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EQUITABLE CO-MANAGEMENT on the KUSKOKWIM RIVER by Chris

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EQUITABLE CO-MANAGEMENT on the KUSKOKWIM RIVER by Chris Equitable co-management on the Kuskokwim River Item Type Thesis Authors McDevitt, Chris Download date 10/10/2021 19:26:54 Link to Item http://hdl.handle.net/11122/9676 EQUITABLE CO-MANAGEMENT ON THE KUSKOKWIM RIVER By Chris McDevitt, B.A. A Thesis Submitted in Partial Fulfillment of the Requirements for the Degree of Master of Arts in Arctic and Northern Studies University of Alaska Fairbanks August 2018 APPROVED: Sine Anahita, Committee chair Mary Ehrlander, Committee member Kris Racina, Committee member Mary Ehrlander, Director Arctic & Northern Studies Program Todd Sherman, Dean College of Liberal Arts Michael Castellini, Dean of the Graduate School Abstract A legally empowered equitable co-management system of the Kuskokwim River salmon fishery between subsistence users and state and federal managers does not exist. Despite federal legislation Alaska National Interest Lands Conservation Act (ANILCA) (Section 8) calling for a "meaningful role" for subsistence users in managing fish and game on federal lands, some rural subsistence users believe that they have yet to assume a "meaningful role" in the policy­ making process. The absolute maximum capacity that subsistence users can fulfill in terms of participating in the management of the resources they depend on comes in the form of one of many advisory boards. Ultimately, management regimes and policymakers do not have to consider advisory council member recommendations, suggestions and/or group proposals. On the Kuskokwim River, the decline of king salmon, perceived mismanagement, general mistrust of management agencies, inter-river conflict, and lack of authority and accountability felt by local users, has prompted some subsistence salmon fishermen to press for a stronger role in salmon management. The United States Fish and Wildlife Service (USFWS) and the Kuskokwim River Inter Tribal Fish Commission (KRITFC) have developed a Memorandum of Understanding (MOU) pertaining to the management of the fishery. The Alaska Department of Fish and Game (ADFG) has not entered into negotiations with the KRITFC and United States Fish and Wildlife Service (USFWS) regarding management. This thesis explores the history of the Kuskokwim salmon fishery and options available to Alaska Native subsistence salmon users who seek an equitable role in managing the fishery. i Dedication Dedicated to the Memory of Edward Roy "Sonny" Hoffman November 7th, 1942 - July 20th, 2010 ii Table of Contents Page Abstract................................................................................................................................................................ i Dedication...........................................................................................................................................................ii Table of Contents................................................................................................................................................iii List of Figures....................................................................................................................................................... v Introduction......................................................................................................................................................... 1 Methods........................................................................................................................................................... 5 Chapter 1 ........................................................................................................................................................... 11 A Historical Perspective.................................................................................................................................... 11 1.1 Early Russian Exploration........................................................................................................................ 12 1.2 River Dynamics........................................................................................................................................ 17 1.3 Demographics and Regional Harvests.....................................................................................................18 1.4 Conclusion............................................................................................................................................... 24 Chapter 2 ........................................................................................................................................................... 26 American Colonization...................................................................................................................................... 26 2.1 Emmons' Report of 1905......................................................................................................................... 26 2.2 Federal Trust Responsibility...................................................................................................................32 2.3 Alaska Statehood.................................................................................................................................... 34 2.4 Article VIII - Natural Resources, and Selection of State Lands...............................................................35 2.5 Alaska Native Claims Settlement Act..................................................................................................... 42 2.6 Alaska National Interest Lands Conservation Act.................................................................................. 44 2.7 Emergence of Dual Management........................................................................................................... 45 2.8 Alaska Federation of Natives' perspective on Dual Management........................................................ 47 2.9 Conclusion............................................................................................................................................... 50 Chapter 3 ........................................................................................................................................................... 53 Organizational Theory....................................................................................................................................... 53 3.1 Formal and Informal Organizations........................................................................................................ 55 3.2 Common Pool Resources and Organizations......................................................................................... 59 3.3 Organizational versus Institutional Theory............................................................................................ 66 3.4 Conclusion............................................................................................................................................... 70 iii Chapter 4 ........................................................................................................................................................... 72 Co-Management................................................................................................................................................ 72 4.1 Co-Management Support and Opposition............................................................................................. 74 4.2 Defining Co-Management....................................................................................................................... 75 4.3 Integrating Co-Management.................................................................................................................. 79 4.4 "Weaving Together Two Worlds" Co-Management Symposium at the University of Alaska Fairbanks 86 4.5 Conclusion............................................................................................................................................... 90 Chapter 5_Striving for Equitable Co-Management.......................................................................................... 92 5.1 Subsistence Management....................................................................................................................... 95 5.2 The Role of Traditional Ecological Knowledge in a Dual Management System....................................97 5.3 Integration of TEK in practice: Theories and Realities..........................................................................103 5.4 Conclusion............................................................................................................................................. 116 Chapter 6 - Conclusion.....................................................................................................................................118 Bibliography....................................................................................................................................................123 iv List of Figures Page Figure 1: PORTAGE MOUNTAINS NEAR LOWER & UPPER KALSKAG. ZAGOSKIN FIRST ENTERED THE KUSKOKWIM RIVER IN THE VICINITY OF THESE MOUNTAINS IN THE MID-19TH CENTURY. C. MCDEVITT JULY 2015................................................................................................................................................................... 15 Figure 2: LOWER KUSKOKWIM RIVER NEAR BETHEL. C. MCDEVITT JUNE 2015.................................................18 Figure 3: DRYING SALMON AT A HOME IN AKIAK. C. MCDEVITT JULY 2015......................................................19
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