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Alaska OCS Socioeconomic Studies Program

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Alaska OCS Socioeconomic Studies Program Technical Report Number 36 Alaska OCS Socioeconomic Studies Program Sponsor: Bureau of Land Management Alaska Outer Northern Gulf of Alaska Petroleum Development Scenarios Sociocultural Impacts The United States Department of the Interior was designated by the Outer Continental Shelf (OCS) Lands Act of 1953 to carry out the majority of the Act’s provisions for administering the mineral leasing and develop- ment of offshore areas of the United States under federal jurisdiction. Within the Department, the Bureau of Land Management (BLM) has the responsibility to meet requirements of the National Environmental Policy Act of 1969 (NEPA) as well as other legislation and regulations dealing with the effects of offshore development. In Alaska, unique cultural differences and climatic conditions create a need for developing addi- tional socioeconomic and environmental information to improve OCS deci- sion making at all governmental levels. In fulfillment of its federal responsibilities and with an awareness of these additional information needs, the BLM has initiated several investigative programs, one of which is the Alaska OCS Socioeconomic Studies Program (SESP). The Alaska OCS Socioeconomic Studies Program is a multi-year research effort which attempts to predict and evaluate the effects of Alaska OCS Petroleum Development upon the physical, social, and economic environ- ments within the state. The overall methodology is divided into three broad research components. The first component identifies an alterna- tive set of assumptions regarding the location, the nature, and the timing of future petroleum events and related activities. In this component, the program takes into account the particular needs of the petroleum industry and projects the human, technological, economic, and environmental offshore and onshore development requirements of the regional petroleum industry. The second component focuses on data gathering that identifies those quantifiable and qualifiable facts by which OCS-induced changes can be assessed. The critical community and regional components are identified and evaluated. Current endogenous and exogenous sources of change and functional organization among different sectors of community and region- al life are analyzed. Susceptible community relationships, values, activities, and processes also are included. The third research component focuses on an evaluation of the changes that could occur due to the potential oil and gas development. Impact evaluation concentrates on an analysis of the impacts at the statewide, regional, and local level. In general, program products are sequentially arranged in accordance with BLM’S proposed OCS lease sale schedule, so that information is timely to decisionmaking. Reports are available through the National Technical Information Service, and the BLM has a limited number of copies available through the Alaska OCS Office. Inquiries for informa- tion should be directed to: Program Coordinator (COAR), Socioeconomic Studies Program, Alaska OCS Office, P. O. Box 1159, Anchorage, Alaska 99510. II Technical Report Number 36 Contract No: AA550-CT6-61 Alaska OCS Socioeconomic Studies Program NORTHERN GULF OF ALASKA PETROLEUM DEVELOPMENT SCENARIOS SOCIOCULTURAL IMPACTS Prepared For Bureau of Land Management Alaska Outer Continental Shelf Office August 30, 1979 NOTICE This document is disseminated under the sponsorship of the U.S. Department of the Interior, Bureau of Land Management, Alaska Outer Continental Shelf Office in the interest of infor- mation exchange. The United States Government assumes no liability for its content or use thereof. Alaska OCS Socioeconomic Studies Program Northern Gulf of Alaska Petroleum Development Scenarios Sociocultural Impacts Prepared by Marsha Erwin Bennett Susan O. Heasley Susan Huey August 1979 Iv VI TABLE OF CONTENTS LIST OF FIGURES . LIST OF TABLES . I. INTRODUCTION . 1 Methodolocw . ...* . ● . 3 Socioctiltural Impact Categories . ✌ . 4 Regional Context . ● . 12 Overview of Cordova-Eyak . ● . 15 Overview of Seward . 4 . ● . 19 II. THE COMMUNITY OF CORDOVA-EYAK . ✎ . 21 Introduction . ● . ✎ . 21 The Physical Setting . ✎ . ● . ☛ . 21 Historical Overview . ✎ . ✎ . ✎ . 22 Eyak. , . ✎ . ✎ . ✎ . 22 Chugach Eskimo . ✎ . ✎ . k . ✎ . 26 Cordova . ✎ . ✎ . ✎ . 29 Good Friday Earthquake . ✎ . ✎ . ✎ . 33 Pipeline Terminus Suit . ✎ . ✎ . ✎ . 33 Chugach Region . ✎ . ✎ . ✎ . 35 ✎ Summary. ● ● . ✎ . 41 III. THE SOCIAL STRUCTURE OF CORDOVA-EYAK . ✎ . 43 Introduction . ✎ . 43 Population and Housing Characteristics . ✎ . 43 Social Organization and Predominant Lifestyle . ✎ . 46 Subsistence Activities . ● . ✎ . 46 The Fishing Seasons . ✎ . ✎ . The Cannery System . ● . ✎ . ✎ . :; The Fishing Community . ✎ . ● . ✎ . 55 Public Opinion . ✎ . ✎ . ✎ . 57 Political Organization , . , . ✎ . ✎ . ✎ . 58 Other Pressure Groups . ✎ . ✎ . ✎ . 59 Native Organization . ✎ . ✎ . ✎ . 61 Other Social Groupings . ✎ . ✎ . ✎ . 66 The Political System . ✎ . ✎ . ✎ . 68 Integrative Forces . ✎ . ✎ . ✎ . 71 Summary. ✎ . ✎ . ✎ . 73 IV. SOCIAL CONFLICT AND SOCIAL CHANGE IN CORDOVA-EYAK . ✎ . ✎ . ✎ . 77 Introduction . ✎ . ✎ . ✎ . 77 Economic Forces. ✎ . ● . ✎ . 78 Change in the Fisheries . ✎ . ✎ . ✎ 79 Oil and Gas Development . ✎ . 84 VII -. ,. .,-.. (Xanglng Native-wnlze Kelatlonsnlps . 88 Effects of ANSCA . 91 Social Stress Indicators . Measures of Successful Adaptation . 1;: Sumnary. , . 102 Application of Sociocultural Categories to Cordova-Eyak . 103 v* NON-OCS BASELINE FOR CORDOVA-EYAK . 107 Introduction . 107 Methods of Forecasting . * . ● . ● . 107 Sociocultural Categories Applied to Cordova-Eyak ✎ . ✎ . 107 The Future of Fishing . ✎ . ✎ . 108 Native Claims and Community Changes . ✎ ● . ✎ . 108 The Future of the Copper River Highway . ✎ ✎ . ✎ . 112 Coast Guard and Oil Tanker Traffic . ✎ ✎ . ✎ . 112 Prince Wil?iam Sound Context . ✎ ✎ . ● . 112 Ties Along the Coast.... ✎ ✎ . ✎ . 114 Implications . ✎ ✎ . ✎ . 115 Effect of Lease Sale 39...... ...! ✎ ✎ . ✎ . 116 VI. THE OCS SCENARIOS FOR CORDOVA-EYAK . ✎ ✎ . ✎ . 117 Introduction . ✎ ✎ . ✎ . 117 Methods of Forecasting . ✎ ✎ . ✎ . 122 Sociocu?tural Categories Applied to Cordova-Eyak ✎ ✎ . ✎ . 122 TheOCSScenarios. ✎ ✎ . ✎ . 123 The Ninety-five Percent Case (Low Case) . ✎ ✎ . ✎ . 123 Population. ✎ ✎ . ✎ . , 123 Structure of Employment . ✎ ✎ . ✎ . 126 Sociocultural System Variables . ✎ ✎ . ✎ . 127 MeanOCS Scenario. ✎ ✎ . ✎ . 129 Population. ✎ ✎ . ✎ . 129 Structure of Employment . ✎ ✎ . ✎ . 130 Sociocultural System Variables . ✎ ✎ . ✎ . 135 Summary of Sociocultural Impacts . ✎ ✎ . ✎ . 141 Five Percent Scenario (High Case) . ✎ ✎ . ✎ . 142 Population. ✎ ✎ . ✎ . 143 Structure of Emplowent . ✎ ✎ . ✎ . 144 Sociocultural Imoacts . ✎ ✎ . ✎ . 144 Summary of Sociocul tural Impacts for Cordova-Eyak ✎ . ✎ . 153 vII. THE COP?MUNITY OF SEWARD . ✎ . ✎ . 155 Introduction . ✎ . ✎ . 155 Physical Setting . ✎ . , ✎ . 155 Historical Overview. ✎ . ✎ . 157 Pre-Russian Period . ✎ ● . ✎ . 157 Russian Period. ✎ ✎ ✎ . 159 /%ericanPeriod . ✎ ✎ . ✎ . 161 VIII City of Seward . ● . 162 Seward’s Native Population . ✎ . 165 Military Influences . ✎ . 168 Regional Context . ✎ . 169 The Growth of Anchorage . ✎ . 169 The Good Friday Earthquake . ✎ . 172 Kenai Borough Context . ✎ . 174 Summary. ✎ . 175 VIII. THE SOCIAL STRUCTURE OF SEhlARD . 179 Introduction . 179 Population and Housing . ● . ● . 179 Present Native Population . ✎ . ✎ ● . 182 Social Organization 1 . ✎ . ✎ ✎ . ● . 185 Seward Value System . ✎ . ✎ ✎ . ✎ . 190 Predominant Life Styles . ✎ . ✎ ✎ . ✎ . 192 Social Ranking. ✎ . ✎ ✎ . ✎ . 194 Public Opinion . ✎ . ✎ ✎ . ✎ . 195 The Political System . ✎ . ✎ ✎ . ✎ . 200 Summary. , . ✎ . ✎ ✎ . ● . ✎ . 201 IX. SOCIAL CONFLICT AND SOCIAL CHANGE IN SEWARD ✎ . ✎ ✎ . s . ✎ . 2CJ3 Introduction . ● ✎ ✎ . ✎ . ✎ ✎ . ✎ . ● 203 Econcinic Forces . ✎ ✎ ✎ . ✎ . ✎ ✎ . ● ✎ . ✎ 203 Response to OCS Exploration . ✎ ✎ ✎ . ✎ ● ✎ ✎ . ✎ ✎ . ✎ 206 Local Fisheries . ✎ ✎ ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 210 Response to 200 Mile Limits . ✎ ✎ ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . s ✎ 212 Kenai Borough Context . ✎ ✎ ✎ ● . ✎ ✎ ✎ ✎ . ✎ ✎ . ● 215 Chugach Regional Context . ✎ ✎ ✎ ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 216 Land Status Changes Within the Borough ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 217 Other Land Issues . ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 218 Social and Individual Stress Indicators ✎ . ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 220 Individual Stress. ✎ . ● ✎ ● ✎ . ✎ ✎ . ✎ 220 Social Stress . ✎ ● ✎ ✎ ✎ ✎ . ● ● ✎ . ● ✎ 221 Disintegrative Forces . ✎ ✎ ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 224 Summary of Sociocultural Categories for Seward ✎ ● . , ✎ ✎ . ✎ 225 Application. ● ✎ ✎ ✎ ✎ ✎ . ✎ ✎ . ✎ 226 x. NON-OCS BASELINE FOR SEWARD . ● ✎ . ✎ ● . ✎ 229 ✎ ✎ ✎ ✎ 27g Introduction . $... Methods of Forecasting . ● ✎ . ✎ ✎ . ✎ 229 Sociocultural Cate~ories Applied to Seward . ✎ ✎ . ✎ ✎ . ✎ 229 Cornnunity Response Capacity . ✎ ✎ . ✎ ✎ . ✎ 230 Response to the 1964 Earthquake . ..
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