(
ALASKA'S LAND-1978 THE ANNUAL REPORT OF THE;
JOINT FEDERAL· STATE LAND USE PlANNING COMMISSION FOR ALASKA The three main elements of nature air, land, and water- are represented by the sun-moon, mountain, and waves of the Commission symbol. Envelop- ing these elements ate the basic symbols of civilization and nature, the triangle and the circle. The triangle, created by joining three straight lines, is indicative of man and his enomomic manner of building, dividing, and planning with straight lines. The circle is representative of nature, which in its abundant glory seldom uses straight lines.
Alaska, the land of the midnight sun, caribou, spruce and salmon. A land with three million lakes, 33,000 miles of saltwater shoreline, and 586,400 square miles of land. A land of sun-moon, mountain, and waves.
--The Joint Federal-State Land Use Planning Commission for Alaska Federal-State Land Use Planning Commission For Alaska
733 W. FOURTH AVENUE, SUITE 400 ANCHORAGE, ALASKA 99501
CO-CHAIRMEN
Esther C. Wunnicke Walter B. Parker Federal Co-Chairman State Co-Chairman
COMMISSIONERS
Federal State Richard A. Cooley Phil R. Holdsworth Joseph H. FitzGerald James J. Hurley Norman C. Gorsuch George W. Rogers Celia M. Hunter John W. Schaeffer
ADVISORY COMMITTEE
Richard Atuk Andrew L. Mathisen C. V. Chatterton Helen Nienhueser Donald L. Finney Frank E. Nyman Nancy Gross Joseph L. Orsini c. c. Hawley Rick Reakoff James Huntington Stephen Reeve Paul Huppert Frank Woods James E. Kowalsky Federal-State Land Use Planning Commission For Alaska
January 31, 1979
The President Washington, D.C.
The Governor Juneau, Alaska
The Joint Federal-State Land Use Planning Commission, created by the
Alaska Native Claims Settlement Act of 1971 (85 Stat. 706) and Alaska
Statutes 41.40.040, submits this report of its activities during the year 1978.
Respectfully yours,
Esther C. Wunnicke Federal Co•Chaitman State Co-Chairman
733 W. FOURTH AVENUE, SUITE 400 ANCHORAGE, ALASKA 99501 CONTENTS
PAGE INTRODUCTION Commission Purpose, Organization, Goals, and Objectives .•.... 2
FEDERAL LAND POLICY " National Interest Lands (d)(2) •.... 5 Assistance to Congress and Others . . . 7 Wilderness Workshop and Recommendations 8
STATE LAND POLICY Introduction . . . . . 11 Land Policy Act . . . . • ll Recreation Lands Study 12 Commission Recommendations 13
IMPLEMENTATION OF THE SETTLEMENT ACT Introduction . . • . . 17 Easement Policy . . . 18 Amendments to ANCSA . 19 Land Exchanges 20 Land Conveyances 21 Navigable Waters 21 Administrative Actions 22 Alaska Railroad Lands 22 Future Questions 23
COOPERATIVE PLANNING Ecological Reserves . • . . . . 26 Northern Alaska Studies Program 27 Wildlife Management, Inventory 27 Alaska Resource Information System 28 Remote Sensing Demonstration Project 29 Cooperative Management Study 31 Compatible Federal-State Planning . • 32
PUBLIC DIALOGUE Commission and Advisory Committee Meetings 34 Continuing Research . . . . . • . . . • . • 35 APPENDICES Publicat.ions and Studies . . . . . • . . 39 Chronology of Commission Actions 46 Public Speeches • . • • . • . 57 Easement Summary (Actions) 63 Commission Budget ...... 68 Commission Staff • . . . . . 72 Allocation of Land in Alaska (Chart) 75 NOitL::lfiOO'a.:LNI Tim JOINT FEDERAL-STATE LAND USE PLANNING COMMISSION FOR ALASKA
Pu?:Pose
The Joint-Federal-State Land Use Planning Commission for Alaska was created by Congress and the Alaska Legislature to provide a statewide land use planning process that will insure the social and economic development of the State in a manner that is compatible with the social and economic well-being of the public, their interests, and the environment.
The Commission, created by the Alaska Native Claims Settlement Act of 1971, is to improve coordination and resolve conflicts among the State, Federal government, and private landowners in the State, and recommend laws, policies and programs to the President, Congress, and the Governor of Alaska for a coordinated comprehensive statewide land use planning process.
Organizatio~
The Commission is headed by the Governor of Alas.ka or his full time Co Chairman, and by a Federal Co-Chairman appointed by the President of the United States. Four Commissioners are appointed by the Secretary of the Interior, and four by the Governor of Alaska.
The Federal Commission members are: Esther C. Wunnicke (Co-Chairman), Richard A. Cooley, Joseph H. FitzGerald, Celia M. Hunter, and Norman C. Gorsuch.
The State Commission members are: Walter B. Parker (Co-Chairman), James J. Hurley, John B. Schaeffer, Phil R. Holdsworth, and George W. Rogers.
The Commission has the advice of a fifteen-member Advisory Committee chosen from persons representing commercial, industrial, recreational, and wilderness land users, environmental groups, Alaska Natives, and other citizens. A Legal Counsel and a Native Affairs Specialist are also on the staff of professional and clerical personnel.
Goals and Objectives
The primary goals of the Joint Federal-State Land Use Planning Commission are to: (1) insure that the economic growth of Alaska is orderly and compatible with the maintenance and enhancement of environmental values and the economic and social well-being of the State's residents; and (2) plan for the wisest and best use of Alaska's lands.
The Commission's primary mandate under the Alaska Native Claims Settlement Act and corresponding State Legislation is to: (1) seek ways to avoid conflicts between the State, the Federal government, and Alaska Natives over selection, use, and management of lands; (2) improve coordination between the State and Federal governments; and (3) recommend changes in laws, policies, and programs affecting land use management in Alaska.
2 The Land Use Planning Commission. in accomplishing its various objectives during the seven years of operation~ has completed a significant amount of research and has made numerous recommendations with regard to Federal and State policies, the implementation of the Alaska Native Claims Settlement Act, and cooperative planni~g and management in Alaska.
Under the Settlement Act, the Commission was to terminate on December 31, 1976. The Commission was extended in 1976 so that Congress and the State of Alaska could obtain the Commission's review and recommendations on several significant land use planning issues in Alaska. Termination is now scheduled for June 30, 1979. As a part of the initial phase-down program, the Commission is undergoing a gradual and continuous reduction of staff, and has negotiated for the safe deposit of its documents, maps, and resource materials. These materials will be available to the public and to any future Federal-State land use planning or coordinating organiz In 1978 the Commission made extensive recommendations on the organization and operation of Federal-State cooperative institut~ons, has held a workshop on the subject and has contracted a study which reviews the various needs for coordinated land use planning and management and alternative institutions designed to meet those needs. In addition, the Commission has worked with an ad hoc land managers task force composed of representatives of the State of Alaska, the Departments of Interior and Agriculture, and the Alaska Federation of Natives. The Commission promoted and helped develop a State-Federal Transportation Planning Organization, and Alaska Resource Information System, and an Ecological Reserve Council. Although much has been done to address land issues in Alaska, and great progress has been made, it will be many.years before.solutions to the various issues relative to the use and ownership of land in Alaska are totally resolved. Continuing coordination between the State, Federal government and Native corporations will be necessary, even after the State and Native lands are conveyed and designations have finally been made for the national interest lands. Desirable solutions to such is~ues as; the management of wildlife and fisheries, including the .subsistence issue; classification anduse of Federal lands governed by the 1976 Feqeral Land Policy and Management Act; exchange of lands; extraction of oil, gas, and minerals, with related requirements for access easements; coastal zone management; offshore fishing and resource ·extraction; and the determination of navigable waters in Alaska, will require a high degree of cooperation and coordination. 3 FEDERAL LAND P 0 L I C Y 4 National Interest Lands The year 1978 held special significance for the Alaska national interest lands issue. These potential parklands, wildlife refuges, forests, wild and scenic rivers, or other conservation categories were largely withdrawn from State and private appropriation in 1972 by the Secretary of the Interior pursuant to Sections 17(d)(2) and (d)(l) of the Alaska Native Claims Settlement Act. Congress directed that up to 80 million acres could be withdrawn under Section 17(d)(i) for study and recommendations to Congress as possible additions to conservation categories. Lands withdrawn under Section 17(d)(l) were for classification in the public interest. This (d)(l) classification limited or excluded private entry or appropriation of public lands and, in large part, State land selections. It served to protect Native, State, and Federal interest in lands pending selection, planning, or further classification. In 1974, t,he Secretary of Interior withdrew approximately 79 million acres of (d)(2) lands. At this time, the Federal-State Land Use Planning Commission and other Federal and State agencies began a planning process designed to influence the ultimate disposition of these and other Federal and State lands in Alaska. The Secretary also withdrew almost all remaining Federal lands in the (d)(l) category but left significant pockets of land still open-to-entry under the homestead laws and other Federal land programs. In 1973, the Secretary submitted his required recommendations to Congress on new units and additions to National Conservation Systems. The original (d)(2) withdrawals were diminished by several million acres, but signifi· cant additions were made to conservation systems from (d)(l) lands so that the final recommendations came to a total of more than 83 million acres of conservation units. In 1974, the Secretary placed the remaining open-to-entry Federal lands into a (d)(l) classification since these were serving as a focus for development activities in Alaska which had no relationship to the overall process underway on State and Federal lands. In September, 1977, the Carter Administration recommended that 92 million acres of Federal land in Alaska be withdrawn and placed in the four conservation systems (parks, forests, wildlife refuges, scenic rivers). During 1977 and 1978, several bills were introduced in Congress, ranging from approximately 82 million to 115 million acres, as additions to or creation of new conservation units in Alaska. Congress, in the Native Claims Settlement Act, set an expiration date of December 18, 1978 for the (d')(2) withdrawals. (If Congress did not act by then the land withdrawn under Section 17(d)(2) of the Act would return to the (d)(l) category.) Markup on the several (d)(2) bills before Congress did not take place until early in 1978 at which time the House Subcommittee on General Oversight and Alaska Lands began markup of H.R. 39, the Alaska National Interest Lands Conservation Act. The Senate Committee on Energy and Natural Resources began markup in mid July. 5 During the year, all interested parties, including the Federal-State Land Use Planning Commission, continued to conduct studies into the various issues attending the pending legislation. Congressional actions on the legislation resulted in passage of H.R. 39 by the House on May 18, 1978, and a report by the Senate Committee on Energy and Natural Resources on October 9th amending the House passed H.R. 39 in the form of a substitute. Congress adjourned before further action could be completed and an act was not passed in 1978. During congressional action.on the legislation, further boundary adjustments were made on some units excluding some (d)(2) lands and incorporating certain (d)(l) lands. During this process, a major issue of concern was the overlapping of several national interest land units with land that the State of Alaska had indicated an interest in, under its Alaska Statehood Act entitlement (Approximately 8 million acres). When the Alaska national interest lands le&islation failed to pass Congress, there was concern that the expiration of the (d)(2) classification on December 18, 1978 might, despite overlaying (d)(l) withdrawals, allow appropriation by the State and private interests of the lands in question. There was also concern that not all of the (d) (l) classified lands included in units precluded entry and location of metalliferous (mining) claims under the mining law of 1872. Expressing these concerns, some parties urged invocation of the Antiquities Act or withdrawal authorities under the Federal Land Policy and Management Act to withhold the lands in question from appro priation and use. The Department of the Interior in late 1978 issued a Draft Environmental Impact Supplement to the 1974~75 Environmental Impact Studies prepared for each of the (d) (2) areas.. This supplement addressed the impact of taking administrative action to withdraw the Alaska national interest lands units, and used composite boundaries from Administration, House, and Senate proposals in order to provide sufficient ongoing prptection. An analysis of the draft statement and comments were prepared by the Land Use Planning Commission. On November 16, 1978, the Secretary of the Interior withdrew approximately 105 million acres of national interest lands Under the emergency with drawal provisions of the Federal Land Policy and Management Act. On December 1, the Secretary of Agriculture requested segregation of nearly 11 million acres of the Tongass and Chugach National Forests for possible withdrawal under the Act. These lands were segregated primarily to preserve wilderness areas for congressional consideration. Also on December 1, 1978, the President of the United States proclaimed, under provisions of the Antiquities Act, establishment of 17 national monuments of approximately 56 million acres in Alaska. This was to recognize the values of the areas and to help safeguard them for pending future congressional action. Thirteen of the monuments are to be adminis tered by the National Park Service, two by the Fish and Wildlife Service, and two by the Forest Service. These areas constitute abou:t halfof the acreage withdrawn under the emergency authority. 6 Proposed legislation on these issues has been introduced in the 96th Congress. Assistance to Congress and Others During the year, the Commission Co-Chairmen and staff have been requested by numerous Federal, State, and private organizations or individuals to provide general and detailed information on the various (d)(2) proposals and issues. Although the Commission previously, under congressional manadate of the Settlement Act, developed its own detailed recommendations, it also has maintained an evolving objective outlook on this complex subject, and as such, has been relied upon to provide analyses and comments on the various (d)(2) issues. In February, the Commission assisted the staff of the Senate Committee on Energy and Natural Resources during a week of workshops which were held in Anchorage, Alaska, to obtain the latest resource information for the State and the (d)(2) lands. From January to April, staff members worked with the staff and members of House committees and subcommittees as they reviewed and marked up the (d)(2) legislation, and from July into October with the Senate committee. During the year, the Co-Chairmen provided testimony in Washington, D.C. on aspects of the (d)(2) issue at hearings held in April by the House Subcommittee on Fisheries, and Wildlife Conservation and the Environment, and in June by the Senate Committee on Energy and Natural Resources. At the request of the Senate Committee on Energy and Natural Resources, Commission staff prepared several (d)(2) issue papers to assist Committee staff and members in developing an Alaska National Interest Lands Conser vation bill. A major issue in the debate concerning national interest (d)(2) lands has been the relationship among access, transportation, and future development of Alaska's natural resources. Commission study #32, "Trans~ portation and Development of Alaska Natural Resources", by staff members Tuck, Engelman, Kreitner, and Dooley explores the role of transportation in resource development, future transport needs as a result of such development, and the related issue of access across (d)(2) lands for resource development purposes. Adequate transportation is a necessary condition for resource development, however, it is not a sufficient condition nor does it guarantee successful production. The analysis of total costs of production and the nature of local economic conditions in Alaska preclude large-scale development of most of Alaska's resources within the near future. Transportation costs constitute a relatively small portion of overall production costs and are usually amortized over a long period of time or associated with projects showing high profit margins. The transportation factor is not the major impediment to resource development in Alaska. In assessing future prospects for resource development, the study reviews the rela tionship between transportation and total costs of production for several renewable and energy resource industries. 7 The Commission bas conducted, prepared, and submitted over 33 economic and resource studies to Congress and others to provide factual background information on which to base policy management decisions. During 1978 the Commission completed and disseminated further studies on (d)(2) related issues including resource values, ·economic assessments, and wilderness (see Appendix A). · Maps on the distribution of hunting and sport hunt guiding activities were prepared by the Commission and were made available t;.o Congress and others. The Commission's large scale maps of each (d)(2) area showing alternative legislative proposals, and current land status, were also made'available for congressional use. The Land Use Planning Commission continues to analyze the issues associated with these actions and plans to provide information and assistance to the extent of its ability during any congressional action in 1979 on Alaska national interest lands legislation. lssues of particular concern already identified for attention include; further consideration of overlapping State land interests, allowance of sport hunting in certain areas or portions of areas, and revised categorization of units. Commission Co-Chairmen and staff were also able to provide information in the development of the National Heritage Program with.respect to the landscapes and wildlands categories. Wilderness Workshop Wilderness has evolved into a major issue in Alaska, as the State contains some of the finest and most spacious wilderness resource areas remaining in the country. Most of the (d)(2) areas and existing national reserves possess primitive lands with high quality attributes. A particular focal point of wilderness concern is the two national forests in Alaska, which are the largest of the National Forests, but as yet have no desig nated wilderness. Over the years the Commission has developed a policy framework for the developement of a wilderness system in Alaska, however, many questions remained with regard to the future. To help provide further insights to the Commission and others, a wilderness workshop sponsored by the Commission was conducted in Anchorage in February. Persons in attendance were from a broad range of interest groups affected by wilderness designa tions. The majority of presentations and discussions at the workshop focused upon management provisions and the Alaska situation, where subsistence gathering; vast distances; shelter cabins; existing use of motorized vehicles for access; and proposed aquaculture or fishery enhancement projects on lands of wilderness interest, brought new or more intensive dimensions to wilderness management than is commonly found in the other 49 states. The information from this workshop, which is being published, was helpful in the preparation of a "wilderness issue". paper for the Senate Committee on Energy and Natural Resources. 8 Commission Recommendations In its 1976 and 1977 Federal land policy recommendations, the Commission recommended some specific Wilderness·study areas and generally recommended that classification of lands under the 1964 Wilderness Act occur after the designation of management units. The Commission directed a staff study of the many areas in Alaska remaining in their natural state and having unique or outstanding values as wilderness. Without changing its basic positi'<>n or recommending any specific units for Wilderness designa• tion, the Commission, in 1978, made the following recommendations: 1. Strong consideration should be given by the State and Federal governments to the Alaska wilderness resource in the ongoing planning and programs of land and resource use. 2. The prime wilderness candidate areas identified by the Commission can serve as a framework for planning and developing an Alaska wilderness system, supplemented as appropriate by the findings of Federal, State, local agencies, and other interested organizations and persons. 3. Wilderness manag~ent policies for Alaska wildernes-s areas as reported by the Senate Committee on Energy and Natural Resources (10-9-78) should be adopted. Within this framework it is recognized that some portions of the wilderness areas should offer reasonable guarantees against mechanized intrusion on the wilderness experience. 4 .. Maintenance of wilderness values on existing or prospective private lands within prime wilderness candidate areas should be encouraged, to allow consideration of land exchanges, placement in a land bank, or planning for forms of compatible management. 9 S T A T E LAND P 0 L l C Y 10 Introduction The Commission's responsibilities regarding State lands are equal to those pertaining to Federal lands. Section 17 of the Alaska Native Claims Settlement Act and Section 41.40 of the Alaska Statutes direct the Commission to make recommendations about the disposal, retention, management, and use of State lands. The Commission is to provide advice and ,rec~mmendations regarding State land selections, to involve the State in cooperative planning processes, and to facilitate relationships between Federal, State and private landowners. The Commission is specific ally directed to make recommendations about programs and budgets affecting State lands and to propose additions and changes to State law as deemed necessary to improve State land use planning. Land Policy Act Early in 1978 the Commission completed a series of studies and recom mendations on policy for retention or disposal of State lands. During the 1~78 legislative session these recommendations were presented to members of the State Administration and the Legislature by means of a detailed presentation, a brochure summarizing recommendations, and briefing sessions with members of the Governor's Cabinet and the House and Senate Resource Committees. In cooperation with the Administration a land policy bill incorporating Commission recommendations was developed and introduced in the House by the Administration and in the Senate by the Chairman of the Senate Resources Committee. Commission staff and members testified a number of times as the bill progressed through the Legislature. The Land Policy Act was enacted in June, 1978 in a form that is very close to the original bill incorporating Commission recom mendations. This law establishes a foundation of policy guidelines for future State land decisions. This new law sets forth: 1. A policy which favors a balanced combination of lands for both public and private purposes, emphasizing the retention of some public lands near communities so that natural areas are easily reached from all settled parts of the State; 2. A policy to protect the interest of future generations and give them an opportunity to decide about land use by reserving a supply of public land of the various available types and locations; 3. Direction to the Administration to periodically and systematically inventory State lands, to project future uses, to assess the supply of lands available from private sources, and·to determine land classifications through a land use planning process; 4. A statement that the primary public interest in conveying State land rights to private parties is to make land available for direct use and construction in locations suitable for the land use intended; 11 5. A statemeot that the primary public i~te~ests in retaining State lands in public ownership are; a. to make them available for hunting, fishing, natural area recreation, and other types of land use and resource development which generally require public rather then private ownership, b. to facilitate mining and mineral leasing, c. to protect areas of c.ritical wildlife habitat and special scenic, environmental, or recreational value, d. to restrict development in hazardous locations, e. to guide the location of settlement and development to minimize public cost and maximize social and .economic benefits; 6. Direction to the Administration to employ a varied set of methods of conveying land rights to private parties and to design disposal programs to meet the differing needs of land users; 7. D.irection to the Administration that a supply of lands be made available for private acquisition on a continuing basis and that the Legislature determine the amount and location of this supply as part of annual budget approval; 8. A policy which recognizes that many private users of State lands must have reliable access and that the State should arrange for the development of surface access as part of its land disposal program with the direct costs of access development being borne by the recipient of the land; 9. A policy of reserving easements and rights-of-way acr.oss and within disposal areas as necessary to reach public waters and public J~nd private lands beyond; · · 10. A policy which favors the disposal of State land at market value, except where justified by a clear public interest; and ll. A policy of avoiding land disposal for residential purposes in areas which do not have an existing or potential economic base. Recreational Lands Study The Commission s'taff completed a study and report on outdoor recreation in Alaska and developed a set of recQmmendations to the State and Federal government regarding policy and planning for public recreation activities. Research for the study included a series of interviews with persons active in the recreation field, including air charter operators, sports store man~~ers, government officials, guides, and numerous other 12 individuals di~e~~ly involved in providing for public 'recreational activity. The interviews were conducted for three sample regions; the Kenai Peninsula, the Juneau area, and the Fairbanks area. From these interviews the staff completed a set of maps outlining the recreational use patterns for each area and a report describing the pattern of activity. · The recreational responsibilities and programs of Federal, State and Municipal entities were also analyzed by the .staff. The resulting report describes the patterns and trends in recreation activity, and the impact of recreation on various types of land ownerships. The role of the Federal, State and Municipal governments are outlined. Of these three entities, the State is the primary provider of areas for active recreation near communities and along traveled ways. The va.rious State agencies with responsibilities for recreational land management were studied in detail and a· series of suggestions were made on how the State can improve coordination between separate State agencies which affect recreational opportunities. The final chapter of the report describes a system for coordinating Federal, State and Municipal recreational planning on a regional basis and suggests an institutional structure to accomplish this objective. From the study the Commission developed the following set of recommendations on recreational policy. Recommendation to State Government: By statute, the State Legislature should establish the following policy. 1. Public Value of Recreation: State policy should recognize that a variety of recreational opportunities are important to the health and well-being of all Alaskans, and, on this basis, the State should actively encourage recreation as an important use of public lands. 2. Need for Accessible Recreation Lands: State policy should recognize that many Alaskans cannot afford long and costly travel to recreation areas. To insure recreational opportunities for all, State recreation lands should include lands that are convenient and acCe$sible to populated areas. The amount Qf such land should be determined in relation to future, as well.as existing needs for public recreation. 3. Assertion of Recreation Values in State Land Decisions: State policy should recognize that accessible and waterfront lands are valuable for public recreation, as well as for private acquisition. Public recreational values should be actively asserted in the process of deciding about State land selection, classification, management, and disposal. 4. State Park System Categories: State policy should recognize that, within the State Park System, different types of areas have different purposes an'd serve different needs. The Legislature should adopt a 13 statement of intent for various elements of the State Park System, including a. designation for water-based recreation areas. 5. Recreation Values in Other State Lands: State policy should recognize that many State lands outside the State Park System combine recreational values with other public resources. Such lands should be considered for dedication to public use under the State's new Public Reserve System which allows management for a variety of compatible uses. 6. Consideration of Nonrecreational Uses: ·. State recreation policy should recognize that decisions about recreation lands affect other types of land use. Recreation planners should be directed to evaluate their decisions in relation to the public interest in other uses of the land, and to .seek participation by municipalities and other governmental agencies who have an interest in nonrecrea tional, as well as recreational land uses. 7. Encouraging Local Recreation: State policy should encourage community recreation at a local governmental level. The State should support strong technical and financial assistance to munici palities for establishment of recreation are~s and programs. Such assistance should reflect local goals and requirements. Special emphasis should be placed on assisting smaller municipalities with limited resources and municipalities which are destinations for recreationists from outside the local area. 8. Interagency Liaison: State policy should recognize that there are a number of State agencies besides the Division of Parks that influence public recreational opportunities. The Division of Lands, the Department of Transportation and Public Facilities, and the Department of Fish and Game each have a determinative influence on the supply and availability of public recreational opportunities. The recreation planning capability of State agencies outside the Division of Parks should be strengthened, and systems for interdepart mental liaison on matters having to do with State lands and resources should be developed and formalized. 9. Statewide and Regional Planning and Coordination: State policy should recognize that the State has the primary responsibility for statewide and regional recreational planning and for coordination of the many providers of public recreational opportunities. To strengthen this aspect of the State's recreation role, the Alaska Park and Recreation Council should be established as a statutory entity of State government with funding and responsibility to obtain public participation in recreation planning; to coordinate Federal, State, local, and private recreation providers; and to d~velop regional recreation plans which can serve as a basis for coordination. The Alaska Land Manager's Coo:gerative Task Force should also be called on to assist in the coordina·tion of recreation projects and.programs at a statewide level. 14 Ill A Recommendation to Federal Agencies: Federal recreation managers and ,~ funding agencies should recognize that the State has the responsibility for recreation planning and coordination on a statewide basis and should partici~ate actively in the development and implementation of State sponsored recreation plans. The staff report on outdoor recreation, together with Commission recom mendations are being summarized in an illustrated brochure. During late 1978 and early 1979 the Commission plans to present its recommendations on land policy to the State Administration and members of the Legislature. Staff will also work with the Administration and legislators in the development of revisions of the State's park and recreation statute, A.S. 4L20. 15 I M P L E M E N T A T I 0 N OF THE A L A S K A N A T I V E C L A I M S SETTLEMENT ACT I I I I 16 Introduction The year 1978 marked many important policy and procedural changes in the administrative implementation of the Settlement Act. In addition, representatives of the Commission and other parties developed and agreed upon over 25 legislative amendments to the Act. These amendments were suggested for inclusion in the (d)(2) legislation which was then pending. Most of the work just described occurred initially within the context of the so-called Settlement Act Working Group. This group, consisting of representatives of the Commission, Alaska Federation of Natives, State of Alaska, and the Department of the Interior, was originally established on an informal basis by the Assistant Secretary for Land and Water Resources of the Interior Department to assist the Department in considering a number of administrative changes in the implementation of the Settlement Act. In view of several initial successes in this area, the working group became a vehicle for discussion, evaluation, and recommendation of other changes in implementation. On January 12, 1978, following a continuation of the activities described in last year's annual report, the Commission Co-Chairmen submitted final written comments to the Secretary of the Interior concerning issue papers prepared by the Assistant Secretary for Land. and Water Resources in connection with the DepartmeQ.t's re-examinl:ltion of Settlement Act implementation. After providing the Secretary with background information concerning the Commission's involvement with ANCSA since mid-1972 (see previous annual reports), the Co-Chairmen stated severa+ cardinal principles which have guided the Commission's work in this area. These principles may be summarized briefly as follows. First, the Settlement Act is a piece of Indian legislation--and not a public land law. Hence, where there are ambiguities, the Act should be interpreted liberally in favor of its Native beneficiaries. Second, the pace of land transfers in Native corporations has been much too slow. While there have been many reasons for this delay, significant improvements could be made through the reformation of those policies, procedures, and administrative structures which were then in existence. Third, such a revision of policy should be accomplished through a total commitment by the Department to implementing the Settlement Act expeditiously and in accordance with other ANCSA objectives, as stated in Section 2 thereof. Fourth, since prior easement policies and procedures constituted a significant obstacle to conveyance, special; attention should be paid to these issues. In this regard, the Co-Chairmen indicated their view that many of the most difficult problems could be resolved if Section 17(b) of the Settlement Act, relating to the identification and reservation of public easements, could be limited to those easements needed for land and/or water access across Native lands to adjoining public lands and resources. Preferring not to comment in detail on the approximately 45 issues and subissues discussed in the Interior Department's issue papers, the Co Chairmen stated t.b.at with the exception of certain of his recommendations 17 concerning the implementation of Section 14(h) of the Settlement Act, they strongly supported Assistant Secretary Martin's proposed solutions, as articulated in the various option papers. Commenting specifically on the difficult issue of reserving public easements across Native lands, the Co-Chairmen indicated their view that the Assistant Secretary's proposed recommendations reflected a careful effort to resolve existing problems and to strike a proper balance between conflicting concerns. With respect to the critical subissue of what constitutes a "major waterway" for easement purposes, the Co-Chairmen suggested that this matter could best be resolved by ascertaining the significance of a particular waterway or water body as a means of providing public access across Native lands. In elaborating on and clarifying comments submitted to the Department in the latter part of 1977, the Co-Chairmen also made recommendations respecting the examination of Federal installations pursuant to Section 3(e) of the Settlement Act, the identification of navigable waters, the administrative process for reviewing decisions of the Bureau of Land Management, the conveyance process, the compactness of land selections, Native townsites, and other matters related to ANCSA implementation. Because of differences between the Co-Chairmen's recommendations and proposed Departmental policy, much of the January 12th letter was devoted to a discussion of administrative policies and procedures for the imple mentation of Section 14(h) of the Settlement Act. The subissues which received analysis included the relationship between 14(h) selections and (d)(2) lands, Native group eligibility, criteria for cemetery and historic sites, and deadlines for selections under Section 14(h). On March 3, 1978, the Secretary of the Interior announced his decisions concerning the various issue papers commented upon earlier by the Commis sion and other members of the Settlement Act Working Group. Depending on the issue involved, the Secretary proposed future legislative action or administrative action ranging from the revision of existing Secretarial orders and instructional memoranda to the promulgation of new regulations. With the exception of a few subissues related to the implementation of Section 14(h), the Commission was extremely pleased with the policies and procedures set forth in the March 3rd announcement. . I Easement Policy The.first major task confronting the Department of the Interior and the ANCSA Working Group in the aftermath of the Secretary's March 3rd decisions was the development of new regulations respecting the reservation of public easements across Native lands. In a series of meetings held in Anchorage and Washington, D.C., during the Spring of 1978, the ANCSA Working Group drafted and reviewed some eight revisions of the then existing regulations. This effort culminated in late May with the Interior Department's publication of proposed rulemaking. Commenting on the proposed rule~, the Commission Co-Chairmen, with a few exceptions, expressed their strong support for the policies and procedures set out in the BLM proposal. The Co-Chairmen went on to say that the I 18 proposed rules appeared to strike a good balance between the public's need for access, as expressed in Section 17(b) of the Settlement Act, and the congressional objectives in enacting the Act. The chief problem area identified by the Co-Chairmen concerned the definition of "major waterway" provided in the regulations. While recognizing that the definition was consistent with one of the Secretary's March 3rd decisions, the Co-Chairmen concluded that the definition could not be implemented satisfactorily. In lieu of the three factor test then proposed, the Co Chairmen suggested a simple, one factor criterion which focused on the capacity of a particular waterway or water body to provide access across Native lands to adjoining public lands or resources. On November 27, 1978, final regulations implementing Section 17(b) became effective. The Interior Department's publication of final rule making was the culmination of several more months of review and drafting. This effort involved review by the Commission and others of additional drafts, with particular emphasis on the definition of "major waterway." The Commission was strongly supportive of the policies aQ.d procedures contained in the final regulations. Throughout the regulations, there is a strong emphasis on necessary public access across Native lands rather than use on such lands, and the final definition of major waterway reflects this orientation through incorporation of a single factor, access-related test. Early experience under the new regulations has been most encouraging. In most cases, application of the new guidelines has led to the identifi cation of only those easements deemed reasonably necessary to insure public access. Not only have the new regulations brought about greater equity, the guidelines have also been more efficient and less time consuming to administer. Recently~ the Commission has been working with the Bureau of Land Management and other parties to develop a process for conforming existing easement reservations to the new policy. The objective of this effort is to bring about conformance within the shortest time possible, thus, minimizing any harmful effects of the old easement policy. Amendments to the Act The next major task undertaken by members of the ANCSA Working Group was the development of legislation where needed to improve implementation of the Act or to bring about other needed changes. One set of amendments reflected those Secretarial decisions requiring implementing legislation. These amendments included such items as a resolution of the underselection problem, changes in certain selection requirements, the conveyance of partial estates, and the close out of the Al~ska townsite programs. Another set of amendments was proposed by the Alaska Federation of Natives, and was introduced in the Senate as S. 3016. These amendments dealt with such matters as stock alienation, Native allotments, the reconveyance responsibilities of village corporations, taxation of Native corporations, selection of government surplus lands, and the selection rights of particular Native corporations. In a series of discussions and meetings among ANCSA Working Group members, these and other amendments were reviewed and refined. 19 At the Commission, the review effort culminated in the Co-Chairmen's correspondence of July 7, 1978, to Senator Henry M. Jackson, Chairman of the Senate Committee on Energy and Natural Resources. In their letter, the Co-Chairmen commented specifically on each amendment and suggested those conceptual and ianguage changes which were deemed necessary. Because of its importance to the emerging land ownership pattern in Alaska and its relationship to ANCSA implementation, the Co-Chairmen devoted a significant part of their letter to proposed legislation relating to Native allotments. In addition, attention was focused on village reconveyance responsibilities under Section 14(c) of the Settle ment Act, the taxation of Native lands under Section 2l(d), and the land selection rights of various Native corporations, particularly those corporations in the Chugach region. Given the large amount of analysis and refinement which had previously been involved, the Co-Chairmen expressed strong support for each of the ANCSA amendments proposed by the Department of the Interior. Many ot:_her amendments, some with suggested changes, were also supported. Comments submitted by the Commission and others led eventually to the development of a package of proposed amendments which received the support of ANCSA ~orking Group members and many other parties concerned with Settlement Act implementation. This package later became Title XIV of the Senate (d)(2) bill. Land Exchanges Concurrently with the review process just described, the ANCSA Working Group also considered a number of amendments proposed by Native corpora tions to effect land exchanges or to consummate selection rights under Section 14(h)(8) or other provisions of the Settlement Act. Because of, its long standing concern, and at the request of Chugach Natives, Inc., the Commission staff devoted particular attention to land selection problems affecting Chugach Natives, Inc. and its constituent villages. This effort involved a series of meetings with various government agencies and other interested parties and the analysis of successive draft amend ments dealing with selection rights under three subsections of the Settlement Act. Other amendments considered by the ANCSA Working Group included land exchanges or selections involving the Doyon, Koniag, Bering Straits, NANA, Cook Inlet, and the Thirteenth Regional Corporations. With the exception of certain Cook Inlet and Thirteenth Regional Corpora tion amendments which it opposed and certain Chugach amendments which it supported, time constraints precluded the Commission from taking a formal position on these so-called land impact amendments. However, the Commission authorized its legal and resource staff to provide technical assistance to the ANCSA Working Group and the Senate Energy Committee in their consideration of this legislation. With respect to amendments affecting the Chugach Regional Corporation and its villages, the Commission was able to support legislation resolving village problems and effecting a partial resolution of the Region's selection rights. However, legislation proposed by Chugach to authorize 20 a complicated three way land exchange was never satisfactorily finalized, and a study provision was inserted in the Senate (d)(2) bill instead. Land Conveyances At the same time that the ANCSA Working Group was considering the amend ments just discussed, it was also reviewing and refining the title of H.R. 39 which dealt with expedited conveyance to Native corporations and the State of Alaska. The principal focus was on the Native conveyance provisions, and an effort was made to build upon the version of the conveyance title intially enacted by the House of Representatives. At the Commission, many hours of meetings and discussions with other members of the ANCSA Working Group culminated with the Co-Chairmen's correspondence to Senator Jackson in late June 1978. In their letter, the Co-Chairmen · expressed strong support for legislative conveyance of lands to the State and Natives, as this concept was generally implemented in Title VIII of the Senate (d)(2) bill. The Co-Chairmen pointed to certain important strengths.of legislation conveyancing, including a change in certain governmental attitudes and presumptions once title has passed, the opportunity to obtain financing for certain necessary projects prior to completion of the adjudication process, and the resolution of a number o.f other problems associated with the Settlement Act and the Alaska Statehood Act. The Co-Chairmen also commented on a number of specific issues raised by Title VIII, such as protection of valid existing rights, the prioritization of overselections, the identification of public easements, extension of the tax moratorium on Native lands, and the Alaska Native Land Bank. Because the Commission perceived several problems in the land bank provision, the Co-Chairmen directed the staff to work with representatives of the State of Alaska and the Alaska Federation of Natives to find a mutually agreeable solution. This effort led to several meetings in Anchorage and Washington, D.C., during which successive drafts of a land bank provision were considered. Ultimately, the parties agreed upon draft language which was subsequently included in the Senate (d)(2) bill. Navigable Waters Another difficult issue which received the attention of the ANCSA Working Group and the Commission during 1978 concerned the problem of identifying inland navigable waters. Under the Submerged Lands Act and the Alaska Statehood Act, the State of Alaska, on the date of Statehood, received title to the beds beneath most inland navigable waters. In the western states, determinations respecting navigability have been spread out over many years and have often involved only the Federal government and the appropriate state. In Alaska, implementation of the Settlement Act has created an immediate need to resolve navigable waters questions, because title and acreage accountability issues are both dependent on such determinations. For this reason, in both 1977 and 1978, the.ANCSA Working Group considered a number of possible administrative and legisla tive solutions to this problem. 21 At the request of the Department of the Interior's Assistant Secretary for Land and .Water Resources, the Commission prepared and submitted a study ~oncerning the amount of non-navigable water acreage associated with Native village and regional selections. Utilizing modern computer techn,o~ogy and methodology agreed upon by the ANCSA Workin& Group, the study determined that approximately 1.5 million acres were involved. On the basis of this study, representatives of the Alaska Federation of Natives, State of Alaska, and the Commis$ion worked on legislation which would change the criteria for determining non-navigable submerged land acreage accountable against Native entitlements under the' Settlement Act. By so doing, the parties hoped to minimize disputes and to avoid a large number of administrative and judicial appeals. The proposed amend,ment, which underwent several revisions in the Fall of 1978, will be ptoposed to the House and Senate during the 96th Congress. Administrative Actions In the Fall of 1978, the Department of the Interior, with the help of other members of the Settlement Act Working Group, and other interested, parties, began the process of implementing several Setretarial decisions requiring additional administrative action. Such efforts involved consideration and refinement of draft regulations, Secretarial o.rders, and instructional memoranda. Thus, the Commission staff worked with Interior Department personnel in the review of new easement procedures and draft reg'ulations relating to compactness and contiguity, Section 14(h), Alaska townsites, and Native selection requirements, Because of its long standing concern. about the implementation of Section 3(e) of the Settlement Act, relating to the definition of "public lands" and the concomitant review of existing Federal installations, the Commission staff devoted a great deal of time to the consideration of draft regula tions and instructional memoranda relating to the implementation of this subsection: ·In a·ddition, the Co-Chairmen and staff provided advice from time to time with respect to the establishment by the State Office of the Bureau of Land Management of a special division to convey lands under the Settlement Act. With the important exceptions of the BLM's reorganization and the change in easement policies and procedures, most of the other Secretarial decisions requiring administrative action had not been fully implemented by the end of 1978. However, on the basis of the work which was accomplished, the Commission believes that the regula- 'tions and other steps necessary to accomplish this objective can be completed early in 1978. Railroad Lands For the past year and a half, the Commission has been involved at the request of the Bureau of Land Management and the Village of Eklutna in an examination pursuant to. Section 3(e) of the Settlement Act of certain Alaska Railroad holdings selected under the Act by the Village of Eklutna. Under Section 3(e), the Secretary of the Interior is required to determine the smallest practicable tract actually used by Federal agencies in 1971 to carry out their statutory responsibilities. Any excess lands must be 22 made available to the Native corporation which properly selected them. Using Eklutna's selections as a prototype for implementing Section 3(e), the Commission engaged in a comprehensive analysis of the relevant facts and law. This analysis included extensive briefing by the Alaska Railroad and the Eklutna Corporation. In addition, the Commission conducted extensive field investigations and a review of historical and other I relevant data. On August 9, 1978, these efforts culminated with the Co Chairmen's submittal to the BLM of formal findings and recommendations resp~cting a number of Railroad tracts selected by Eklutna. This corre 'I spondence was followed by a legal analysis prepared by the Commission counsel. On the basis of this work, the Commission found that between 200 and 1500 acres were not actually used by the Railroad in 1971, and accordingly, should be made available to Eklutna pursuant to the require I ments of Section 3(e). Future Questions I In 1979, the Commission expects to continue its participation in the ANCSA Working Group. As in the past, this work will involve consideration: and recommendation of administrative and legislative action deemed I necessary to improve implementation of the Settlement Act. Initial attention will focus again on (d)(2) legislation as a vehicle for enact ment of amendments developed in 1978. In addition, the Commission will I continue to provide technical and other assistance directly to the Interior Department, Native corporations, and other parties which request it. Besides fulfilling its statutory responsibility relating to the I identification of public easements, such activities may include help to villages in the implementation of Section 14(c) of the Settlement Act - and in the creation of land recordation systems. I As an adjunct of its final report, the Commission will include the results of a comprehensive interdisciplinary evaluation of Settlement Act implementation from 1971 to early 1979. Utilizing the work of staff I and outside contractors, the study will generally address the following questions: I (1) Has implementation of the Settlement Act satisfied the objectives and aspirations of village and urban Natives and of Native leaders who participated in the formulation of the Settlement Act? I (2) Has implementation of the Settlement Act satisfied the objectives of Congress, as stated in Section 2 (Declaration of Policy) of the Act? I (3) Are there changes in the corporate form mandated by the Settlement Act, which changes would facilitate achievement of the objectives I and aspirations referred to in questions one and two? (4) What are the future prospects for implementation of the Settlement Act? I I 23 I I (5) What institutional or other changes, if any, should be made to improve Settlement Act implementation? To accomplish this, the study will include chapters relating to the history of ANCSA and its implementation, an examination of ANCSA admini• stration, Native corporate structures and decision-making processes, sociological impacts, economic impacts., laQ.d use and environmental impacts, corporate-governmental interrelationships, and Native corporate perceptions. Evidencing the Commission'· s desire that the study not be solely retrospective, the final chapter will contain Commission recom mendations which are deemed necessary to improve future implementation of the Settlement Act and related Federal and State legislation. 24 I Ill C 0 0 P E R A T I V E PLANNING I ' 25 Ecological Reserves • Outdoor laboratories to provide base-line control information and areas for scientific research are important in understanding environmental conditions and change. Some 200 areas on Federal, State, and private lands have been nominated for inclusion in a system of ecological reserves in Alaska. In order to evaluate, establish, and monitor a system of ecological reserves, t~e Commission and the directors of those organizations who administer or own significant land areas within Alaska formed an Ecological Reserve Council. The Council, among other things, is defining regional research needs and is relating the proposed Ecological Reserve System to those needs. The Commission Co-Chairmen served as interim co-chairmen of the Ecological Reserve Council until the annual meeting held May 2, 1978 in Anchorage. At that time, direction of the Council was assumed by the State and Federal agency members. Dave Hickock, of the University of Alaska, was elected Chairman and William Gabriel, of the Bureau of Land Management, was elected Vice-Chairman. Dr. Glenn Juday's position as Management Coordinator, was funded by cooperating Federal and State agencies under cooperative agreements set up by the Commission and Council. The Council. prepared a five year action plan which consists of these tasks: l. Assembling and training interagency Ecological Reserve teams; 2. Assembling a guide book of established units; 3. Developing a document listing the type needs of the ultimate Ecological Reserve System for Alaska; 4. Establishing Ecological Reserve units; 5. Establishing research Coordinator position for the Council; and 6. Establishing 100 percent funding of Council activities by all members of the Council. Council members are: The University of Alaska; State of Alaska Departments of - Fish and Game, Natural Resources and Environmental Conservation; United States Department of - Fish and Wildlife Service, Park Service, Forest Service, Bureau of Land Management, National Marine Fisheries Service, Naval Arctic Research Laboratory and Pacific Northwest Forest and Range Experiment Station; The Alaska Federation of Natives; and the Joint Federal/State Land Use Planning Commission. 26 : ') 1. ( Northern Alaska Study Program In 1978 the Commission continued its Arctic Alaska policy study which is concerned with developing appropriate land use policy for this sensitive area of Alaska. The study considers the physical and biological makeup of the zone, the people of the Arctic and their desires and needs, and the attributes of the area that focus attention on preservation of wildlife, habitat and wilderness, or exploitation and development of commqdity resources. Much of the Arctic zone will likely remain in Federal ownership but, developed Federal policy must interrelate with State and Native lands of the Arctic as well. The discovery of oil and gas at Prudhoe Bay in 1968, the Native Claims Settlement Act of 1971, and the 1976 winter energy shortages throughout the Midwestern and Eastern United State have resulted in a significant increase in oil and gas exploration activity in northern Alaska. As a result of this activity the Commission prepared Study #34, "Northern Alaska Hydrocarbon Resources", by Jerry Kreitner of the Commission staff, to analyze exploration and development criteria, exploration trends, economic factors, and various oil and gas development scenarios for Alaska. The report concluded that the large number of essentially uncoordinated land use policies pertaining to the Arctic clearly indicate that future development in northern Alaska must be based on a joint Federal, State, and local government policy. Wildlife Management The Commission in its deliberation and recommendations has recognized that the State of Alaska should continue to manage the State's resident and non-endangered wildlife species. The Alaska Department of Fish and Game, in response to suggestions from several sources has developed several new plans which would allow regional citizen game boards the authority of making game rules for their area. The Department of Fish and Game held public meetings in several areas throughout Alaska to explore these ideas with the public. Although some support was shown for strong rule making authority at a local level, most of the suggestions \'lere directed at improving the existing system with more financial and staff support, particularly for local advisory boards. Each plan examined provided for total closure of harvest if animal populations were threatened. The Commission, in 1978, took an active role in reviewing the procedures of the State Boards of Fish and Game. The Commission staff also followed an ongoing attempt by the Department of Fish and Game to establish criteria by which a definition of subsistence users could be made when harvestable wildlife numbers diminished to the point where preference would have to be given to local users most dependent upon the resource. The Commission, while endorsing the use of local game boards, recommended 27 that the State of Alaska continue to monitor and manage the fish and wildlife resources of the State, and that they halt all consumptive uses of wildlife if they become endangered or in short supply. Cooperative Wildlife Management The Commission, in 1978, continued to explore the possibility of increasing the use of cooperative wildlife management agreements and programs in Alaska. A committee of representatives from the Land Use Planning Commission, National Park Service, U.S. Fish and Wildlife Service, Alaska Department of Fish and Game, Bureau of Land Mangement, U.S. Forest Service, and the Alaska State Board of Game, reviewed various possible agreements for the cooperative management of wildlifehabitat in Alaska. The participants are in agreement with regard to the need for a cooperative management program, however, they are also in agreement that it is nearly impossible to complete cooperative agreements at this time as the ownership and management of land in Alaska is in such a tremendous state of change. Regardless of the disposition of the national interest (d)(2) lands, there will very likely be cooperative programs carried on by scientists and administrators working with specific populations of animals such as the Porcupine caribou herd and the Kenai Peninsula moose. The U.S. Forest Service, for example, along with the U.S. Fish and Wildlife Service, Bureau of Land Management, Alaska Railroad-U.S. Department of Transportation, and the Alaska Department of Fish and Game, under the authority of the Sikes Act as amended, have entered into a cooperative habitat management plan for wildlife habitat protection and improvement at the Potter Flats Resource Area south of Anchorage. Wildlife Inventory In 1976 the Commission contracted with the Alaska Department of Fish and Game t,o evaluate and.inventory the fish and game resources of the State. The wildlife inventory maps and 3 volume text, prepared by the Alaska Department of Fish and Game, has been placed in the Department o.f Interior Resource Library (Anchorage) for public use. Several portions of the study were loaned to various agencies for use in resource planning activities, and based on this initial inventory the Department of Fish and Game has published a new and updated wildlife inventory, a portion ·of which was funded by a Commission contract. Alaska Resource Information System (ARIS) The Commission recognized in the early stage of its development that Federal and State agencies need a common data base of resource information to effectively administer management programs directed to land conservation and development. Data needs range from water resource inventory, flood control, and waste-water treatment to the need for comprehensive land 28 use inventories of existing and changing activities on public and private land. Federal and State agencies also need data to assess the environmental impact of the development of energy resources, to manage wildlife resources and minimize man-wildlife ecosystem conflicts, to make national summaries of land use patterns and changes for national policy decisions, and to prepare environmental impact statements and1assess future impacts on environmental quality. The size of Alaska comprises a land area approximately 1/5 the size of the contiguous United States with 47,000 miles of coastline; therefore, ' much of the data that is needed for land management planning can be most efficiently obtained from aerial photographs. Federal and State agencies responsible for the management of natural resources in the State were invited by the Federal-State Land Use Planning Commission in early 1978, to meet and explore the possibility of coordinating an Alaska high altitude photography program. As a result of these meetings an agreement was reached by the agencies to develop a cooperative program to systematically photograph the entire State of Alaska. As a part of this effort the Commission established an inter- governmental committee to evaluate agency requirements, prepare specifica tions and to implement a statewide High Altitude Aerial Photography program. At the invitation of this committee, the National Aeronautics and Space Administration (NASA) agreed to provide high altitude photo coverage of the State on a reimbursable basis within the limits of their existing manpower, aircraft, and support equipment. The inter-governmental committee evaluates each year's photographic coverage and, in coordination with NASA, plans the next season's coverage. This coordinated system assures that the photography flown each year is done as efficiently as possible, with a minimum of flight time, and that the overall objectives of covering the State in a uniform, timely manner are met. Agencies participating in the program are: Bureau of Land Management; U.S. Forest Service; National Park Service; U.S. Soil Conservation Service; U.S. Fish and Wildlife Service; U.S. Geological Survey; Army Corps of Engineers; U.S. Department of Energy-Alaska Power Administration; Bureau of Mines; the Bureau of Indian Affairs; the State of Alaska Department of Natural Resources; University of Alaska-Geophysical Institute; and the Joint Federal~State Land Use Planning Commission. Southcentral Alaska Remote Sensing Demonstration Project In 1976 the Alaska Legislature passed the Alaska Coastal Management Act to provide a comprehensive local plan for the use of resources along the coastline. Proper use of this plan will avoid detrimental effects to the environment while allowing for future growth and use of the various natural resources. This legislation provides the opportunity for·coastal 29 ., ' communities to formulate management plans that will best represent the specific needs of the local community. To properly prepare and implement a plan the local and State planners must have a complete knowledge of the resources and uses of the area, and they must view it as a continuous natural system void of political boundaries. ~ Comprehensive management of complex natural systems and man's impact upon those systems requires reliable, well-organized information which is systematically gathered in response to both the local government's and the State's land use management concerns. The increasing awareness of the delicate and finite nature of Southcentral Alaska's land and water resources has generated a need for new and improved policies and management plans for addressing important planning and resource management issues and problems. For these reasons, the local governments, in cooperation with the Land Use Planning Commission and various State agencies, are developing a Southcentral Remote Sensing Demonstration plan to identify resource management objectives and information needs, and to cooperatively acquire the knowledge needed for the planning and management of our land and water resources. The most efficient method for obtaining this information is the use of a remote sensing technique such as high altitude photography. As a part of the Alaska Resource Information System (ARIS), the Alaska Remote Sensing Task Force (composed of Federal, State, and local government personnel) has entered into an agreement with the National Aeronautics . and Space Administration (NASA) to create and evaluate plans and alterna tives for the application of remotely sensed data in the planning and decision making processes in Southcentral Alaska. NASA has shown a great interest in establishing a cooperative effort with Alaska and the Alaska Remote Sensing Task Force. Through its Western Regional Application Program, NASA has offered the State and local governments the opportunity to evaluate the utility of the LANDSAT satellite and other remote sensing technologies in Southcentral Alaska. The primary objectives of this remote sensing demonstration project is to obtain resource information and provide training so that planners will have an understanding of the technical and organzational requirements of LANDSAT, U-2 aerial photography, and other remote sensing techniques. This will enable both the State and local governments to prepare a procedure for assessing the application and utility of remote sensing technolog~ in Southcentral Alaska. In order to meet the objectives of the program, the local governments, in cooperation with State agencies, will conduct short-term demonstration projects in each borough and municipality. Each demonstration project will involve the identification of user needs, the identification and analysis of appropriate remotely sensed data and processors, and the evaluation of the data with respect to all user requirements. Each demonstration project will provide for the practical application of current remote sensing techniques. Results of the demonstration projects 30 will be used to prepare program recommendations, review project applications, and suggest a method for implementing remote sensing techniques in future land use and resource management programs. Study of Cooperative Management Section l7(i)(l) of the Alaska Native Claims Settlement Act directs the Commission to "make recommendations to improve coordination and consulta tion between the State and Federal governments in making resource alloca tion and land use decisions." Issues of Federal-State relationship have emerged as key questions in the (d)(2) land debate. In line with its general statutory responsibility and its direct responsi bility for making recommendations on (d)(2) lands, the Commission undertook a study of cooperative institutions. Through a contract with Dr. Lidia L. Sel~regg, Professor of Regional Planning, University of Alaska, a report was prepared reviewing the various needs for coordination in ~and planning and management, and analyzing the experience of the Joint Federal-State Land Use Planning Commission. As a part of this study, the Commission sponsored a workshop on innovative concepts of cooperative land classification and management. A group of :five nationally known experts were CO!lllllissioned to study the needs and po~sibilities of cooperative management in Alaska and to conduct a ~emin~r 1, on the subject. This group included Dr. Allen Steiss, Coordinator ()f th~ \!jorkshop and,.a Professor at the Virginia Polytechnique Institute; Dr:: James Hackett, a Geologist and Profes~wr at the same institution; David Callies, a lawyer and a well known expert on the application of land use con1;:rols, now at the University of Hawaii; Dr. Anthony Catanese, Professor,at the University of.Wisconsin; and Professor Irving Hand, a nationally known planner at the University of Pennsylvania. This team analyzed the various issues and needs for coordination in land use planning and management and reviewed the range of institutions which might be designed to establish cooperative planning mechanisms. In addition to conducting the seminar, the team wrote a report summarizing their findings and recommendations on cooperative management. The Commission plans to utilize this study as the basis for a more thorough analysis of the Commission as an institution. Through a consult ant contract, as well as interviews with individual Commissioners, staff members, and members of the Commission's Advisory Committee, a final ev~luation of the Commission as an institution will be prepared. This objective analysis will look at the Commission's accomplishments and effectiveness in the fields of ANCSA implementation, State and Federal land policy, and cooperative planning; and will analyze aspects of the Commission's structure which contributed to or detracted from its effec tiveness. Findings of this report will be incorporated in the Commission's final report and should be useful in structuring future cooperative institutions. 3.L 9ompatible Federal-State Planning The Commission is in the process of preparing an assessment of regional planning in Alaska, and is developing recommendations on steps which might improve and strengthen regional planning processes in the future. As a basis for this report the Commission staff is assessing various planning efforts throughout the State and preparing a chart_which will display and compare the nature of different forms of planning. In the Commission's study, "regional planning, 11 is defined as the process of developing options, recommendations, and management programs for future land use at a regional level. In addition to the study of existing regional planning, the Commission is conducting a case study of regional planning in the Glennallen/Copper River area. The State of Alaska and Bureau of Land Management planners are working with the Commission on this analysis. The primary objective is to test planning categories at a regional level to determine whether it may be possible for Federal and Sta·te planners to use similar categories in planning for the use of land in an area of interrelated ownerships. Both the case study of compatible planning systems and the analysis of existing regional planning will serve as a basis for the development of Commission recommendations for future cooperative statewide and regional planning structures in Alaska. In its final report the Commission will set forth recommendations about institutions which would establish an ongoing foundation for cooperative planning. Particular emphasis will be placed on structures which will function at a regional level, accommo dating the great differences between regions in Alaska and facilitating participation by local people most affected by planning decisions. 32 P U B 1 I C D I A 1 0 G U E 33 '" I Ill I r 1 r'rJ Commission Meetings and Workshops February 21-22 A workshop to review the 1964 Wilderness Act and the National Wilderness Preservation System as it affects Alaska and the national interest (d)(2) lands was sponsored by the Commission in Anchorage. In attendance were individuals from the State and the Nation who are knowledgeable on the subject. February 23-24 The Commission met in Anchorage to discuss the proposed State Forest Resource Practice Act, the ANCSA review process and determination of water acreage, H.R. 39 and (d)(2). Other topics discussed and presented: State lands, Beirne initiative, State Park System, U.S. Forest Service land management and planning (Tracy, Brannon), Department of Natural Resources/State lands (Mutter). Staff presentations and reports included: Wilderness conference, Landscape study (Shaine, Gordon), Transportation study, Arctic Policy study, and Fish and Game Board management workshops. March 14 A High Altitude Photography conference was conducted by the Commission in Anchorage. Topics included program configuration options, agency participation, and a proposed cooperative agreement. A task force met to complete aerial photography contract specifications. March 29-30 A Cooperative Management workshop, sponsored by the Commission, was held in Anchorage to evaluate opportunities and methods for development of cooperative Federal, State, and local land planning, classification, and management. Five nationally-known panelists conducted the proceedings: Dr. Alan Steiss, Attorney David Callies, Dr. Anthony James Catanese, Prof. Irving Hand, and Dr. James E. Hackett. April 3-4 The Commission met in Juneau and discussed: State lands (Land Policy and other bills, parks and recreation), ANCSA implementation, (d)(2) and H.R. 39 (wilderness provisions, cooperative management, wilderness policy). Presentations to Commission: U.S. Forect Service, RARE-II and management (Nelson), and Tongass and Chugach National Forest land use plans and process (Brannon); Chugach proposed land trade (Propes); BLM inventory and planning (DeLeonardis). Staff presentations and reports: Cooperative Management conference, Transportation and Development of Alaska Natural Resources study. The Commission approved development of alternative transportation access provisions across Federal lands. 34 May 16 The Commission met in Anchorage to review and discuss the upcoming testimony before the Senate Energy and Natural Resources Committee. Other topics covered: State lands legislation; ANCSA implementation: easement criteria, Chugach land trade, amendments; and recreation on State lands. The Commission passed a motion emphasizing the wilderness characteristics of (d)(2) lands, and directed preparation of a statement of consequences if no (d)(2) legislation is passed this year. Other presentations and reports: State-BLM cooperative agreement regarding land use plans and resource inventory (DeLeonardis); State land classifi cation system (Nienheuser); State lands selection interest areas (Wickes); Landscape study; Cooperative planning and cooperative institutions (Selkregg); and Fish and Game utilization maps. September 7-8 The Commission met in Anchorage to review (d)(2) legislation status; State land (current legislation); compatible classification systems; ANCSA implementation; and Commission work program. Other presentations and reports: Tongass Forest plan (Behnert); Chugach Forest plan (Beal); Alaska Land Managers cooperative task force (Gilliland); State lands (Hanson); Calista Regional Corporation's land-related affairs (Angapak). Also, Data Systems Coordination (Alaska Resource Information System (ARIS), High Altitude Aerial Photography program, Remote Sensing Technology and Transfer task force, and Recreation study. November 30-December 1 The Commission met in Anchorage to discuss (d)(2) update; ANCSA update; Future Commission work program, including proposed study of ANCSA implemen tation and the role of the Commission; and a proposed regional land use planning study. Discussion included: (d)(2) areas withdrawn under Antiquities Act; Recreation study recommendations. The Commission passed a motion approving these recommendations for recreation. The Commission passed a motion urging State and Federal authorities to give strong consideration to the Alaska wilderness resource, with prime candidate areas proposed as a framework for developing an Alaska Wilderness System. Other presenations: BLM' s Utility Corridor plan (Runburg}; High Altitude Photography program; and Northern Alaska study. Continuing Research The Land Use Planning Commissien, as an integral part of its policy development effort, has carried out a variety of contractual and staff research efforts. As the Commission enters its phase down period, emphasis has shifted to research that would directly lead to the develop- 35 ,L I ment of final recommendations of the Commission. At present there are several research efforts underway that are directly related to the development of final Commission policy formulation. In addition, several studies have been completed during the past year. One of the continuing concerns of the Commission has been the development of planning policy for the Arctic region of the State. Such a policy would incorporate coordinated management of Federal, State, and private lands with national and State interests in the preservation of certain environmental resources and cultural values, in conjunction with the orderly development of energy and other natural resources of the regions that are of significance to the Nation. This effort is nearing completion, and has already resulted in staff working papers and other Commission publications in the areas of resource development, Arctic environmental problems, transportation of Arctic resources, and a review of existing Arctic policies. One specific study completed during the past year, "Oil and Gas Leasing Policies," (LUPC Study 1124, Krietner) reviews Federal, State, and Canadian oil and gas leasing policies and mechanisms. A diversity of leasing policies is identified and the potential for conflict resulting from the implementation of different leasing policies is illustrated. One of the principal conclusions of the study is that, if a strong continuing coordinated planning proces~ between the State and Federal governments, and an expanded planning process for the Arctic region between the United States and Canada, is to go forward, it appears imperative that better methods f6r early coordination of leasing activities should be developed. A second study of interest, "Northern Alaska Hydrocarbon Resources,n (LUPC Study #34, Kreitner) provides a detailed review of northern Alaska hydrocarbon resources. In addition to identifying major areas of hydro carbon potential, economic and transportation factors influencing the development of these resources is addressed. Further analysis of trans portation of hardrock minerals from the western Arctic and Brooks Range area is also being undertaken to complement prior research on transpor tation and resource development in the Arctic. Finally, a synthesis of Commission research on Arctic policy matters, which will provide a basis for Commission recommendations for Arctic policies, is in draft form. The Commission has a legislative responsibility to make recommendations to the Governor of Alaska and the State Legislature regarding State land issues. Commission efforts have been significant during the past year in terms of influencing the development of State lands policy. The Commission has undertaken an examination of governmental roles in outdoor recreation in Alaska, and the result of this effort will be published as LUPC Study 1136, "Report and Recommendations, Outdoor Recreation in Alaska: An Examination of Governmental Roles." Another area of ongoing Commission concern has been that of the develop ment of wilderness policy. During the past year the Commission has 36 published a significant study titled, "Alaska Natural Landscapes" (LUPC Study #33, Gordon/Shaine). This study develops criteria for evaluating outstanding landscapes and applies these criteria to the landscapes of Alaska on a statewide basis. The Commission held a major workshop on wilderness policy, and this workshop, in conjunction with other staff effort, will result in a major publication that will provide a basis for the development of wilderness policy recommendations. The degree of coordination and cooperation achieved between landowners and managers of given areas largely determines the success of any land use planning efforts.. Hence, the Commission has devoted considerable effort in the area of coordination of and cooperation in management of lands. At present, the Commission has several studies underway dealing with these problems. One of these studies will focus on the review of present State regional planning efforts and their effectiveness. Another study underway deals with the development of cooperative management systems. During the past year the Commission published a study titled, "Fish and 11 Wildlife Use and Management in Alaska, · (LUPC Study 1/31, Bergstrand). The study provides a concise description of Alaska's present regulatory system for fish and game and has been designed for the reader without indepth knowledge of that intricate system and its high degree of public involvement. In the region-by-region description of the use of Alaska's fish and game resources, the close relationship between commercial use of fisheries, subsistence use of fisheries, and the relationship between local use of game and its use by hunters from other states and countries, and hunters from other regions of Alaska, is detailed as concisely as · possible. 37 A P P E N D I C E S 38 Appendix A C 0 M M I S S I 0 N P U B L I C A T I 0 N S 39 PUBLICATIONS AND STUDY LIST January, 1979 Commission publications are divided according to their availability. Some items have a report number which may be used for identification purposes. Requests and questions should be addressed to the Commission office. Publications which are no longer available from the Co~ission are marked with an asterick (*). When possible, publications have been placed in the National Technical Infopmation Service (NTIS) so that they will be permanently available. To order, use the publication number (in parenthesis), and indicate paper copy (first price) or microfilm (second price). Address: National Technical Information Service (NTIS) U.S. Dept. of Commerce 5285 Port Royal Road Springfield, VA 22161 #1 *Environmental Resource Information: Status, Use Needs, and Recommenda- tions, John Graham Company. 112 *:Qetailed Evaluation of the Alaska Resources Inventory, John Graham Company. #3 *Natural Hazards in the Alaska Environment: and Effects John Grahi',l.il .·Company. #4 *The Environment of Alaska: An Analysis of Physical and Biological Determinants, John Graham Company. 115 *The Environment of Alaska: Resource Specific Quantification, John Graham Company. 116 *Analysis of the Impact of Potential Development, John Graham Company. (The above six publications are one study.) IF7 *A Compilation of Fish and Wildlife Resource Information fo:J:" the State of Alaska, the Department of Fish and Game. 118 Regional Effects of Anchorage Metropolitan Growth, Victor Fisch~r. 119 *Alaska's Transportation Issues, 1976, Lloyd Pernela. #10 Alaska National Interest Land Withdrawals and Their Opportunity Costs, John Krutilla and Sterling Brubaker. (PB279904/AS., $6.50/3.00) 40 #11 *Opportunities for Cooperative Resource Management in Alaska, Arlon Tussing. #12 *Migration and Population Distribution in Alaska: 1974-1990, Daniel Seiver. #13-*An Assessment of Alaskan Agricultural Development, Wayne Thomas, and #14 Consideration for Development: Alaska's Agricultural Potential, R. J. Hildreth and J. Edwin Faris (PB287393/AS., $6.00/3.00) #15 *Impact of Rapid Change on Culture in Rural Alaska, Mim Dixon. #16 *Toward Understanding Rapid Culture Change in Native Rural Alaska, Nancy Yaw Davis (PB287389/AS., $6.00/3.00) #17 *The Evolving Pattern of Village Alaska, William Alonso and Edgar Rust (PB279905/AS., $6.00/3.00) #18 An Examination of Section 2l(d) of the Alaska Native Claims Settlement Act, Monroe Price. #19 *Effects of Population Fluctuation on Investment in Social Facilities, ,John Beebee. #20 *Toward a Land Use Planning Process for Alaska, Public Affairs Counseling. /121 *Seiect~d Bibliography and Annotations; Land Regulation; Land Management; Land Transfer, Burton Goldberg. 1122 *Land Use. Planning, The D-2 Lands, and Alaska Resources: Some Economic Considerations, Bradford H. Tuck (PB279903/AS., $4.50/3.00) #23 *The Reservation of Wildlife Habitat in Alaska, David L. Spencer (PB279902/AS., $6.00/3.00) f/24 Oii and Gas Leasing Policies, Jerry Kreitner, September, 1978. #25 An Assessment of Marine Transportation Costs Related to Potential Port Sites in Alaska, Engineering Computer Optecnomics, Inc. (PB281845/AS., $12.00/3.00) 1126 Land Use Planning Issues and the Alaska Gas Pipeline: A Report to the President. (PB281327/AS., $6.50/3.00) 1128 *A Bibliography on Alaska Subsistence 1 LUPC in cooperation with the tJi::tive:i:sity ?f Alaska, September, 1977. (PB286311/AS., $5.25/3.00) 1129 St:ate Land Policy Recommendations & Background Papers. LUPC Staff Study, December, 1977 (PB287290/AS., $8.00/3.00) ·I· f/30 ,Selected Legal Memoranda, Volume I, 1973-1976 (PB287390/AS., $9.25/3.00), Vo1uine II, 1977 (PB28739l/AS., $7.25/3.00) 41 #31 Fish & Wildlife Use and Management in Alaska, Jay Bergstrand, March, 1978 (PB2872ll/AS., $5.25/3.00) #32 Transportation and Development of Alaska Natural Resources, LUPC Staff Study~ March, 1978 (PB287193/AS., $6.00/3.00) #33 Alaska Natural Landscapes, Richard J. Gordon and Benjamin A. Shaine, May, 1978 (PB287392/AS., $6.00/3.00) #34 Northern Alaska Hydrocarbon Resources, .Jerry D. Kreitner, May, 1978 (PB287394/AS., $6.00/3.00) #35 The Urban Fringe: Methods of Land Use Directions, Janet McCabe, May, 1978 (PB287289/AS., $4.50/3.00) The D-2 Book, Lands of National Interest in Alaska, Recommendations to the President and Congress of the United States on national interest lands in Alaska, May, 1977, 213 pp. (PB279901/AS., $10.75/3.00) The 'D-2' Book, Volume 1/II, Lands of National Interest in Alaska, A Comparative Analysis, 11 Series "E" Scale Maps Plus Charts, November, 1977. 11 Series "E" Maps available flat. D-2 Area Maps (including land status up to January, 1978), 1:1,000,000 scale. Maps of entire State bound in large format publication. Interim Report, A report of Commission activities submitted to the President of the United States, the Governor of Alaska, the U.S. Congre.ss, and the Alaska State Legislature as required by the Alaska Native Claims Settlement Act of 1971, as amended. May, 1976. (PB279893/AS., $9.00/3.00) 14(c) Handbook for Village Corporations - Reconveyancing Land, July, 1975 (PB279900/AS., $4.50/3.00) Agenda for State Lands: Recommendations to the People of Alaska on the Future of Their Public Lands. December, 1975 (PB279899/AS. · $6.50/3.00) Discussion of Legal Issues Related to 14(c) Reconveyances (updated to June 23, 1974). (PB287395/AS., $4.00/3.00) Easements in Alaska - A leaflet which briefly explains easements which are required by the Alaska Native Claims Settlement Act. June, 1975. What is D-2? A brochure explaining what "d-2" is and sumrilarizing the Commission's position on national interest lands. *Landlords of Alaska? A reprint of Section D of the Anchorage Sunday Times, July 20, 1975. 42 *Alaska Resources Inventory (91 volumes of narrative on 17 subject fields, with over BOO map overlays), December, 1974. *Alaska Regional Profiles (6 volumes: Arctic, Northwest, Southwest, Southeast, Yukon, and Southcentral Regions). Jointly published with the Alaska office of the Governor and the Arctic Environmental Informa tion and Data Center. *Land and Government--Options in State Legislation, Conference Report; January 13-14, 1975. *Land Planning and Policy in Alaska: Recommendations Concerning National Interest Lands (printed at the request of the Senate Committee on Interior and,Insular Affairs), June, 1974, U.S. Government Printing Office, Washington, D.C. *Cook Inlet Report - A report to the Alaska Senate and House Resources Committees of the Alaska State Legislature on the Proposed Cook Inlet Land Trade, March 6, 1976. *Recommendations for a (d)(2) Decision. An executive briefing of the D-2 Book (foldout). May, 1977 (PB287396/AS., $4.00/3.00) *Resources of Alaska: A Regional Summary, July, 1974, 619 pp. *Summary of the Conference on Taki~g Fish and Game Resources to Meet Subsistence Needs, February, 1974, Juneau, Alaska. (PB279894/AS., $4.50/3.00) Socio-Ecological Dynamics of Wolves and Prey in a Subarctic Ecosystem, Gordon G. Haber, September, 1977, 800 PP• Note: This publication will be available through NTIS in February, 1979. *uMajor Ecosystems of Alaska," 1973. (map) ANNUAL REPORTS i(l97i Annual Report, Vol. I and II January 1973 (PB2~9896/AS., $4.50/3.00) i>l973 Annual Report January 1974 (P]32F9897/AS., $4.50/3.00) *1974 Annual Report, Alaska.' s Land--1974 January 1975 (PB2F9895/AS., $5.25/3.00) 1975 Annual :Report, Alaska's Land--1975 January 1976 (PB2F9898/ AS. , $6.00/3.00) 1976 Annual Report, Alaska's Land--l-976 January 1977 (Part of the "Interim Report.") *1977 Annual Report, Alaska's Land--1977 January 1977 43 The LUPC publications listed above have received extensive statewide distribution to Federal.and State agencies, Native organizations, private institutions, and the general public. Publications have also been distributed to the following libraries, through the State of Alaska library system, and through the Commission: Alaska State Library Anchorage Higher Education New State Office Building Consortium Library Pouch G 3211 Providence Drive Juneau, Alaska 99811 Anchorage, Alaska 99504 E.E. Rasmusson Library Z. J. Loussac Public Library University of Alaska 427 "F" Street Fairbanks, Alaska· 99701 Anchorage, Alaska 99501 University of Alaska Library, Juneau A. Holmes Johnson Library P.O. Box 1447 P.O. Box 985 Juneau, Alaska 99802 Kodiak, Alaska 99615 Ketchikan Public Library Fairbanks North Star Borough 620 Dock Street Library Ketchikan, Alaska 99901 P.O. Box 1267 Fairbanks, Alaska 99701 National Library of Canada Alaska Natural Resources Library 395 Wellington Street 733 W. Fourth Avenue Ottawa 2, CANADA Anchorage, Alaska 99501 Sheldon Jac~son Jr. College Library The Center of Research Libraries P.O. Box 479 5721 Cottage Grove Avenue Sitka, Alaska 99762 Chicago, Illinois 60637 Kegoayah Kozga Library University of Washington Library P.O. Box 53 Government Documents Center Nome, Alaska 99762 Seattle, Washington 98501 Kenai Community Library Washington State Library P.O. Box 157 Olympia, Washington 98501 Kenai, Alaska 99611 Seattle Public Library California State Library 1000 4th Avenue Sacramento, California 95809 Seattle, Washington 98104 U.S. Dept. of the Interior Harvard University Library Natural Resources Library Cambridge, Massachusetts Gifts & Exchange Section 18th.& C Streets, NW Library of Congress W'shington, D.C. 20240 Washington, D.C. Documents Collection Agricultural Experiment Station E.E. Rasmussen Library University of Alaska University of Alaska Fairbanks, Alaska 99701 Fairbanks, Alaska 99701 44 Juneau Douglas Community College University of Alaska P .0. Box 135 Southeastern Senior College Anke Bay, Alaska 99821 P.O. Box 1447 Juneau, Alaska 99801 Matanuska-Susitna Community College Sitka Community College P.O. Box 899 P.O. Box 1090 Palmer, Alaska 99645 Sitka, Alaska 99835 Kodiak Community College Kuskokwim Community College Library Li:t>ra.ry P.O. Box 946 P.O; Box 58 Kodiak, Alaska 99615 Kodiak,· Alaska 99615 University of Oregon Library Ketchikan Community College Eugene, Oregon Library P.O. Box 358 Univeristy of California at Ketchikan, Alaska 99901 Santa Cruz, California Santa Cruz, California University of California at Berkley Library BLM Library .. Berkley, California. Park Service Library Denver Service Center Arctic Institute of North America Denver Federal Center Calgary 2, CANADA Denver, Colorado 80225 Dept. of Natural Resources Library Cooperative Extension Service 733 West Fourth Avenue UniverSity of Alaska , Anchorage, Ahska 99501 .Fairbanks, Alaska 99701 45 Appendix B C H R 0 N 0 L 0 G Y 0 F C 0 M M I S S I 0 N A C T I V I T I E S 1 9 7 8 46 CHRONOLOGY OF COMMISSION ACTIVITIES FOR 1978 01/12/78 ANCSA Implementation The Co-Chairmen sent to Secretary Andrus the Commission's final comments concerning issue papers prepared by the Assistant Secretary for Land and Water Resources in connection with the Department's reexamination of its implementation of the Settlement Act. The Commission commented on some 46 issues related to implementation. These recommendations were the culmination of over eight months of work involving the Commission, the State, the Alaska Federation of Natives, and the Department of the Interior. January, 1978 GAO Study of ANCSA At the invitation of the Government Accounting Office, the Co-Chairmen and staff critiqued a draft version of a GAO study on Settlement Act implementation. 01/17/78 (d)(2) Legislation At the request of Representative John Seiberling, Chairman of the General Oversight and Alaska Lands Subcommittee, the Commission forwarded comments regarding principal resource and conceptual matters raised by H.R. 39 (Committee Print No. 2). 01/24/78 State Lands Commission Co-Chairmen and staff members briefed the Governor of Alaska, various cabinet members, and the joint Resources Committees of the Alaska Legislature on State land issues. 01/25/78 State Lands The Commission Co-Chairmen addressed the Alaska Rural Development Council on various facets of State land policy. 02/13-21/78 (d)(2) Workshop At the request of the Senate Energy and Natural Resources Committee, the Commission assisted the.Committee in arranging a (d)(2) workshop held in Anchorage by that Committee. 02/16/78 State Legislation The Commission commented to Governor Hammond on a draft proposal for a remote cabin permit act. 02/16/78 State Legislation Written comments were forwarded to Governor Hammond and offered as recommendations for amendment of draft legislation entitled, "Alaska Homestead Act." 47 02/17/78 State Legislation The State Co-Chairman testified before the Alaska House Resources and Judiciary Committees on H.B. 211, "An Act Establishing the Alaska Land Commission and Providing for an Effective Date." This legislation would establish the State side of a Federal-State Commission concerned with cooperative management. 02/13-21/78 (d)(2) Legislation The Commission assisted the staff of the Senate Energy and Natural Resources Committee in preparations for, and the content of a workshop held in Anchorage to obtain resource information from various individuals and organizations. 02/21-22/78 Wilderness Workshop The Commission sponsored a two day Wilderness Workshop to review the 1964 Wilderness Act and the National Wilderness Preservation System as it. affects Alaska and the national interest (d)(2) lands. Representatives from the Departments of Agriculture, Interior, and Justice, the Alaska Congressional Delegation, Congressional Committtee Staffs, and the State of Alaska were invited to attend. The Workshop was designed to assist the Commission in preparing wilderness-related recommendations to be made to the President, Congress, the Governor, and the State Legislature. 02/23/78 State Legislation The Commission offered testimony to the House Resources Committee concerning proposed legislation regarding the disposal of State lands. Spring, 1978 ANCSA Implementation At the request of the Department of the Interior's Assistant Secretary for Land and. Water Resources, the Commission participated with DOI representatives, the State, and Natives in a newly established policy group which continued to monitor and review the progress of ANCSA implementation. Efforts focused on the formulating of new regulations relating to the identification of public easements across Nat~ve lands, the promulgation of other regulations, and the development of proposed amendments to the Settlement Act. Spring, 1978 Ecological Reserves The Commission participated with other agencies and the University of Alaska in the formulation of an ecological reserve system program and ·the subsequent establishment of an Ecological Reserve Council, which is now in operation. 48 Spring, 1978 State Land Policy At the request of the Senate Resources Committee of the Alaska Legislature, the Commission undertook a study of State land policies and procedures. This included a public seminar on. land policies, a public slide show, and the formulation and publication of findings and recommendations. Spring, 1978 ARIS Computer Program The Commission developed an Alaska Resource Information System (ARIS), a geographically based computer file of selected data from the six voltmes of the Alaska Regional Profiles. This program includes a User and Technical Committee comprised of Federal and State representatives interested in the development of a statewide data management system for Alaska. Spring, 1978 Remote Sensing The Commission established a Remote Sensing Technology and Transfer Committee Consortium composed of Federal and State agencies for the purpose of developing and funding statewide remote sensing projects. The group will develop tools required for resource inventories and cooperative planning and management. Spring, 1978 Native Assistance At the request of Chugach Natives, Inc., the Commission sponsored a series of meetings and helped analyze a number of proposed amendments relating to the land entitlements of the regional corporation and its constituent villages. Spring, 1978 Mineral Development The Commission Counsel made suggestions to the Congressional Office of Technology Assessment with respect to OTA's study of access for mineral development on non-Federal lands in Alaska. Spring, 1978 (d)(2) Legislation The Commission staff assisted various Congressional staffs in their formulation of (d)(2) legislation. Spring, 1978 State Lands Through written communications and meetings with the Governor of Alaska, Commission Co-Ch~irmen and staff provided technical assistance in the formulation of legislative language for the Alaska Homestead Land Credit Act, which ultimately was adopted in part by the State Legislature. 03/09/78 (d)(2) Legislation The State Co-Chairman communicated with Representative Lloyd Meeds concerning subsistence language contained in Title VII of H.R. 39 (Committee Print No. 3). 49 03/16/78 (d)(2) Legi.slation The State Co-Chairman sent written correspondence to Representative John F. Seiberling pertaining to the five year time frame for seismic probing and possible exploratory drilling for oil and gas on approximately 1.2 million acres of the proposed Arctic National Wildlife Range. March, 1978 Federal/State The State Co-Chairman submitted a written report to the Polar Research Coordination Board describing the activities of the Commission in regard to Federal State cooperation and coordination. March, 1978 Scenic Classification The State Co-Chairman prepared a briefing paper for the Scenic Classifica tion System Panel. of the Heritage Conservation and Recreation Service. Commission staff represented the Commission at the meeting in Washington, D.C. 03/17/78 (d)(2) Legislation Commission Co-Chairmen, through a written communication to Senator Henry M. Jackson, Chairman of the Senate Committee on Energy and Natural Resources, expressed their views on possible markup vehicles for use in developing (d)(2) legislation. 03/29-30/78 Cooperative Management The Commission, together with the State of Alaska D-:-2 Steering Council, sponsored a Cooperative Planning Seminar. Five nationally recognized experts in intergovernmental cooperation and land planning and management were brought together to evaluate opportunities and methods for develop ment of cooperative Federal, State, and local land planning in Alaska. 04/05/78 State Legislature The Co-Chairmen and staff briefed the State Senate Resources Committee on State land issues and gave them an update on various aspects of pending (d)(2) legislation. 04/06/78 (d)(2) Legislation The Co-Chairmen delivered testimony before the Subcommittee on Fisheries Wildlife Conservation, and the Environment of the House Merchant Marine and Fisheries Committee regarding pending (d)(2) legislation. 04/10.,-12/78 Native Assistance Members of the Commission staff participated in a village workshop dealing with aspects of ANCSA, including Section 14(c), sponsored by the Bristol Bay Native Corporation. April, 1978 State Land Policy The Commission delivered testimony to the State Senate Resources Committee concerning the establishment of State land policy. 50 05/03/78 Joint Classification In written correspondence to the Assistant Secretary for Land and Water Resources, U.S. Interior Department, the Commission Co-Chairmen outlined a proposal for a case study to test and evaluate land planning categories. 05/04/78 State Legislation on The State Co-Chairman testified before the House Judiciary Committee on Cooperative Planning H.B. 211, relating to cooperative land use planning and classification. 05/05/78 ARIS The State Co-Chairman and staff briefed the Alaska House and Senate Resources Committees on ARIS. They also presented a briefing to Coastal Zone Management Council personnel. 05/12/78 (d)(2) Legislation Upon a request for Commission assistance, the Commission supplied Senator Ted Stevens with maps and other material'relative to pending (d)(2) lands legislation. 05/19/78 FLPMA The Commission submitted comments on the BLM's proposed policies and regulations respecting land use planning and inventory, and wilderness management. 05/26/78 U.S. - Canadian The State Co-Chairman met with U.S. Embassy officials and Canadian Resource Issues officials of the Department of Indian and Northern Affairs to discuss oil exploration, and oil and gas leasing in the Canadian North. 05/31/78 Aerial Photography The Federal Co-Chairman responded to Representative Morris K. Udall, Chairman of the House Interior and Insular Affairs Committee, respecting the aerial photography program in Alaska. 06/06/78 (d)(2) Legislation Commission Co-Chairmen testified before the u:s. Senate Committee on Energy and Natural Resources regarding various issues related to pending (d)(2) legislation. 51 06/06/78 (d)(2) Legislation The State Co-Chairman served on a transportation panel of The U.S. Senate Committee on Energy and Natural Resources during Committee consideration of pending (d)(2) legislation. 06/06/78 State Lands Legislation A Commission member testified in behalf of the Commission before the Senate Resources Committee in support of land policy legislation. 06/08/78 Remote Sensing The Co-Chairmen invited representatives of the Department of the lnteriorp Technology Department of Agriculture, State of Alaska, and the University of Alaska to participate with them in establishment of a temporary task force to investigate the problems and develop recommendations for an Alaska Remote Sensing Technology and Transfer Policy and Plan. 06/14/78 State Lands Legislation A section by section analysis was submitted to the House Resources Committee on S.B. 640 (Land Available for Homestead Entry). 06/10/78 State Lands The Commission provided technical advice and assistance to the State Division of Lands in preparing for a seminar on land planning. 06/19/78 (d)(2) Legislation At the request of the U.S. Senate Commi.ttee on Energy and Natural Resources, the Commission prepared and submitted a series of papers concerning issues raised by the pending legislation to implement Section 17(d)(2) of the Settlement Act. The papers dealt with wilderness review, wildlife management, conveyance of lands to the State and Natives, access, cooperative planning, and mineral entry. 06/19/78 Public Easements The Co-Chairmen submitted comments to the Bureau of Land Management in connection with the Bureau's proposed regulations establishing policies and procedures for reserving public easements pursuant to Section 17(b) of the Settlement Act. These comments were the culmination of several months of work with representatives of the Interior Department, the State of Alaska, and Natives (AFN). 06/19/78 Public Easements The Co-Chairmen submitted recommendations to the Secretary of the Interior with respect to the definition of "major waterway" contained in proposed BLM regulations to implement Section 17(b) of the Settlement Act. 52 06/20/78 Navigable Waters At the request of 06/21/78 (d)(2) Legislation In response to a request from Senator Henry M. Jackson, Chairman of the Senate Committee on Energy and Natural Resources, the Commission outlined its activities since its inception with regard to the (d)(2) lands issue. 06/26/78 ANCSA Implementation In a written communication to Senator Hen.ry Jackson, the Commission Co-Chairmen' conveyed their views concerning the legislative conveyance of land to the State and Natives and other issues raised by Title VIII of H.R. 39. These comments reflected the Commission's work with representatives of the Alaska Federation of Natives, the State of Alaska, and the Department of the Interior to expedite the transfer of lands to Native corporations. Such work included Commission sponsorship of a number of meetings to consider problems related to conveyance, the submission to the Interior Department of detailed written comments concerning needed rev1s1ons in policy and procedure, and constant dialogue among the parties concerned with Settlement Act implementation. 06/27/78 ANCSA Implementation The Commission assisted the General Accounting Office in the latter's study of Settlement Act implementation. 06/29/78 (d)(2) Legislation In written communications to Senator Henry M. Jackson, Commission State Co-Chairman submitted suggestions for an Arctic cooperative planning region to be considered in connection with the Senate version of the (d)(2) legislation. 06/30/78 (d)(2) Legislation At the request of the staff of the Senate Energy and Natural Resources Committee, the Commission Counsel submitted draft language relating to transportation access across the areas designated in pending (d)(2) legislation. 07/07/78 (d)(2) Legislation Commission Co-Chairmen responded to a request by Senator John A. Durkin to provide an economic assessment of mineral potential within proposed (d)(2) classifications. 53 07/07/78 (d)(2) Legislation The Commission Co-Chairmen submitted comments to Sentor Henry M. Jackson, Chairman of the Senate Committee on Energy and Natural Resources, regarding proposed amendments to the Alaska Native Claims Settlement Act and additional issues concerning Title VIII of H.R. 39. 07/18/78 (d)(2) Legislation In written correspondence to Senator Henry Jackson, the State Co-Chairman transmitted his concept of regional game boards and forwarded subsistence language for the Senator's consideration in (d)(2) legislation. 07/31/78 Briefing on Alaska Robert Herbst, Assistant Secretary for Fish and Wildlife and Parks, U.S. Issues Department of the Interior, was briefed by the Commission Co-Chairmen and staff on a number of Alaska land issues. 08/03/78 (d)(2) Legislation The Co-Chairmen communicated with staff of the Energy and Natural Resources Committee of the U.S. Senate regarding suggested changes in the title on cooperative management under consideration for inclusion in pending (d)(2) legislation. 08/09/78 Small Federal Commission Co-Chairmen summarized their findings and recommendations regarding Withdrawals Alaska Railroad holdings selected by Eklutna Village Corporation. 08/21/78 Testimony on Oil The State Co-Chairman testified before the U.S. House Interior and Marketing Insular Affairs Committee, Subcommittee on Special Investigations, concerning the effect that the marketing patterns of Alaskan crude oil could have upon Federal, State, and private land policies in Alaska. 08/31/78 State Land Planning In written communications to Dr. Michael Smith, Assistant Commissioner - Director of the Division of Lands, the Commission Co-Chairmen responded to a request to critique the Division's draft revision of its planning and classification regulations. 09/01/78 (d)(2) Legislation The Commission Counsel, working with the State of Alaska and the Alaska Federation of Natives, .formulated language regarding the Alaska land bank provision for inclusion in the National Lands legislation before the Senate Energy and Natural Resources Committee. 54 09/01/78 ANGSA Amendments Draft language worked up by Commission staff, the Alaska Federation of Natives, and the State of Alaska regarding Section 14(c)(3) of the Settlement Act (Reconveyance to Municipal Corporations) was transmitted to the Senate Energy and Natural Resources Committee. 09/11/78 ANCSA Amendments Commission Co-Chairmen telegramed the Commission's views concerning legislation which would authorize a grant of lands to the thirteenth Native regional corporation. The telegram was sent to Representative Teno Roncalio, Chairman of the Subcommittee on Indian Affairs and Public Lands, U.S. House Committee on Interior and Insular Affairs. -Summer & Fall (d)(2) Legislation Commission staff provided resource information and other assistance to the 1978 staff of the Senate Energy and Natural Resources Committee before and during Committee markup of the pending (d)(2) legislation. Fall 1978 (d)(2) Legislation At the request of the staff of the Senate Energy and Natural Resources Committee, the Commission Counsel submitted draft language creating a Federal-State coordinating council and otherwise providing for cooperatve land planning in Alaska. Fall 1978 (d)(2) Legislation The Commission Counsel worked with representatives of Senator Steven's office and the Alaska Federation of Natives in the development of a draft title relating to subsistnece use on (d)(2) lands. This draft language was submitted to the Senate Energy and Natural Resources Committee. 10/11/78 (d)(2) Legislation The State Co-Chairman responded to Senator Gravel's request for input as to whether the Senator should support the compromise (d)(2) legislation or filibuster that legislation. l0/l7/78 Townsite Program Through correspondence to the State Director of the Bureau of Land Manage ment, the Commission Co-Chairmen submitted suggestions concerning the conformance of the Alaska townsite program to the new Secretarial policies in general and the village of Kasaan in particular. 55 10/23/78 Section 3(e) The Commission Counsel prepared a statement of legal conclusions in regard to Alaska Railroad withdrawals selected by the village of Eklutna. The statement was submitted as a followup to recommendations sent by the Colnmis sion Co-Chairmen to the State Director of the Bureau of Land Management. 10/24/78 (d)(2) Legislation At the request of the Department of the Interior and the State of Alaska. the Commission Counsel prepared an analysis of the issue of how much of the section on legislative conveyance to the State of Alaska could be implemented by administrative action initiated by the Secretary of the Interior. 10/24/78 Remote Sensing The Co-Chairmen invited representatives of municipalities and boroughs Technology to participate with them in establishment of a task force to develop recommendations for a Sensing Technology and Transfer Policy and Plan for the State of Alaska. 11/21/78 (d)(2) Legislation At the request of lawyers for the Federal government and the State of Alaska, the Federal Co-Chairman and a Commission staff member submitted affadavidts on issues raised by the State's motion for additional time to comment on the Interior Department's environmental impact supplement respecting the (d)(2) lands. ll/22/78 (d)(2) Lands Commission Co-Chairmen submitted comments on the draft environmental impact supplement prepared by the Department of the Interior to consider various administrative options available in the aftermath of Congress' failure to pass (d)(2) legislation. 12/27/78 Transportation Planning The Co-Chairmen submitted comments on the Prince William Sound Regional Transportation Study and on a Preliminary Transportation Plan for South east Alaska to the Transportation Planning Section of the Department of Transportation and Public Facilities of the State of Alaska. 12/29/78 (d)(2) Legislation At the request of Senator Mike Gravelt the Co-Chairmen submitted their views concerning the so-called "compromise" (d)(2) bill, which failed to pass in the final days of the last Congress. 56 Appendix C PUBLIC S P E E C H E S 57 PUBLIC SPEECHES AND PRESENTATIONS January, 1978 KINY TV, Juneau. Co-Chairmen Walter Parker and Esther Wuntlicke were interviewed on "Southeast Profiles." State lands and (d)(2) issues were discussed. KBYR TV, Anchorage. State Co-Chairman Walter Parker was interviewed on the topic of oil transportation. KAKM TV, Anchorage. Commissioner Celia Hunter was interviewed on early and present activities in Alaska. Anchorage. John Katz gave a presentation on the implementation of the Alaska Native Claims Settlement Act and other land laws to University of Denver legal externs. Alaska Rural Development Council, Juneau. Paul Steucke gave a State lands presentation. Alaska Legislative Resources Committees, Juneau. Commissioners Phil Holdsworth and Norman Gorsuch, Co-Chairmen Walter Parker and Esther Wunnicke, and Janet McCabe, Tom Hawkins, and Sally Gibert gave a briefing on the Commission's State lands study findings. March, 1978 Alaska Mapping and Survey Conference. Anchorage, Paul Steucke and Janet McCabe gave a (d)(2) slide talk. Anchorage Association of Women, Anchorage. Federal Co-Chairman Esther Wunnicke, assisted by Paul Steucke, spoke on (d)(2) lands and State issues. National Audubon Society, Western Regional Conference, Asilomar, California. Federal Co-Chairman Esther Wunnicke spoke on Cooperative Planning and Management of Alaska Lands. KAKM TV, Anchorage. Carroll Hodges interviewed Federal Co-Chairman Esther Wunnicke and Lidia Selkregg. Anchorage Community College, Anchorage. Federal Co-Chairman Esther Wunnicke, assisted by'Paul Steucke, taught a class on the Land Use Planning Commission and land issues. CMAL, Anchorage. State Co-Chairman Walter Parker was speaker for a CMAL breakfast meeting on (d)(2) issues. 58 Pacific Northwest Personnel Association, Anchorage. Office Coordinator Thelma Thrasher spoke on "Affirmative Action Planning for the Handicapped. 11 April, 1978 University of Alaska, Anchorage. Dr. Bradford Tuck served as a moderator and panelist, and Commissioner George Rogers and Federal Co-Chairman Esther Wunnicke served as panelists for "Alaska in Transition" conference. Alaska Engineer Society, Elmendorf Air Force Base. Paul Steucke gave a (d)(2) presentation. Alaska Native Claims Appeals Board, Anchorage. Paul Steucke gave a State land presentation to the staff of the Board. CMAL, Fairbanks. Richard Stenmark presented a paper, and Paul Steucke gave a (d)(2) slide and narrative presentation. Fairbanks Chamber of Commerce, Fairbanks. Janet McCabe, assisted by Paul Steucke, gave a presentation on State land policy. National Academy of Science Glacieology Committee, Miami, Florida. State Co-Chairman Walter Parker spoke on arctic research priorities, at the committee's request. Anchorage. John Katz spoke to legal externs from the University of Denver on implementation of the Alaska Native Claims.Settlement Act and· other land laws. Association of American Geographers, New Orleans, Louisiana. State Co Chairman Walter Parker gave a speech entitled "Coordinating Political and Physical Sectors of Arctic Alaska."· National Association of Bank Women, Anchorage. Federal Co-Chairman Esther Wunnicke was guest speaker on Alaska land issues. NOVA, Anchorage. Federal Co-Chairman Esther Wunnicke was interviewed by Paula Apsell of NOVA on the Commission and Alaska lands. American Society for Civil Engineers, Pittsburgh, Pennsylvania. State Co-Chairman Walter Parker presented a paper entitled "Alaska Looks at the World's Largest Project; The Alaska Natural Gas Pipeline." Virginia Polytechnic University, Blacksburg, Virginia. State Co-Chairman Walter Parker spoke on "Land Allocation and Wilderness in Alaska." Fish and Wildlife Seminar, Anchorage. Federal Co-Chairman Esther Wunnicke gave a speech entitled "Round Pegs.in Square Holes" concerning Alaska Native Claims Settlement Act issues. University of Alaska, Fairbanks. Federal Co-Chairman Esther Wunnicke served as panelist ort the "Decade of Change" conference. 59 Anchorage Community College, Anchorage. Federal Co-Chairman Esther Wunnicke was keynote speaker at the first annual Women's Conference on Workshop for Alternatives for Women in Work and Education. Speech entitled "Mule Skinning is an Equal Opportunity Employment." May, 1978 East High School, Anchorage. Federal Co-Chairman Esther Wunnicke spoke to a law class. New TimesMagazine, Anchorage. Federal Co-Chairman Esther Wunnicke was interviewed by Mike Parfit for a special edition on Alaska land issues. House and Senate Resources Committee, Juneau. State Co-Chairman Walter Parker and James Anderson made a presentation on the Alaska Resource Information System. University of Alaska, Anchorage. Commissioner Joseph FitzGerald gave commencement address entitled 11 Public Policy and the Land." KAKM TV, Anchorage. Janet McCabe was interviewed by Eric Ekholm of the "Alaska Review" for a program about the homestead initiative. National Association of Professional Mortgage Women, Anchorage. Federal Co-Chairman Esther Wunnicke was guest speaker at their national convention. Paul Steucke assisted with a (d)(2) and State land slide presentation. June, 1978 National Audubon Society, Anchorage. Federal Co-Chairman Esther Wunnicke served as panelist on "Issues in Cooperative Land Management." University of Alaska, Anchorage. Paul Steucke gave a State land presenta tion to the public. Institute for Environmental Studies, University of Washington, Seattle, Washington. Federal Co-Chairman Esther Wunnicke served as panelist for symposium on "Alaska: Land Issue of the Century." KENI TV, Anchorage. State Co-Chairman Walter Parker was interviewed by John Tatham. Anchorage. John Katz spoke to legal externs from the University of Denver on the implementation of the Alaska Native Claims Settlement Act and other land laws. July, 1978 Anchorage East Rotary Club, Anchorage. Federal Co-Chairman Esther Wunnicke spoke on aspects of land management within Alaska. 60 University of Alaska, Anchorage. Paul Steucke gave a presentation on the Cla~ms Act and (d)(2) to a seminar for Native secretaries. Science Magazine. Luther Carter interviewed Co-Chairmen Esther Wunnicke and Walter Parker on (d)(2) and State land issues. Newhouse News Service. Federal Co-Chairman Esther Wunnicke was interviewed by Bill Keller, the Oregonian Washington correspondent. State of Alaska, Job Symposium, Anchorage. Office Coordinator Thelma Thrasher served as panelist on "Staffing Your Store." August, 1978 Science Conference, Fairbanks. State Co-Chairman Walter Parker presented a paper on the future of Federal-State cooperative management entitled "Future Horizens for New Federalism in Alaska," and Dr. Bradford Tuck presented a paper entitled "Alaska after (d)(2)." KIMO TV. State Co~Chairman Walter Parker was interviewed. September, 1978 American Society for Public Administrators Meeting, Anchorage. State Co-Chaipnan Walter Parker spoke on Federal-State relationships after (d)(2). Rocky Mountain Mineral Law Review, Anchorage. Tom Hawkins, assisted by Paul Steucke, spoke on (d)(2) and the geography of Alaska. State Coastal Zone Policy Council, Anchorage. Jim Anderson made a presentation describing the High Altitude Photography Program and its uses in coastal zone planning before members from the Kenai Pennisula, Anchorage, and Mat-Su Boroughs. . Anchorage. John Katz briefed legal externs from the University of Denver on implementation of the Alaska Native Claims Settlement Act and other land laws. October, 1978 Economic Model Building in Alaska, Anchorage. Dr. Brad Tuck presented a paper to a symposium entitled "Unmet User Needs in Alaska Economic Models." University of Alaska, Anchorage. Dr. Brad Tuck moderated a panel on "Modernization, Multinational Corporation and the Future of Alaska." pniversity of Alaska, Anchorage. Federal Co-Chairman Esther Wunnicke ~poke to a Land Seminar on land laws on management of Federal lands. Paul Steucke assisted Co-Chairman Wunnicke with a presentation on Alaska lands. · pl U.S. Commission on Civil Rights, Advisory Committee, Anchorage. Thelma Thrasher testified on discrimination within State government in Alaska. Criminal Justice Conference, Anchorage. Federal Co-Chairman Esther Wunnicke spoke on future problems for those working in the criminal justice system as the result of land ownership and management decisions in Alaska. Alaska Native Foundation, Anchorage. John Katz and Tom HawkiQs gave a presentation concerning Claims Act implementation to a meeting of village corporation presidents sponsored by the Alaska Native Foundation. November, 1978 Women's Resources Center, Anchorage. Federal Co-Chairman Esther Wunnicke talked on the Equal Rights Amendment. Alaska Municipal League Conference, Anchorage. Janet McCabe served as a panelist on a land use discussion. December, 1978 KTVA TV, Anchorage. State Co-Chairman Walter Parker was interviewed by Tom Miller on the Commission's recreation recommendations. 62 I ~ 1111 Appendix D EASEMENT A C T I 0 N S 63 SUMMARY OF COMMISSION ACTIONS ON EASEMENTS, 1978* Summary of Acres Analyzed by the Commission for Easement Recommendations Acres Type of Corporation (in millions) Area and Section of ANCSA* Entitlement Area Analyzed for to be Land Selected Under Under ANCSA Easements Analyzed 1975&5 1976 1977 1978 Total Village Sec, 12 (a) &{b) , 16 22.00 1.2 4.9 4.6 3.9 14.6 7.4 Region-Village-Group Sec. 14(h) & Sec. 16 2.23 0.0 0.0 0.02 0.05 0.07 2.16 Region Sec. 12(c) 16.00 0.5 4.4 1.5 2.3 8.7 7.3 Former Reserves Sec. 19 3.70 0.0 1.1 0.9 o.o 2.0 1.7 Total 43.70 1.7 10.4 7.0 6.24 19.1 17.56 *Alaska Nat~ve Claims Settlement Act. **Includes miscellaneous lands for historical places; cemetaries; Natives living in groups and in Sitka, Kenai, Juneau, and Kodiak; and other provisions. Number and Type of Easement Recommendations, 1978 Type of Easement Recommendation Type of Easement Recommendation Agree Disagree Agree Disagree Trails 392 161 Streamside 6 152 Roads 24 18 Coastline 6 11 Campsites 138 167 Utility & other 22 80 Grand Total 588 589 * Streamside and coastline easements are not appropriate under the new easement regulations published 11-27-78. They will be replaced with periodic sites where needed for access purposes. 64 * The first three columns contain the date on which the proposed ease ment request was completed by the Commission, the name of the village or regional corporation which will receive title to the land, .::md the specific provision of ANCSA under which the land was selected. Column four contains the number of acres analyzed for easement needs. The last two columns contain the Commission's recommendations, i.e., the Commission, in whole or in part, agrees with the proposed easements and recommends approval and recommends disapproval. Easement identification is initiated by the Bureau of Land Management (BLM) who requests easement needs from government agencies and other user groups, conducts local meetings and receives public comment. Ba3ed on this information, tentative easement recommendations are transmitted by the BLM to the Commission. Commission action on the BLM tentative recommendations is authorized by Section 17(b) of ANCSA. ** ANCSA refers to the Alaska Native Claims Settlement Act. The referenced sections are provisions of the ~ct which permitted the selection of land under review. Section 12(a) provides for selections by village corporations. Section 12(b) provides for selections by the village corporations from lands allocated by the regional corporations. Section 12(c) provides for selections by regional corporations. Section 14(h) provides for selections by village corporations, regional corporations or Native groups from lands outside areas withdrawn by Sections 11 and 16 of the Act. Section 16 provides for selection by village corporations of southeastern Alaska. Section 19 provides lands for former Native Reserves. Acreage Village Section Analyzed Easement or of This Recommendations Date Region ANCSA** Action Agree Disagree 01-03-78 Doyon 12(c) 23,040 2 1 01-26-78 Ruby 12(a) 110,627 18 6 01-26-78 Doyon 12(C) 192,365 10 1 02-16-78 Dillingham 12(a) 99,619 24 1 03-17-78 Levelock 12(a) 85,623 14 ll 03-21-78 Ekwok 12(a) 87,132 11 9 04-17-78 Kodiak 14(h) 21,734 8 12 04-17-78 woody Island 12(a) 3,131 3 4 04-25-78 Cook inlet 12(b) 141 2 65 j;~ 05-09-78 Koliganek 12(a) 81,547 13 9 06-14-78 Akutan 12(a) 92,160 1 5 06-20-78 Koniag 14(h) 820 5 5 06-21-78 Woody Island 12(a) 44,361 8 29 06-21-78 Old Harbor 12(a) 8,146 2 4 06-29-78 Afognak 12(a) 3,670 10 08-01-78 Kakhonak 12(a) 81,349 7 31 08-02-78 Igiugig 12 (a) 63,777 9 19 08-02-78 Portage Creek 12 (a) 62,155 6 4 08-02-78 Pilot Point 12(a) 87,084 4 4 08-02-78 Ugashik 12(a) 68,701 7 08-02,;...78 Knik 12(a) 1,225 3 3 08-02-78 Chugach 12(b) 10,174 3 08-02-78 Stuyahok 12(a) 101,935 9 4 09..;.06-78 Newhalen 12(a) 64,608 4 14 09-20-78 Telida 12 (a) 64,793 8 1 09-20-78 Nondalton 12 (a) llO ,380 15 22 09-20-78 Takotna 12 (a) 66,260 7 7 09-20-78 Nikolai 12(a) 68,872 12 10 09-20-78 Doyon 12(c) 216,666 ll 3 09-20-78 McGrath 12 (a) 91,252 9 ll 09-20-78 Doyon 12(c) 248,632 20 10 09-20-78 Doyon 12(c) 101,433 13 8 10..,.06-78 Minto 12(a) ll3,236 8 13 10-06-78 Doyon 12(c) 45,851 1 1 10-06-78 Pedro Bay 12 (a) 85,335 18 14 10-06-78 Clarks Point 12(a) 28,405 1 2 10-06-78 Saxman 16 6,825 ll 17 10-06-78 Ekuk 12 (a) (b) ll,l30 3 10-06-78 Tazlina 12(a) 89,000 17 13 10-06-78 Egegik 12(a) 88,963 2 6 10-12-78 Kenai 14 (h) 17,857 2 8 10-12-78 Doyon 12 (c) 182,345 12 4 10-12-78 Kaltag 12(a) 106,742 14 5 10-12-78 Anvik 12 (a) 86,805 7 7 10-12-78 Shageluk 12 (a) 86 ,ll6 9 4 10-12-78 Grayling 12(a) 85,832 5 2 10-12-78 Doyon 12(c) 349,467 13 6 10-30-78 Holy Cross 12(a) 130,388 5 9 10-30-78 Doyon 12 (c) 151,054 5 9 ll-16-78 Doyon 12 (c) 292,489 14 5 ll-16-78 Chalkyitsik 12 (a) (b) 156,682 7 5 ll-20-"78 Copper Center 12 (a) 109,122 13 12 11-21-78 Gulkana 12 (a) (b) 89,745 17 19 11-21-78 Doyon 12 (c) 2ll, 135 5 6 ll-21-78 Tanana 12(a) 127,819 7 9 11-21-78 Huslia 12 (a) ll2 ,957 13 10 ll-21-78 Doyon 12(c) 144,430 8 5 ll-21-78 Koyukuk 12(a) 87,626 9 8 ll-21-78 Nenana 12 (a) 45,943 6 14 11-21-78 Mentasta Lake 12 (a) 64,998 8 17 11-23-78 Chitina 12(a) lll,092 19 29 66 11-30-78 Doyon 12(c) 152,281 7 2 12-05-'-78 Knik 12 (a) 1, 225 . 3 3 12-05-78 cook Inlet 12(b) 22,862 1 12-05-78 Cook Inlet 12 (c) 23,040 12-05-78 Allakaket 12 (a) 91,982 8 12 12-05-78 Doyon 12 (c) 151 ,·837 7 5 12-05-78 Alatna 12 (a) 66,349 6 7 12-18-78 Cantwell 12(a) 64,890 14 . 23 12.;..18-78 Chickaloon 12(a) 736,644 24 13 67 Appen4i:x. E .• C 0 ~ M I S S l 0 N BUDGET I 68 APPENDIX E COMMISSION BUDGET FOR FISCAL YEAR 1979a BY CLASS OF EXPENDITURE (October 1, 1978 - June 30, 1979) Object Class Budget (000) Personal Services is composed of employee wages, benefits, $ 770 cost of living allowance, and employer contributions. Travel costs include trips to centers of Federal and State 80 government, regional centers and villages, administrative travel. Also included are transportation costs for five Commission meetings, and one Advisory Committee meeting. Transportation of Things includes only personnel moving 64 costs. Rents, Communications, and Utilities include office space 58 rental,. telephone utilities, and machine rentals. Printing and Reproduction costs include an allocation for 86 a final report, .which includes the annual report. Other Services include all professional contracted services, 124 administrative support services provided by the Bureau of Land Management, and an allotment for a final independent evalua,tion of the Commission as a coordinating mechanism. Supplies and Materials include all general office and 6 cartographic supplies and subscriptions to periodicals and newspapers. · Equipment includes special purchases for information and 0 cartographic programs. TOTAL a. The State fiscal year begins July. 1 and ends June 30, and the Federal fiscal year is October 1 to September 30. b. One-half of the Commission's total budget is provided by State government, with the other half by Federal appropriation. 69 COMMISSION BUDGET FOR FISCAL YEAR 1979* BY PROGRAM OBJECTIVE ALLOCATION (July 1, 1978 - June 30, 1979) ------~-----~------Program Objective Budget (000) Recommend to the Governor and the Legislature of the State $ 251.0 of Alaska policies for the management of the State's public domain, including recommendations on: State land selec~ tions, classification procedures and categorie~, disposal criteria and means, the State Park System, modifications in State land programs and institutional structures, and intergovernmental coordinating mecqanisms. Recommend to Congress and the President policies for the 279.1 management of Federal lands in Alaska including recommenda tions on the designation and management of new Federal reserves, classification of (d)(l) lands, modifications in Federal land management policies and programs, and inter governmental coordinating mechanisms. Resolve conflicts and promote coordination among the 637.3 Federal and State governments and Native corporations in matters pertaining to land use and resource management. a. Recommend land ownership adjustments through State land selection~ or land exchanges; joint classification, and/or cooperative management for regions where the present land ownership configuration presents the potential for pro longed and aggravated conflicts. b. Recommend complementary policies and jurisdic tional roles to Federal and State governments in the following areas: fish and wildlife management and in energy resource development. c. Initiate coordinated intergovernmental efforts in transportation planning and in natural resource and socioeconomic research and data storage and dissemination; recommend ongoing coordinating mechanisms to accomplish these functions. Assist in implementation of the Alaska Native Claims 339.7 Settlement Act. 70 . I,:S I'·" I a. Make recommendations to the Secretary of the Interior on reservation of easements across land tracts selected by Native .corporations; recommE;!nd another entity to assume the review function of the Commission after its termination. b. Make recommendations on particular small Federal withdrawals on the need for their retention and the size of the withdrawal. c. Provide assistance to Native corporations upon their request in resource development and in clarification of laws and regulations related to the Claims Settlement. d. Make recommendations to the Secretary of the Interior, Congress, and the Governor and Legis lature of Alaska on resolutions to problems emerging during the Settlement's implementation and those long-range needs that can be anticipated. TOTAL $ 1,507.1** * The State fiscal year begins July 1 and ends June 30. The Federal fiscal year begins October 1 and ends Septmeber 30. ** One-half of the Commission's total budget is provided by State government, with the other half by Federal appropriations. 71 Appendix F C 0 M M I S S I 0 N S T A F F _, 72 JOINT FEDERAL-STATE LAND USE PLANNING COMMISSION FOR ALASKA COMMISSION STAFF December 31, 1978 James R. Anderson "'""Stephanie McWoods Data Systems Coordinator Secretary *Enzo E. Becia Yvonne Y. Mozee Natural and Physical Recording Secretary Sciences Planner Gerene R. Olson M. Suzanne Burleson Assistant to State Co-Chairman Administrative Officer Ibeliz Rivera Sharon R. Clark Receptionist/Secretary· Clerical Aide Richard J. Stenmark Sally Gibert Natural Systems Analyst Natural Resources Specialist Paul T. Steucke Ay~e C. Gilbert Public Information Officer Cartographer/Illustrator Nadine G. Stredwick John L. Hall Secretary to Federal Co-Chairman Natural Systems Analyst Thelma J. Thrasher Thomas"J. Hawkins Office Coordinator/ Land Use Analyst Contracting Officer Peggy J. Hough Bradford H. Tuck Staff Secretary Economic Analyst John W. Katz ~h\-Deborah von Hoffmann Counsel Washington Liaison Officer Susan R. LeFever Dorcus G. Wasson Lead Cartographer Secretary to Counsel Janet L. McCabe Land Management Planner *On detail from other agencies **Washington, D.C. office 73 COMMISSION STAFF WHO SERVED ON THE COMMISSION AND RESIGNED DURING 1978 J Jay L. Bergstrand Grace M. Hill Fish and Wildlife Analyst Staff Secretary E Christine L. Bryner Elizabeth S. Johnson Receptionist/Secretary Research Coordinator Karen Christensen Glenn Patrick Juday Staff Secretary ~cological Reserves Coordinator Dennis M. Dooley Jerry D. Kreitner Resources Transportation Analyst Energy Development Analyst J:. David Dorris Charles Naughton Planning Analyst Native Affairs Specialist Janet K. Earls William Ott Staff Secretary Receptionist/Secretary P.au.+ J. Engelman Duncan L. Read ~cotiomic ~alyst Director, Co~unications and Administration · ~osemarie Gelinas ~eceptionist/Secretary Eunice M. Rednlan Assistant to Feder~l Co-Chairman Richard Gordon f;nvironme:ntal Planner Benjamin Shaine Environmental Planner Susan Henoch Legal Assistant LEGAL EXTERNS The Commission participated in a legal e~ternship program with the University of Deq.ver College of Law. '.fhe three exterils who served the Commission during 1978 were: Susan Henoch Sandy Hamilton Nevin Seeger 74 Appendix G A L L 0 C A T I 0 N 0 F L A N D S I N A L A S K A 75 :OMMISSION FOR ALASKA • FEDERAL-STATE LAND USE PLANNING COMMISSION FOR ALASKA o FEDERAL-STATE LAND USE PLANNING COMMISSl I ALLOCATION OF LANDS IN ALASKA December 1978 ======~==~======~====~======General OWnership Categories Approximate Area in Millions of Acres Percent. Area Within State Boundaries Including Inland Waters • . 375.3 100.00 ======State Lands (entitlement) Statehood Act Grants General Grant 102.5 Community Grant .4 Community Grant from National Forests .4 Mental Health Grant 1.0 University Grant .1 Total State Lands 104.4 a,b 27.8 Native Corporation Lands Village & Regional Lands, ANCSA 43.7 11.6 Other Private Lands 1.0 .3 Total State, Native Corporation, and Private Lands . . . . • 149.1 39.7 Federal Lands, Designated Existing Conservation Systems 46.5 Park System 6.9 Forest System 19.7 Refuge System 19.9 Wildlife Refuges in Process of Creation 38.9 National Monuments Created December 1, 1978 (56.0) 52.6 d Total Conservation Systems 138.0 36.8 Other Reserves & Withdrawals 25.3 Petroleum Reserve-Alaska 22.8 Military Reserves 2.4 Department of Transportation .1 Total Federal Lands Designated 166.7 b,c 43.5 Total Federal Lands Undesignated 62.9 a,b,c 16.8 Total Federal Lands 226.2 60.3 GRAND TOTAL • 3 ====~======~======-======-======a. State is entitled to another estimated 1.1 million acres pursuant to the Cook Inlet Region land exchange settlement. This would lessen Federal nondesignated lands. b. state is entitled to submerged lands under navigable waters. Identification of submerged lands in Federal tracts would decrease Federal lands acreage. c. Acreages of Power site and other overlapping withdrawals are included only as an integral part of other Federal land categories. d. Excludes 3.39 million acres of existing national forest lands. 76 .,".·r· The Joint Federal-State Land Use Planning Commission for Alaska was created by Congress and the Alaska Legislature to provide a statewide land use planning process that will insure the economic development of the State in a manner that is compatible with the social and economic well-being of the public, their interests, and the environment. The Commission also is to improve coordination and resolve conflicts between the State, Federal government, and private landowners in the State, and recommend laws, policies and programs to the President, Congress and the Governor of Alaska for a coordinated comprehensive statewide land use planning process. The Commission, created by the Alaska Native Claims Settlement Act of 1971, is headed by the Governor of Alaska or his full-time Co-Chairman, and by a Federal Co-Chairman appointed by the President of the United States- Four Commissioners are appointed by the Secretary of the Interior. and four by the Governor of Alaska.