Board and all determinations of the Secretarial 
Election Board are final for the purpose of determining who can vote in 
the Secretarial election.
    (a) If the challenge was received after the deadline, the 
Secretarial Election Board must deny the challenge.
    (b) If the challenge was received on or before the deadline, the 
Secretarial Election Board will decide the challenge by reviewing the 
documentation submitted. Thereafter, the Secretarial Election Board 
will include the name of any individual whose name should appear or 
remove the name of any individual who should not appear on the 
Registered Voters List.


Sec.  81.34  How are the official ballots prepared?

    (a) The Secretarial Election Board must prepare the official ballot 
so that it is easy for the voters to indicate a choice between no more 
than two alternatives (i.e., adopting or rejecting the proposed 
language). Separate ballots should be prepared for each proposed 
amendment or a single ballot for adoption of a proposed document (with 
a reference to the document provided in the Secretarial election 
notice).
    (b) The following information must appear on the face of the 
mailout or absentee ballot:

OFFICIAL BALLOT

    (Facsimile Signature)

CHAIR, SECRETARIAL ELECTION BOARD

    (c) When polling places are required by the tribe's governing 
document, the official ballot may be a paper ballot, voting machine 
ballot, or other type of ballot supporting the secret ballot 
process.


Sec.  81.35  When must the Secretarial Election Board send ballots to 
voters?

    (a) Unless the amendment or adoption articles of the tribe's 
governing document require the use of polling sites in the election, 
the election must be conducted entirely by mailout ballots, and the 
Secretarial Election Board must send mailout ballots to registered 
voters promptly upon completion of the Registered Voters List.
    (b) When the amendment or adoption articles of the tribe's 
governing document require the use of polling sites in the election, 
the Secretarial Election Board must send an absentee ballot to every 
registered voter who requests an absentee ballot, as long as the 
request is received before the Secretarial election date.
    (c) All mailout or absentee ballot deliveries must be via U.S. Mail 
or by hand-delivery to the location identified in the Secretarial 
election notice before the date of the Secretarial election.


Sec.  81.36  What will the mailout or absentee ballot packet include?

    The mailout or absentee ballot packet contains:
    (a) A cover letter summarizing what the ballot packet contains and, 
if there is more than one ballot included in the packet, enumerating 
the ballots and advising voters to give consideration to each 
enumerated ballot;
    (b) A mailout or absentee ballot (or, if several amendments are to 
be voted on, multiple ballots, each printed on a different colored 
sheet if possible);
    (c) Instructions for voting by mailout or absentee ballot including 
the date the ballot must be received by the Secretarial Election Board;
    (d) An inner envelope with the words ``Mailout Ballot'' or 
``Absentee Ballot'' printed on the outside, as applicable;
    (e) A copy of the proposed governing document or amendment, if the 
full text is not printed on the mailout ballot and if the entire 
document is to be amended or adopted; and
    (f) A pre-addressed outer envelope with the following certification 
printed on the back:
    I, (print name of voter), hereby certify I am a registered voter 
of the (name of Tribe); I will be 18 years of age or older on the 
day of the Secretarial election; I am entitled to vote in the 
Secretarial election to be held on (date of Secretarial election). I 
further certify that I marked the enclosed mailout ballot in secret.
    Signed:
(voter's signature)----------------------------------------------------

Sec.  81.37  How do I cast my vote at a polling site?

    If polling sites are required by the tribe's governing document's 
amendment or adoption articles, the Secretarial Election Board will 
establish procedures for how polling site ballots will be presented and 
collected, including, but not limited to, paper

[[Page 63112]]

ballots, voting machines, or other methods supporting a secret ballot.


Sec.  81.38  When are ballots counted?

    The ballots will be counted under the supervision of the 
Secretarial Election Board, after the deadline established for 
receiving all ballots or closing of the polls, if polling sites are 
required by the tribe's governing document's amendment or adoption 
articles.


Sec.  81.39  How does the Board determine whether the required 
percentage of registered voters have cast ballots?

    The Secretarial Election Board must count the number of valid 
ballots and cast spoiled ballots to determine total voter 
participation. The Board must take the total voter participation and 
divide it by the total number of Registered Voters. This total is used 
to determine whether the percentage of Registered Voters who cast votes 
meets the requirements of the tribe's governing documents or Federal 
statute that requires at least 30 percent voter participation. For 
example:
    (a) If there were 200 registered voters of which 75 cast valid 
ballots and 5 cast spoiled ballots for a total of 80 cast ballots (75 + 
5 = 80). The percentage of voter participation would be determined as 
follows:
    Total number of votes cast (80) divided by the total number 
registered voters (200) or 80 / 200 = 0.40 or 40 percent voter 
participation.
    (b) This example meets the Federal statutory requirement of at 
least 30 percent voter participation.


Sec.  81.40  What happens if a ballot is spoiled before it is cast?

    If a ballot is spoiled before it is cast, this section applies.
    (a) The registered voter may return the spoiled ballot to the 
Secretarial Election Board by mail or in person at the local Bureau 
office with a request for a new ballot before the election date. The 
new ballot will be promptly provided to the registered voter. The 
Secretarial Election Board must retain all ``spoiled uncast ballots'' 
for recordkeeping purposes.
    (b) If polling sites are required, the voter may return the spoiled 
ballot to the polling site worker and request a new ballot. Upon 
receiving the new ballot, the voter must then complete the voting 
process. The polling site worker will mark the spoiled ballot ``spoiled 
uncast'' and record that the ballot has been spoiled. The polling site 
worker must retain all ``spoiled uncast ballots'' for recordkeeping 
purposes.


Sec.  81.41  Who certifies the results of the Election?

    The Chair and all members of the Secretarial Election Board must be 
present during the counting of the ballots and must sign the 
Certificate of Results of Election.


Sec.  81.42  Where are the results of the Election posted?

    The Secretarial Election Board must post a copy of the Certificate 
of Results of Election at the local Bureau office, the tribal 
headquarters, and at other public places listed in the election notice. 
The Board also has the discretion to publicize the results using 
additional methods, such as by posting on the tribe's Web site.


Sec.  81.43  How are the results of the Election challenged?

    Any person who was listed on the Eligible Voters List and who 
submitted a voter registration form may challenge the results of the 
Secretarial election. The written challenge, with substantiating 
evidence, must be received by the Chairman of the Secretarial Election 
Board within 5 days after the Certificate of Results of Election is 
posted, not including the day the Certificate of Results of Election is 
posted. Challenges received after the deadline for filing challenges 
will not be considered. If the third day falls on a weekend or Federal 
holiday, the challenge must be received by close of business on the 
next business day.


Sec.  81.44  What documents are sent to the Authorizing Official?

    The Chair of the Secretarial Election Board must transmit all 
documents pertaining to the Secretarial election to the Authorizing 
Official, including:
    (a) The original text of the material voted on;
    (b) The Eligible Voters List;
    (c) The Registered Voters List;
    (d) The Secretarial Election Notice Packet;
    (e) Any challenges to the Secretarial election results; and
    (f) The Certificate of Results of Election.


Sec.  81.45  When are the results of the Secretarial election final?

    The Authorizing Official will review election results and 
challenges, if any, as follows:
    (a) If a challenge alleges errors that would invalidate the 
election, and the Authorizing Official sustains any such challenges, 
the Authorizing Official must authorize a recount or call for a new 
Secretarial election. The Authorizing Official will take the 
appropriate steps necessary to provide for a recount or a new 
Secretarial election.
    (b) If all challenges are denied or dismissed, the Authorizing 
Official will review and make a decision based on the following:
    (1) The percentage of total votes cast was at least 30 percent, or 
other percentages required according to the tribe's governing 
document's amendment or adoption articles.
    (2) The voters rejected or accepted the proposed document or each 
proposed amendment; and
    (3) The proposed documents or amendments are not contrary to 
Federal law.
    (c) The Authorizing Official must notify, in writing, the 
recognized governing body of the tribe, and the Director of the Bureau, 
of the following:
    (1) The decisions on challenges;
    (2) The outcome of the voting;
    (3) Whether the proposed governing document, proposed amendment(s) 
or charter or charter amendments are approved or ratified, or if the 
proposed documents contain language that is contrary to Federal law 
and, therefore, disapproved; and
    (4) That the decision is a final agency action.
    (d) The Authorizing Official must:
    (1) Forward the original text of the document, Original Certificate 
of Approval or Disapproval, and the Certificate of Results of Election 
to the tribe and a copy of all documents to the Bureau Director; and
    (2) Retain, as required by the Records Disposition Schedule, a copy 
of all document(s) relevant to the Secretarial election.
    (e) If the certified election results show that the tribal members 
ratified the documents, but the Authorizing Official does not approve 
or disapprove the governing document or amendment by close of business 
on the 45th day after the date of the Secretarial election, the 
Secretary's approval of the documents must be considered as given.
    (f) The Authorizing Official's decision to approve or disapprove 
the governing document or amendment is a final agency action.

Subpart E--The Secretarial Election Process Under the Oklahoma 
Indian Welfare Act (OIWA)


Sec.  81.46  How does the Bureau proceed upon receiving a request for 
an OIWA Election if no provisions are contrary to applicable law?

    If the proposed document does not contain any provision that may be 
contrary to applicable law, the Bureau will take the following steps.

[[Page 63113]]

    (a) The Authorizing Official will issue a memorandum to the Local 
Bureau Official:
    (1) Approving the proposed document or proposed amendments;
    (2) Authorizing the Local Bureau Official to call and conduct a 
Secretarial election, within 90 days from the date of receiving the 
tribal request;
    (3) Attaching the document or proposed language to be voted upon;
    (4) Attaching the Certificate of Results of Election, with 
instructions to return it at the conclusion of the Secretarial 
election. The Certificate shall read as follows:

Certificate of Results of Election

    Under a Secretarial election authorized by (name and title of 
authorizing official) on (date), the attached [insert: Governing 
document and Bylaws, charter of incorporation, amendment or 
revocation] of the (official name of tribe) was submitted to the 
registered voters of the tribe and on (date) duly (insert: adopted, 
ratified, rejected or revoked) by a vote of (number) for and 
(number) against and (number) cast ballots found spoiled in an 
election in which at least 30 percent (or such ``percentages'' as 
may be required to amend according the governing document) of the 
(number) registered voters cast their ballot in accordance with 
(appropriate Federal statute).
Signed: ______________________________
    (by the Chair of the Secretarial Election Board and Board 
Members)
Date: _____________________.; and
    (5) Advising that no changes or modifications can be made to any of 
the attached documents, without prior approval from the Authorizing 
Official.
    (b) The Local Bureau Official will appoint the Chair of the 
Secretarial Election Board and notify the tribe of the need to appoint 
at least two tribal members to the Secretarial Election Board. If the 
election is to be held as the result of a petition, then the Local 
Bureau Official will appoint a Bureau employee to serve as the Chair of 
the Secretarial Election Board and notify the tribe and the 
spokesperson for the petitioners of the need to appoint one tribal 
member each, who is at least 18 years of age, to the Secretarial 
Election Board. If the tribe or spokesperson declines or fails for any 
reason to make the appointment(s) by close of business on the 10th day 
after the date the notice letter is issued, the Chair of the 
Secretarial Election Board must appoint the representative(s), who are 
tribal members, if available, on the 11th day after the notice letter 
is issued.


Sec.  81.47  How is the OIWA Secretarial election conducted?

    After the Chair of the Election Board receives the authorization of 
the Election, the Chair of the Secretarial Election Board will conduct 
the election following the procedures set out in Sec. Sec.  81.19 
through Sec.  81.45 of subpart D.


Sec.  81.48  When are the results of the OIWA Election final?

    (a) If a challenge is sustained and has an effect on the outcome of 
the election, the Authorizing Official must authorize a recount or call 
for a new Secretarial election. The Authorizing Official will take the 
appropriate steps necessary to provide for a recount or a new 
Secretarial election.
    (b) If the challenges are denied or dismissed, the Authorizing 
Official will review and determine whether:
    (1) The percentage of total votes cast was at least 30 percent, or 
such percentages as may be required according to the tribe's governing 
document's amendment or adoption articles; and
    (2) The voters ratified or rejected the proposed document, proposed 
amendment or revocation.
    (c) The Authorizing Official must notify, in writing, the 
recognized governing body of the tribe, and the Director of the Bureau, 
of the following:
    (1) The decisions on challenges;
    (2) The outcome of the voting; and
    (3) That the proposed document, proposed amendments or revocation 
becomes effective as of the date of the Secretarial election; and
    (4) That the decision is a final agency action.
    (d) The Authorizing Official must:
    (1) Forward the original text of the document, Original Certificate 
of Approval, and the Certificate of Results of Election to the tribe 
and a copy of all documents to the Director of the Bureau; and
    (2) Retain, as required by the Records Disposition Schedule, a copy 
of all document(s) relevant to the Secretarial election.

Subpart F--Formulating Petitions To Request a Secretarial Election


Sec.  81.49  What is the purpose of this subpart?

    This subpart establishes requirements for formulating and 
submitting petitions to request the Secretary to call a Secretarial 
election as required by the governing documents or charters of 
incorporation of tribes issued under the Indian Reorganization Act 
(IRA), 25 U.S.C. 476 and 477, as amended, and the Oklahoma Indian 
Welfare Act (OIWA), 25 U.S.C. 503. This Subpart may also be used by a 
federally recognized tribe that is adopting a governing document, under 
Federal statute, for the first time.


Sec.  81.50  Who must follow these requirements?

    Any tribe meeting the criteria in paragraphs (a) or (b) of this 
section must follow the requirements of this subpart.
    (a) A tribe whose governing document or charter of incorporation 
provides for petitioning the Secretary to call a Secretarial election 
for any of the following purposes:
    (1) Amending or revoking the governing document;
    (2) Amending a charter of incorporation ratified under 25 U.S.C. 
477 of the IRA before May 24, 1990 where the amendments section or 
article specifically requires it;
    (3) Amending or ratifying a charter of incorporation under 25 
U.S.C. 503 of the OIWA; or
    (4) Taking any other action authorized by the governing document or 
charter of incorporation.
    (b) A federally recognized tribe, without an existing governing 
document, adopting a governing document under Federal statute, for the 
first time.


Sec.  81.51  How do tribal members circulate a petition to adopt or 
amend the tribe's governing document?

    Tribal members wishing to circulate a petition to adopt or amend 
the tribe's governing document may submit the proposed document to the 
Local Bureau Official for review and comment. The Local Bureau Official 
may help the petitioners in drafting governing documents, bylaws, 
charters, amendments and revocations. The Bureau may also explain the 
Secretarial election process.


Sec.  81.52  Who may initiate a petition?

    A member of the tribe who is 18 years of age or older whose tribe's 
governing document or charter of incorporation permits tribal members 
to petition the Secretary to authorize a Secretarial election.


Sec.  81.53  Who may sign a petition?

    A member of the tribe who is 18 years of age or older may sign a 
petition. Where the tribe's governing document imposes additional 
requirements (other than age requirements) on who may petition, those 
requirements also apply.


Sec.  81.54  Who is authorized to submit a petition to the Secretary?

    The petitioners must designate a spokesperson to submit the 
petition and act on their behalf for the petitioning process.


Sec.  81.55  How is the petition formatted and signed?

    (a) Each page of the petition must contain:

[[Page 63114]]

    (1) A summary of the purpose of the petition, or proposed document, 
or proposed amendment language;
    (2) Numbered lines for each individual to print their legal name, 
current mailing address, date, and signature, and;
    (3) The following declaration at the bottom of each page to confirm 
the collector was present when each signature was collected:

    ``I, (Collector's Printed Name) , hereby declare that each 
individual whose name appears above signed and dated the petition. 
To the best of my knowledge, the individual signing the petition is 
a member of the tribe and is 18 years or older.
    (Signature of Collector)
    (Notary Certification)'',

    (b) Each individual must print their legal name, current mailing 
address, date, and sign on a numbered line.
    (c) Each collector must complete and sign the declaration on each 
page in front of a notary, who will sign and certify.


Sec.  81.56  Do petitions have a minimum or maximum number of pages?

    A petition can have as many pages as necessary to obtain the 
required signatures. However, each page must have the information shown 
in Sec.  81.58 of this subpart.


Sec.  81.57  How do I determine how many signatures are needed for a 
petition to be valid?

    (a) For a tribe whose governing document or charter of 
incorporation provides for petitioning the Secretary to call a 
Secretarial election:
    (1) The spokesperson for the petitioners may ask the tribe or the 
Local Bureau Official how many signatures are required.
    (2) The Local Bureau Official will:
    (i) Contact the tribal governing body to obtain the current number 
of tribal members, 18 years of age or older, to determine the number of 
tribal members who must sign a petition as required by the tribe's 
governing document; and
    (ii) Notify the petitioners' spokesperson how many signatures are 
required and that the number is valid for 180 days from the date of 
this notification.
    (b) For a federally recognized tribe adopting a governing document 
under Federal statute for the first time, the petition must have 
signatures of 50 percent of the tribal members who are 18 years of age 
or older.


Sec.  81.58  How long do tribal members have to gather the signatures?

    Tribal members have one year from the date of the first signature 
to gather the required signatures.


Sec.  81.59  How does the spokesperson file a petition?

    The spokesperson must submit the original petition to the Local 
Bureau Official.


Sec.  81.60  How does the Local Bureau Official process the petition?

    (a) The Local Bureau Official must, on the date of receipt, date 
stamp the petition to record the Official Filing Date, and make four 
copies of the petition for use as follows:
    (1) Posting at the local Bureau office for 30 days from the 
Official Filing Date, including a statement of the proposal contained 
in the petition and instructions for filing a challenge;
    (2) Use in determining sufficiency of petition; and
    (3) For viewing at the Local Bureau Office by a member of the 
tribe, 18 years of age or older.
    (b) The Local Bureau Official must, within one week of the Official 
Filing Date:
    (1) Provide the spokesperson written acknowledgment of receiving 
the petition, which contains the Official Filing Date, the exact number 
of signatures submitted on the petition, and the statement ``The 
petitioners may not add or withdraw any signatures from the petition 
after the Official Filing Date''; and
    (2) Provide a copy of the written acknowledgment of receipt and 
petition to the recognized tribal governing body.
    (c) The Local Bureau Official must:
    (1) Consult with the Office of the Solicitor to determine if any of 
the provisions that are the subject of the petition are or may be 
contrary to applicable law; and
    (2) If it appears that a provision is or may be contrary to 
applicable law, notify the petitioner's spokesperson in writing (with a 
copy to the recognized tribal governing body) how the provision may be 
contrary to applicable law.
    (d) The Local Bureau Official must promptly notify the petitioners 
(with a copy to the recognized tribal governing body) of any problems 
identified under paragraph (c) of this section at least 30 days before 
calling the election.


Sec.  81.61  How can signatures to the petition be challenged?

    Any member of the tribe, 18 years of age or older, may challenge in 
writing the signatures appearing on the petition. The challenge must be 
submitted to the Local Bureau Official, within 30 days of the Official 
Filing Date of the petition and must:
    (a) Identify the page and line on which a signature appears; and
    (b) Provide documentation supporting a challenge that at least one 
of the following is true:
    (1) A signature was forged;
    (2) An individual was ineligible to sign the petition;
    (3) A petition page is inconsistent or improperly formatted; or
    (4) A petition page contains an incomplete or un-notarized 
declaration statement.


Sec.  81.62  How is the petition validated?

    (a) The Local Bureau Official must:
    (1) Confirm the petition has the required number of signatures;
    (2) Indicate any signatures appearing more than once and include 
only one in the count;
    (3) Make recommendations regarding any challenge to the validity of 
signatures based upon the documentation provided by the challenger; and
    (4) Verify the petitioning procedures complied with this Subpart.
    (5) Transmit within 45 calendar days of the Official Filing Date 
the original petition, challenges, and recommendations to the 
Authorizing Official.
    (b) The Authorizing Official must within 60 calendar days of the 
Official Filing Date:
    (1) Determine whether the petition complies with the requirements 
of this Subpart;
    (2) Inform the spokesperson for the petitioners and the recognized 
tribal governing body, in writing, whether the petition is valid, the 
basis for that determination, and a statement that the decision of the 
Authorizing Official is a final agency action.
    (i) If the petition is determined valid for the purposes of calling 
a Secretarial election, it will be deemed a ``tribal request'' for the 
purposes of this part, and the Authorizing Official will instruct the 
Local Bureau Official to call and conduct the Secretarial election in 
accordance with Sec. Sec.  81.19 through 81.45 of subpart D.
    (ii) If the petition is determined invalid, the Authorizing 
Official will notify the spokesperson for the petitioners, with a 
courtesy copy to the tribe's governing body, that the petition was not 
valid and a Secretarial election will not be called.


Sec.  81.63  May the same petition be used for more than one 
Secretarial election?

    No. A petition may not be used for more than one Secretarial 
election. Each request for a Secretarial election requires a new 
petition.

[[Page 63115]]

PART 82--[REMOVED AND RESERVED]

0
2. Remove and reserve part 82.

    Dated: October 2, 2015.
Kevin K. Washburn,
Assistant Secretary--Indian Affairs.
[FR Doc. 2015-26176 Filed 10-16-15; 8:45 am]
BILLING CODE 4339-15-P