gaming. The issue has never really been one of crime control, morality, or economic fairness...At issue is economics...Ironically, the strongest opponents of tribal authority over gaming on Indian lands are from States whose liberal gaming policies would allow them to compete on an equal basis with the tribes...We must not impose greater moral restraints on Indians than we do on the rest of our citizenry. - Daniel Inouye, senior United States senator from Hawaii. The Indian Gaming Regulatory Act (IGRA), passed by Congress in 1988 (after the act that restored federal recognition to the Alabama-Coushatta), established the framework that governs Indian gaming. The IGRA allows tribes to develop casino-style operations that could improve governmental services and economic conditions in Indian country. According to the IGRA, tribes have the "exclusive right" to regulate gaming in Indian Territory "except when gambling is contrary to federal law or when a state completely prohibits a form of gaming." The IGRA recognizes three different classes of gaming: Class I Gaming: Includes traditional tribal gambling, such as stick and bone games Class II Gaming: Includes bingo, pull tabs, etc. Class III Gaming: Includes large-scale gambling operations Class I gaming is controlled completely by the tribes. Class II gaming is regulated by the tribes with oversight by the National Indian Gaming Commission. Class III gaming may be allowed in a state that allows large-scale gambling operations, even if it allows only low-level operations. Also, Class III gaming is subject to agreed regulatory procedures in Tribal-State compacts, which states are required to negotiate in "good faith". Without a tribal-state compact, no tribal casino can be permitted. Tribes find fault with the provision about Tribal-State compacts, because under the Eleventh Amendment, which provides for state sovereign immunity, tribes are not able to sue any state to enforce the requirement to enter into such compacts. Thus, while the IGRA gives tribes the right to have casinos, the Eleventh Amendment gives the states the right to refuse to negotiate tribal-state compacts. The Indian Gaming Regulatory Act requires that gaming revenues be used only for governmental or charitable purposes. The tribal governments determine how gaming revenues are spent. They are typically used to invest in infrastructure for tribal members, such as housing, schools, and roads; to fund health care and education; and to develop a strong economy. Indian gaming is considered the most powerful economic development tool available on most Indian reservations.