Papers

Published Work


Exploring the Influence of Tribal Governance Capacity: Evidence from Internet Availability in Indian Country

Brouwer, N. R. Journal of Political Institutions and Political Economy 5(2): 179–207 (2024).

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Abstract

The lack of internet access on American Indian lands is a frequently discussed component of greater socioeconomic inequalities faced by American indigenous communities. In this paper, I attempt to identify the barriers to internet infrastructure deployment that are unique to Indian Country. Using data on internet availability at the census block level from 2014 to 2019, I apply a spatial matching strategy to identify similar native and non-native census blocks to estimate the effect of tribal land designation on cable internet availability. Finding a significant, negative effect for land in Indian Country, I then examine four possible determinants of tribal government capacity (gaming business, federal funding, participation in self-governance compacts, and a reservation economic freedom index) to explore how it may reduce the gap in internet availability. I find that only one of these four measures, compacting, is correlated with improved internet access in Indian Country.

Map of cable internet availability across census blocks in Indian Country

NIMBYs, YIMBYs, and the Politics of Land Use in American Cities

Brouwer, N. R., and Jessica Trounstine. Annual Review of Political Science 27 (2024).

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Abstract

Debates over the development and density of housing have gained visibility in recent years as housing costs have skyrocketed in many metropolitan areas. With those who seek to limit development (NIMBYs) on one side and those who seek to promote it (YIMBYs) on the other, scholarly attention has turned to understanding preferences and power in the politics of development. This article reviews scholarship relating to the politics of land use. After discussing the history of land use regulation, we describe who the important actors are (and, generally, what they want) in the politics of land use; we explain the distribution of power and inequality in the politics of land use; and we briefly review how land use regulation affects other societal outcomes. We end with a set of unanswered political questions that could push the field forward.

Under Review


Power Without Capacity? Local Self-Governance and Economic Development on American Indian Reservations

Job market paper

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Abstract

American politics has always stood out, and is often celebrated, for the large role local governments play. Yet the study of local politics is replete with examples of local power gone wrong, where government bodies are too weak or too captured to act for the better good of the community. This paper asks whether the distributed nature of power in the U.S. is an economic boon or burden. To answer this question, I look at one of the most significant expansions of local power in the modern U.S.: American Indian tribal governments. Constructing the largest public dataset on reservation economies, combining nearly forty years of annual remote sensing data to estimate economic development on over 300 reservations, I analyze how the expansion of tribal self-governance power impacted reservation economies. I find that tribal self-governance slowed economic growth on average, although the effect fades over time. Using different measures of tribal governance capacity and political institutions, I find tentative evidence for a governance capacity mechanism.

Estimated effect of tribal self-governance on reservation economic development over time

Persuasion and Learning: Exploring Tribal Engagement and the Politics of Federal Support

with Tessa Provins · R&R at Publius/em></p>

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Abstract

Subnational governments frequently lobby and consult with institutions that fund them, but it remains unclear how federally recognized tribal governments use these strategies to shape their relationship with the U.S. federal government. We distinguish two forms of tribal engagement: persuasion, aimed at changing what federal policy permits or provides, and learning, aimed at navigating policy as it stands. We develop a theoretical framework explaining variation in engagement as a function of tribal demand, wealth, and geography, and derive competing expectations for whether engagement increases the federal funding tribes subsequently receive. We test these expectations using original data on tribal lobbying disclosures and participation in the Tribal-Interior Budget Council (TIBC) from 2013 to 2021, paired with a newly constructed dataset of over 89,000 Department of the Interior transactions to tribal governments. Lobbying is well predicted by tribal enrollment, gaming investment, and proximity to professional representation; TIBC participation is not. Neither form of engagement shows a reliable return, consistent with an allocation structure anchored to historical baselines. These results provide evidence that the structure of funding, not the intensity of engagement, drives what tribes receive. This study contributes to the broader literature on Indigenous governance, lobbying, and intergovernmental resource allocation.

</div> Distribution of Department of the Interior funding across tribal governments </div> ## Early Stage Projects ---

The Impacts of Fiscal Devolution on Local Indigenous Development in Mexico

with Tesalia Rizzo and Cesar B. Martinez-Alvarez

Abstract

Effective institutions for self-governance are often understood as the product of long-run historical development rather than something that can be deliberately constructed. We test this assumption by examining whether fiscal incentives can generate local organizational capacity in communities with no prior formal governance structures. We study a 2024 policy that devolved 10\% of Mexico's federal social policy budget directly to more than 18,500 Indigenous and Afro-Mexican communities. While communities with formally recognized indigenous authorities qualified automatically, we focus on a subset of roughly 2,500 communities with comparatively little pre-existing institutional infrastructure that became eligible if 40\% of residents self-identified as Indigenous or Afro-Mexican in the 2020 census. We exploit this threshold in a regression discontinuity design to estimate the program's effect on local organizational capacity, defined as communities' ability to plan, coordinate, and execute public spending on local development projects, proxied using administrative data and high-resolution remote sensing of changes in built infrastructure and nighttime luminosity. To unpack the political mechanisms linking fiscal incentives to organizational capacity, we complement these measures with in-depth qualitative interviews with local residents and leaders.

Hidden in Plain Sight: A Guide to American Indian Communities, Geography, and Migration

with Alex Zhao

Abstract

American Indian and Alaskan Native (AIAN) populations are largely misunderstood or unknown to many political scientists. This project aims to give scholars a guide to understanding the dimensions of AIAN communities across the United States, including settings from urban, reservation, and in-between. Leveraging Census data, it walks readers through the different dimensions of AIAN communities, creates a typology of AIAN communities, and analyzes contemporary demographic shifts related to reservation border towns.

Tribal Legislator Behavior: Evidence from the Cherokee Nation

with Nate Monroe

Abstract

This project investigates legislative behavior in the Cherokee Nation Council, offering one of the first systematic analyses of voting patterns in a tribal government. Using comprehensive roll-call records from 1975 to the present, it explores three core questions: how councilors introduce and pass legislation, how ideological dimensions structure disagreement, and whether conflicts emerge around at-large representation and distributive spending. The study begins with descriptive analysis of bill sponsorship, passage rates, and vote margins, then applies the NOMINATE algorithm to assess the dimensionality of Cherokee politics. Finally, it tests hypotheses about the effects of at-large councilors—who represent citizens outside the Nation’s boundaries—and the politics of pork spending. By opening the “black box” of tribal legislatures, this project situates American Indian lawmaking within broader theories of representation, coalition-building, and institutional conflict, while also producing a replicable dataset for future research on Native governance.