Documents IJeparlment THE BUREAU OF INDIAN AFFAIRS VOLUNTARY RELOCATION SER~~fflnf>~iversity Library 

From the ve·ry earliest· days of the history of this country, numbers of Indians have been moving out to areas of broader opportunity. Over -the years· congressional ·investigations, surveys·by private organizations conearned with the welf'are of the Indian, and officials of .the Bureau of Ind.ian 

Affairs have pointed out the need for opening.up·ways in whicJl Indians could 

· move out and take their. places in the larger<commu.Iii ty forming around them. 

While the Bureau through the ~chool system has vigorously pursued efforts to find opportunities away from the reservations for graduates of Bureau operated schools, no significant effort was ever undert~en on behalf of the adult population as a whole until ihe inauguration of the Bureau's program of . voluntary relocation services in 1952. 

During the 1930's, in following out one of the recommendations ·made. in the Meriam Survey, the Bureau undertook a_ program of obtaining employment.for Indians. While this might have developed into a broader service under more 

·favorable circumstances, it failed to do so and the Indians benefiting from this program were for the most par.t young people who were graduating from the Bureau operated schools. This act~vity did stimulate an outward migration of younger people, many of whom, 20 years later, are well established in:Chicago, Detroit, Los Angeles and the Pacific-Northwest. 

Three major factors worked against the growth of this early prograin: (a) the depression of.the 1930's, which greatly reduced available job opportunities; (b) the Federal work relief projects which were undertaken on the reservations as part of the national work relief program and whichprovided·a subsistence income at home; and (c) the change of Federal policy in Indian affairs which during this period was directed toward revival of local selfgovernment and enlargement and development of reservation economies. The off-reseryation employment program, which for the most part served younger Indians ·with some training, was be.ILeved to be running counter to the 'qroader objective of building up reservation conununities which would be needing the leadership available in younger age groups. This program was abandoned in 1940 just before the great expansion in the nation's industrial economy, which was required by the _:participation_of the United States-in World Wa.r II. 

Off-Reservation•.Migration During World War II 

Although the Bureau provided no assistance to Indians seeking to 

make their contribution to the war effort and to share in the benefits of such employment, there was a great wave of outward migration, of Indians _into the war industries. With a similarly large number of Indian young people, women as well as men, entering various branches of the .Armed Services, there was a noticeable reduction in the population of many of the reservations during the flrst .. five years of the 1 ~:O' s. 

Declining Economic Situation-on Reservations after World War II 

With the end of World War II a_movement back to-the reservations· commenced--first, the service men and women, and then, the men and .women who were losing .their jobs in the contracting war industries. During the 19301s 

because of the Federal work programs and, .during the first half of the .1940' s, because of the demands of the war effort for.manpower, the Bureau of' Indian .Affairs and the.states with Indian reservation population had been lulled into 

a sense of complacency concerning the deteriorating economic situation on the reservations. Basic subsistence ·needs of the reservation populations were being met during the '30's with Federal work relief projects. During the early '40's reservation resources were less.overburdened due to the absence of' people in the Armed Services and in war industry and many families on-the-reservations were being materially assisted by allot~ents from the service pay of members of the family away in military se:rvice. After 1945 the serious economic needs on Indian reservations began to be recognized increasingly. Reservation resources were either static or in a process of depletion and the reservation populations were 

multiplying steadily. 

Inauguration of Placement Services on .. the Navajo Reservation 

The whole problem of gr_owing population pressure on Indian reservations was dr-amatd.zed for the American public by the plig~t of the Navajo in .Arizona and New Mexico.· While Bureau officials were in the :process of assembling data 

to justify a long-range rehabilitation program on the Navajo Reservation, articl;es 

on the extremely serious situation a£ this tribe began to appear in national '· 

magazines, Sunday editions of metropolitan newspapers and on natd.ona'l, radio :programs-. Public opinion was aroused and Congress took cognizance of the needs of the Nav~jo people by· authorizing a 10-year rehabilitation program for the Navajo people in · 

April 1950. 

Comprehensive as this :program was for economic development including reseriiation-range improvement, irrigation, development of timber and mineral resources and so on, it was estimated at the time that only 6,950 of' the reservation's 7,500 families could be .accommodated through the proposed extensive development of the reservation resources. Accordingly the program included· a provision for the establishment·of a service to assist those who would be inter~ ested in seeking a livelihood away from the reservation. 

In 194~ a program of job placement services was established. Many Navajo people were already engaged in seasonal farm and railroad track work; through close cooperation with the Arizona ·and New Mexico State Employment Services and .the u. s. Railroad Retirement Board job placements of Navajo Indians in both types of eml)loyment increased steadily. Pl~cement offices were opened inDenver, Salt Lake City-:and Los.Angeles and a very modest number of Navajo men (for the most part without their families) began to move to these 

locations for seasonal work. 

In the fall of 1950 the Bureau decided that it should launch a fullscale relocation program for those Indians who wished to seek permanent employment opportunities away from reservations. An appropriation fbr.this purpose was requested for fiscal year 1952 (beginning ·July 1, 1951) and in the midsummer of' 1951' a staff was appointed to work in the states of Oklahoma, Arizon~; New Mexico, ColC?Xado, Utah and California. 

2 

In November 1951 a Field Relocation Office was opened in Chicago; the Placement staf'f on the Navajo Reservation· was incorporated into the Relocatiorf program and the Navajo placement offices in Denver, Salt Lake City and Los Angeles were converted to Field Offices to serve not·onlyNavajo Indians but members of tribes. i-n all of the states. .ment.Loned. Included in the appropriation for that fiscal year were funds to underwrite the costs of transportation, shipping household .~ffects, subsistence en route to tpe relocation destination and subsistence for.relocatees during the first few weeks at the point of relocation. 

Beginning in-February 1952 the firs_t relocatees moved and· a steady flow of people seeking the opportunities available in off-reservation locations continued and has grown steadily in numbers from year to year. A tabulation 

of relocations by fisca.1.·year from the .. inception of the program to date follows: 

. . \ . . 

RELOCATIONS FROM INCEi.PTION OF-PROGRAM TO.DATE 

    Singles.   Families   Total   Percent   Increase   
    Units   Persons   .Units   .Per-aone   Units   Persons   Persons   
F.Y.   1952   227   227   215   641   442   868       
F.Y.   1953   377   377   320   ·1093   . 697   1470.     68%   
F.Y.   1954   752   752 ·   470   1801   1222   2553     70%   
F.Y.   1955   804   Ho4   696   2655   1500 ·   . · 3459     35%   
F.Y.   1956   1078   1078   1005   4041   2083   5119   · 48%   
F.Y.   1957   1580   1580 ·   1302   5384   2882   6964   ( .. 36%   
  Totals   4818   4818   4008   15615   88?6   20433       Opening Additional Field Relocation Offices 

In·July 1954, because of.limited relocation opportunities in Salk Lake City, the Field Relocation Office there was closed-and a new'off'ice. was ~stablished in Oakland, California, to develop relocation.opportunities in the San Francisco-Oakland Bay area. In 1956, addit,onal offices were established in St. Louis, Missouri; San Francisco and San Jose, California. In 1957 offices were established at·Dallas, Texas; Cincinnati, Ohio; Cleveland, Ohio; Joliet, Illinois and Waukegan, Illinois. 

Developing and Improving ·.Relocation Service Technic:_ues 

The tabulation of relocations given above represents an impressive accomplishment on the pa.rt.of the Indians involved .and on the part of' the Bureau staff who have assisted these people to find economic security and an opportunity for a richer, fuller life in off-reservation locations. This accomplishment is not to be measured simply by numbers of individuals and families assisted 

3 

in relocation; since it reSults f'rom the developing 8Jld continU.ing improvement 

of effective techniques in preparing people for relocat'ion, in interpreting their background to' employers and the .ccmmunf'tf es into which 'they are moving, in deve Loping opportunities for employment and locating.adequate·:qousing, in.orienting individuals ·to urban li.ving, as well as the .tudu.strial work·· si tu.ations and in .following 

up with communf.ty 84justment counseling. · · ·· - 

, . ,1 .• 

The ques td.on sometimes ar-Lses as to how well the Indian people ·who_ choose to relocate are able to adjust to· the req~irements and broader opportunities found in the urban situation. A. recent· study, _. cover-Lng z-e.l.ocatd.ona during the fiscal yea--c~ 1956, reveals t.hat '74 per-cent of .the -p~rso~s. who .relqc_ated .bhat yea:r remained in their new enviromnent.- .Similar. studies f'or fiscal· years 1955 

and 1954 show comparable percentages. · 

It is interesting to note that of. those who return to the reservation, over fif'ty-:percentAot their own volition returned to the point of relocation whe!'e they could resume steady employment and enjoy improved stand.a.r.ds of living. 

This fallows tlie typ~?ai Amer-Lean p~ttern. . . 

The program is well received by employers who e.xpress commendation of Indian workers. The Indian people also view the program f·avorably. 

This is evidenced by the fact that relatives and friends of relocated Indians join them in considerable numbers in urban areas ·to enjoy the same benef'its. 

Continuous evaluation of' the program discloses that it is very well received-by employers, that a sizable backlog of' applications are on hand at the close of each fiscal year; that social i.ntegration and participations in community activities is increasingly deve~oping in the new community; however, 

.. the most gratifying appra:isal of' relocation z-esut.t.s come :from· the· unsolicited statements from employers, public and pr-Lvat.e service agencies, recognized tribal leaders, non-profit organizations and other reli.able sources. One of' these is quoted in part as f~ollows: 

From rema:rk.s of' Paul· Jones, Tribal Chairman, before. the Navajo T.t·ibal Council on October 3, l955, concerning his statements to the National Congress of American 

Indians: · 

"We have taken advantage of r.he r-e l.ocat.Lon program and many :r.epo~ts. have reached me :~from those who have been benef'i ted and .ho'Ldf.ng a permanent job in some town, in some city quite a ways from ·home. The tell me: 'This is the first time I have had a steady income for so long and my family have benef'f.t.ed greatly'. Some o:r them have said: 'When I_.was on the Reeer-vatd.on we· had so 

many mouths to feed and we had no place to find those things to feed our chd.Ldzen but now, with steady employment, we are able·to f'eed our.children and the :people 

with whom we live.'" · · 

The Relocatlon Services· are designed to help people· help l,!lemselves. ·They are intended primarily for · those who are eager to f'Lnd their 11lace in· the larger pattern of' Ameri.can li.fe and to provi.de security f'or themselves and. thei.r 

4 

. . 

children. As the Program progresses, the citizen of' Indian ancestry is becoming 

a component pa.rt of the urban community scene. The time may come when.those who prefer city lif'e will _h~ve lef't the ~eservations in sufficient··numbers to permit those who prefer to remain in the rural life to make a better living on the land from which the great pressure of population will have been alleviated. 

Federal Income Tax Payments Made by Relocatees as Compared to Co&ts _of Relocation Services 

In March of' 1954 a survey was conducted in order to determine the amqunt of' taxes withheld from wages and paid by Indian relocatees. An analysis of payroll records where relocate~s were hired revealed that those Indians who had. been assisted to relocate up to that time would pay back to the Federal Government in income taxes the total annual cost of' the Relocation Services program in approximately one and one-third years. 

The Voluntary Nature of' the Program 

The decision to relocate is made by the Indian. If an individual Indian or family group is interest~d, application is made to the Agency Relocation Officer on the Reservation. This is followed by discussion and arrangements which require time up,· to a· month or two, giving the applicant oppor-tuni.ty 

to understand what is involved in t~e plan, and perhaps to reconsider. · · 

Under this program, Indians on reservations a.re assisted in their movement from reservation areas by being provided with realistic counseling and guidance regarding living conditions they may expect away from the reservation, together with_inf'ormation about available opportunities f'or full-time employment. Counseling also includes a discussion of the Indian's decision to relocate--the good things he will.be leaving behind, as well as the limitations in .reservation living situations, and the complications and difficulties, as well as the advantages, of life in the city; how city living differs from reservation living and the types of adjustments· relocatees are called u.pon to make. The reloc:atee's personal and family situation is discussed and'<not.e made of any p.roblems which must.be dealt with before the relocatee starts out, or which must be -considered after he arrives at his destination. Personal behavior problems are evaluated. Personal grooming and housekeeping standards also receive attenti.on. Pre-relocation counseling is developed around needs of each indiyidual in relation to.his adjustment to an urban community. 

When the relocatees arrive at their relocation destination they are given further assistance in adjusting to an u~ban situation through orientation counseling. Employment procedures and employee-employer relationships are explained.. The relocatee is assisted in locating sui tabl~ housing near hi.s work. Contin~ing counseling and guidance a.re provided ror relocatees on such matters as :family budgeting, adult education opportunities and the functioning 

of community agencies. This procedure is directed toward assisting the relocatees to adjust to their new environment and to become self-supporting members of the cormnunity. 

Relocatees have been assisted in securing _employment wi.th sevez-a.L thousand different employers in diversified industries and have given satisfaction as competent workers. · The capabili.ties of Indian wor-ker s are becoming 

5 

better known and many employers are asking for additional people. Financj.al Assistance 

Finan.cial assistance is provided to those Indians who are in need and who are not able to provide funds to ,de:rray these costs from resou:rces vhicl1 • are available to them. Assistance is provided in the following categories: 

1. Physical examinati.on. In the great majority of instances this service i.s perf'ormed on a non-reimbursable ·basis by the U. s .. Public Health Service; when Public Health Service facilities are not available, a physical examination is performed on a fee basis by a local doctor. 

2. Transportation. Tr_ans:portation is provided in most :i.nstances by . common carrier to enable Indians to travel from their reservation homes to relocation destination. Funds are also provided if they desire to trans:pm·t themselves and their families in ~ersonally owned automobiles. 

3. Subsistence en route. If the relocating Indian and his family a.re in need . ., .funds are provided to defray costs of meals and lodging en route to relocation destination. 

4. Subsistence at destination. Funds are provided the relocatae and his family in order to allow suf'f'icient livlng expenses until he obtains employment and is receiving earned income from wages , Relocating Indians usually . obtain employment after arrival ~t relocation destination in from four to five days and they usually receive their first full pay check about three weeks later, 

·· and f'u.nds derive.d :t'rom this cat. egory of assistance enable them .to defray livin.g J. costs during the interim :period. 

5. Personal awearance. Some relocating Indians a.-re not in posseasio1 of' suf.fi·cient wearing, ')apparel in either quantd, ty or quality to meet acceptable 

standards in the communities to which they relocate. In this connection, an appraisal is made of the head of the family and his dependents and they are provided f'unds with which to purchase a minimum of clothing i.n order to bri11g their personal appearance up to reasonable atanda.-rds~ 

6. Transportation of household good.s. The average relocating family usu.ally owns little in the way of household goods; however, an inventory is' made· of hi.s belongings and such i terns as will assist him at relocation dea+iination are shf.pped to his relocation destination for his use . Average shipment,a are usual.ly under 500 pounds. 

7. Housewares. Generally speaking, Indiana do not posaesa basic housevaree necessary to enable them to establish a household in the community t;o which they re'locate. Funda are allowed to supply, his minimum needs ·:ror such items as sheets, cleaning supplies, dishes, cooking utensils, etc. 

6 

8. Furniture. The average relocatee possesses little in the way of furniture. Oftentimes the furniture he does possess is not worth shipping. After arrival at relocation destination, appraisal is made of relocatee's furniture 

and funds are provided to enable him to supplement his possessions. (Note: 

Single and unattached individuals are not provided assistance in the purchase of furniture or housewares.) 

9. Health coverage protection. Protection is provided each relocatee and his family for health care during the first year of their relo'cation. The Bur-eau of Indian Affairs makes available through Health Service, Incorporated, Chicago, Illinois, a company owned by the_ various Blue Cross and Blue Shield Societies of the various states, health protection that Lnc Iudes e (1) hospital-. ization; (2) surgical care; and (3) calls by a doctor or a physician at the relocatee's home or o~~ice calls at the doctor's or physician's office by the relocatee~ This protection is provided for a period of one 'year and at the end of the one-year period he has the option of continuing this coverage at his own 

expense. 

10. Emergency subsistence.... Funds are available to pr.ovide assistance for families whose workers lose tlj:~ir employment and who have not yet attained. eligibility for unemployment compensatd on. Relocatees who lose employment are usu.ally able to obtain employment within three or four days; however, in order not to place a burden upon public and private wel:f'are agencies in the communities where Indians are relocated, this category of assi.stance is available when needed. 

11, Unusual emergencies. Grants of funds to relocating Indian.s are available for unforeseen· emergencies. This category of assistance has not been too frequently used; however, situations such as death,, extreme illness, etc., have necessitated the use of this assistance. 

Relocation is not the solution to the problems of all Ind.ians. It does :provi.de an avenue for those who desire to exercise the:Lr full ri.ghts, p:r.erogati ves and responsibilities of citizenship. In his new envi.rornnent he i.s not segregated by virtue of being an Indian--he is a worker, a nef.ghbor , oftenti.mes a home-owner, and a taxpaying ci.tizen. 

This program is based on the principles set forth by The President in his State of the Union address, January 10, 1957: 

".The state of the Union continues to vind.icate the wisdom ·of the :principles on which this Republic is founded. Proclaimed in the Constituti.on of the Natn.on and in many of our historic document.s, and founded in devout re.1:1.giou.s convictions, these pri.nci:ples enunciate: A vigilant regard for human liberty; 

a wise concern for bum.an welfare; a ceaseless effort for h:uman progress." 

7 

25186 

OKLAHOMA STATE UNIVERSITY 

llll~lllllllllffl~ij 

3 6135 02212 1976 

·\ii 

) ) 

) . )