United States v. Timothy Whiteagle

759 F.3d 734, 2014 WL 3562716, 2014 U.S. App. LEXIS 13870
CourtCourt of Appeals for the Seventh Circuit
DecidedJuly 21, 2014
Docket12-3554
StatusPublished
Cited by15 cases

This text of 759 F.3d 734 (United States v. Timothy Whiteagle) is published on Counsel Stack Legal Research, covering Court of Appeals for the Seventh Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
United States v. Timothy Whiteagle, 759 F.3d 734, 2014 WL 3562716, 2014 U.S. App. LEXIS 13870 (7th Cir. 2014).

Opinion

*736 ROVNER, Circuit Judge.

A jury found Timothy G. Whiteagle guilty of (among other offenses) bribing and conspiring to bribe a Ho-Chunk Nation legislator in order to secure favorable treatment for three different vendors wishing to do business with the Nation. The district court ordered him to serve a prison term of 120 months. Whiteagle now appeals his conviction and sentence. We affirm.

I.

The Ho-Chunk Nation of Wisconsin, known formerly as the Wisconsin Winnebago Nation, is a federally recognized Indian tribe headquartered in Black River Falls, in the west-central region of the State. About half of the Nation’s roughly 7,200 enrolled members live in Wisconsin. Among the Nation’s four branches of government, its legislature possesses the authority to enter into contracts on behalf of the Nation. Clarence Pettibone served as one of those legislators from 1995 until 2011. During the time period relevant to this case, the legislature was comprised of eleven elected representatives; the total has since been enlarged to thirteen.

The Ho-Chunk Nation has been active in the gaming industry for over 30 years. Judge Crabb’s decision in Oneida Tribe of Indians of Wisconsin v. Wisconsin, 518 F.Supp. 712, 719-20 (W.D.Wis.1981), held that once Wisconsin’s constitution was amended in 1973 to legalize bingo games licensed by the State, the State ceded its authority to restrict and regulate bingo on Native American reservations. Thereafter, many of Wisconsin’s tribes and bands turned to bingo halls as a source of badly-needed revenue. The Ho-Chunk Nation established its first such hall in 1983, in a used trailer on tribal land in the Wisconsin Dells. See Bill Lueders, Wisconsin Center for Investigative Journalism, Casino profits give Ho-Chunk new outlook, Wis. State JouRnal, Mar. 3, 2014, at Al. With the Supreme Court’s decision in California v. Cabazon Band of Mission Indians, 480 U.S. 202, 107 S.Ct. 1083, 94 L.Ed.2d 244 (1987), congressional enactment the following year of the- Indian Gaming Regulatory-Act, P.L. 100-497, 102 Stat. 2467 (1988), and Wisconsin’s creation of a state lottery in 1987, the door was opened to the operation of full-fledged casinos by the tribes. By June 1992, the Governor of Wisconsin had entered into gaming compacts with all eleven of the State’s tribes and bands, including the Ho-Chunk Nation, authorizing a range of gaming activities at tribal casinos including blackjack, electronic video games, slot machines, and “pull-tab” gambling tickets. Today, the Nation operates a network of six casinos in the State, at sites in or near Black River Falls, Madison, Nekoosah, Tomah, Baraboo (Wisconsin Dells), and Wittenburg. Wis. Legislative Reference Bureau, Research Bull. 97-1, The Evolution of Legalized Gambling in Wisconsin 21-27 (Sept.1997).

The casinos have proven to be highly lucrative for the Ho-Chunk Nation. Currently it nets over $200 million annually from its gambling operations. The profits have enabled the Nation to establish a relatively generous set of benefits for its members, including annual per-capita stipends of $12,000 for adults and one-time payouts of up to $200,000 from a children’s trust fund when a youth turns 18 and graduates from high school. See Lueders, Casino profits give Ho-Chunk new outlook; Ho-Chunk may change how they dole out trust funds, Daily Herald (Arlington Hts., Ill.), May 6, 2014.

Cash Systems, Inc.

The large amount of revenue generated by casino gaming naturally attracts vendors seeking a share of the pie, along with influence peddlers who claim an ability to pave the way for such vendors among trib *737 al officials. Cash Systems, Inc. fell into the former category. Cash Systems was one of a number of firms that specialize in what are described as cash-access or cash-resources services, which principally involve issuing cash to casino customers via automated teller machines and kiosks, check-cashing, and credit- and debit-card advances. (Cash Systems was acquired by a competitor in 2008 after it lost its contract with the Ho-Chunk Nation.) Key to the profitability of casino operations is maximizing the amount of cash on the casino floor — in other words, cash that customers have in their hands ready to spend. This is why cash-access services are important to casino operators: by making it easy for customers to access cash on the spot, they encourage customers to gamble away more of their money. In the early 2000s, Cash Systems was ahead of its peers in some of the services that it offered: it not only had the ability to process cash advances against a customer’s credit or debit card, but it was pioneering the use of hand-held, mobile devices that enabled cash-access transactions to take place anywhere on the casino floor.

Timothy Whiteagle fell into the category of influence peddlers. Whiteagle, a member of the Ho-Chunk Nation, held himself out as an insider whose relationships with other tribal members and legislators offered interested vendors an entrée into the tribe’s governance and gaming operations and, once there, a means of preserving the firm’s business relationship with the tribe. Whiteagle conducted his business in part through his limited-liability company, Wolfbow Big Game Sources.

Cash Systems engaged Whiteagle in 2002 as a confidential consultant as the company was attempting to win a contract with the Nation to provide Ho-Chunk casinos with cash-access services. (Cash Systems was already serving as a subcontractor to the Nation’s existing cash-access vendor, Bank Plus.) The firm agreed to pay Whiteagle a monthly salary of $22,500. Whiteagle’s job was to engage in a behind-the-scenes effort to win the contract and, once the Nation engaged Cash Systems as its vendor in 2002, to help maintain that relationship. Cash Systems served as the Nation’s cash-access services vendor for the next six years. During that time, it reaped over seven million dollars in revenue from the services it provided to the Nation. And over the course of those six years, it paid Whiteagle just under two million dollars. 1 That figure included both Whiteagle’s monthly salary as well as a series of payments that Whiteagle solicited from Cash Systems on Pettibone’s behalf. The total represented nearly 30 percent of the company’s gross revenue on the contract.

The “in” with the tribal legislature that Whiteagle held out to Cash Systems was his relationship with Clarence Pettibone. Whiteagle’s and Pettibone’s parents were related and their families had known and socialized with One another for many years. Pettibone, as we have noted, had been serving in the Ho-Chunk legislature since 1995. During his tenure, he served on the legislature’s finance and development committees and twice held the office of Vice President of the Nation. Pettibone was actively involved in cash access services. As Ho-Chunk legislator Ona Gar- *738 vin testified, “If it had anything to do with check cashing, Clarence was on it.” R. 187 at 66.

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Bluebook (online)
759 F.3d 734, 2014 WL 3562716, 2014 U.S. App. LEXIS 13870, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-timothy-whiteagle-ca7-2014.