Determination of Alaska Native Status Under the Marine Mammal Protection Act A research report by Steve J. Langdon, Ph.D. Sealaska Heritage Institute 105 S. Seward Street, Suite 201 Juneau, Alaska, 99801 August 2016 Table of Contents Page Table of Contents ........................................................................................................................... iii List of Tables and Figures.............................................................................................................. iv List of Appendices ...........................................................................................................................v Acknowledgments......................................................................................................................... vii Introduction ......................................................................................................................................1 Tribes, Tribal Enrollment, Tribes in Alaska, Blood Quantum ........................................................2 Alaska Natives and Marine Mammals ...........................................................................................10 History of the Definition of and Criteria for “Alaska Native” .......................................................14 Other Definitions of “Alaska Native” in Present Use ....................................................................23 Blood Quantum Eligibility Trends.................................................................................................30 Alternative Criteria for Determination of Alaska Native Eligibility .............................................46 Alaska Native Views on MMPA Eligibility Criteria .....................................................................53 Current Enforcement of MMPA Alaska Native Eligibility Requirements ....................................66 Conclusion .....................................................................................................................................70 References ......................................................................................................................................75 Appendices .....................................................................................................................................78 iii List of Tables and Figures Page Table 1 Blood quantum requirements of American Indian tribes by reservation basis and size .. 3 Table 2 Estimated harvests of wild resources for home use in Alaska by census area, region, and category, 2012 .................................................................................................................10 Table 3 Alaska Native Regional Corporation Policies for Accepting New Shareholders ............28 Table 4 Blood Quantum of Original Sealaska Population in 1973 and Descendants of Shareholders and Children born 1974-2001 ...................................................................32 Table 5 Original Sealaska Shareholders and Lineal Descendants, by Blood Quantum, at End of Year for 1973, 2004 and 2008 ........................................................................................33 Table 6 Sealaska Data on Recent Scholarship Applicants ............................................................34 Table 7 CDIBs Issued to Alaska Natives less than 1/4 Alaska Native Blood Quantum from 7/1/2006-7/8/2016 ...........................................................................................................36 Table 8 CDIBs Issued to Alaska Natives less than 1/4 Alaska Native Blood Quantum from 7/1/2006-7/8/2011 ...........................................................................................................37 Table 9 CDIBs Issued to Alaska Natives less than 1/4 Alaska Native Blood Quantum from 7/1/2011-7/8/2016 ...........................................................................................................38 Table 10 CDIBs Issued to Coastal Alaska Natives Less than 1/4 Alaska Native Blood Quantum from 7/01/2006-7/08/2016 ..............................................................................................40 Table 11 CDIBs Issued to Coastal Alaska Natives Less than 1/4 Alaska Native Blood Quantum from 7/2006-7/2011 ........................................................................................................41 Table 12 CDIBs Issued to Coastal Alaska Natives Less than 1/4 Alaska Native Blood Quantum from 7/1/2011-7/8/2016 ..................................................................................................42 Table 13 Changes in Percentage of 1/4 Blood Quantum Enrollees of Coastal Alaska Native Regional Groups Between 2006-2011 and 2011-2016 ...................................................43 Table 14 Primary Alternative for MMPA Regulatory Criteria Defining Alaska Native ...............73 Figure 1 Number of CDIB Cards Issued to Alaska Natives under and over 1/4 Alaska Native Blood Quantum 7/1/2006-7/8/2016 ................................................................................35 iv List of Appendices Page Appendix 1 Informational Handout Provided at MMPA Presentations .......................................78 Appendix 2 Meetings of ANOs Where Presentations Were Given ..............................................80 Appendix 3 Interviews concerning MMPA Alaska Native Eligibility criteria .............................81 Appendix 4 AFN Resolution 09-08 ..............................................................................................83 Appendix 5 AFN Resolution 10-11 ..............................................................................................85 Appendix 6 NCAI Resolution 2010-015 ......................................................................................87 Appendix 7 Sea Otter and Sea Lion Commission White Paper ....................................................89 Appendix 8 FWS and NMFS Letter to IPCoMM 2014 ................................................................91 Appendix 9 Tlingit and Haida Resolution 16-19 2016 .................................................................93 Appendix 10 ASRC Proposals for Alaska Native definitions in MMPA March 2016 .................95 Appendix 11 FWS Tagging Packet for Walrus ...........................................................................100 v Acknowledgments This report is the result of extraordinary assistance of many people, especially Alaska Natives whose use of marine mammals is governed by the provisions of the Marine Mammal Protection Act (MMPA). I would like to acknowledge and thank all of those who were so gracious, accommodating and supportive of this research on a topic of enormous importance and sensitivity. I would initially like to thank Dr. Rosita Worl of the Sealaska Heritage Institute who, as chair of the Alaska Federation of Natives (AFN) Subsistence Committee, asked me to undertake research on the MMPA definition of Alaska Native. Dr. Worl and Mike Miller, chair of the Indigenous People’s Council on Marine Mammals (IPCoMM), worked together to guide the research. I would like to thank both of them for their excellent insights and their responsiveness to inquiries and issues that came up during the research. I would also like to thank Dr. Worl for the Sealaska Corporation numerical data from their studies that she generously provided for utilization in this report. Funding for the research was provided by the following Alaska Native organizations (ANOs): Afognak Native Corporation, Native Village of Afognak, Chugach Alaska Corporation, Koniag Incorporated, NANA, North Slope Borough, Sealaska Corporation and the Sealaska Heritage Institute. I would like to give special thanks to all the ANOs listed in Appendix 2 for allowing me to make presentations to them and to benefit from their discussion of various aspects of the issue. Without exception all of the discussions and viewpoints advanced during the presentations were thoughtful and heartfelt as the issue of future generations’ use of marine mammals was of enormous significance to the participants. Federal agency personnel of the National Marine Fisheries Service (NMFS) and the U.S. Fish and Wildlife Service (USFWS), listed in Appendix 3, were uniformly helpful and responsive in the interviews I conducted with them. Thanks to all of them. Ms. Jolene John, Bureau of Indian Affairs (BIA) Tribal Operations Officer, was of enormous assistance in acquiring the BIA data on recent Certificate of Determination of Indian Blood (CDIB) enrollment figures that are presented and discussed in the report. She went far beyond her normal duties to both learn the database for enrollment and how to make queries for the data that I requested. She was exceptional in her assistance and I extend my profound gratitude to her for her contribution. Ms. Carol Daniel, former AFN attorney who conducted legal research on the Marine Mammal Protection Act (MMPA) eligibility issue in 2010-11, was of great assistance in understanding some of the legal issues. She also provided a background file of legal research as well as vii important oral history on various discussions that took place on the issue in the period from 2010-2011. Ms. Meredith Marchioni provided outstanding research assistance ferreting out the legislative hearings information about the Alaska Native Claims Settlement Act (ANCSA) definition of Alaska Native and its implementation as well as undertaking all the tabular presentations of the data that I requested. She made very