e OCS Study Analysis of Akwut Institutional MMS 87-0074 Response and Change: 1980-1985 Ad U.S. Department of the Interior Minerals Management Service G Alaska Outer Continental Shelf Region Social and Economic Studies Contract No. 14-12-0001-30264 FINAL TECHNICAL REPORT 1 ANALYSIS OF ALEIJT INSTITUTIONAL RESPONSE AND CHANGE: 19 S0-1985 5 Submitted to: U. S. Department of the Interior Minerals Management Service by Impact Assessment, Inc. August 4, 1987 .-. NOTICE This document is disseminated under the sponsorship of the U.S. Department of the Interior, Minerals Management Service, Alaska Outer Continental Shelf Region, Leasing and Environment Office in the interest of information exchange. The United States Government assumes no liability for its content or use thereof. Alaska OCS Socioeconomic Studies Program Analysis of Aleut Institutional Response and Change: 1980-1985 Prepared by: John S. Petterson, Ph.D. Michael A. Downs, Ph.D. Lawrence A. Palinkas, Ph.D. This project was conducted under the direction of Ms. Karen Gibson, MMS Contracting Officer’s Technical Representative. Ms. Gibson’s contributions have been central to the success of this project and her efforts are appreciated by the study team. August 1987 Table of Contents Page . Abstract Xlll CHAPTER 1: INTRODUCTION CHAPTER 2: SAND POINT 8 Introduction 8 Population 8 Total Population 8 Population and Ethnicity 10 Demographics and Household Size 11 Age/Sex Distribution 11 Land 13 Land Ownership 13 Land Use 14 Housing 16 Values Related to Land and Sea 17 Political Control 20 Formal Political Organization 22 Local Government 22 Regional Government 23 State and Federal Government 24 Informal Political Organizations 25 Local Organizations 25 e Regional Organizations 26 Political Leadership 27 Attitudes Toward Development 28 Development Objectives 28 Sociocultural Institutions 30 Kinship and Informal Associations 30 Voluntary Associations 32 Religious Organization 33 Social Differentiation 34 Economy 38 Introduction 38 Employment 41 Commercial Fishing 41 Processing Sector 45 Groundfish Industry Development 46 v Page Other Employment 47 Unemployment 48 Subsistence Activities 48 Income 49 Health 51 Introduction 51 Social Welfare 51 Public Safety Indices 51 Social Services 53 Physical Health 54 Education 56 Conclusion 59 CHAPTER 3: UNALASKA 62 Introduction 62 Population 63 Total Population 63 Population and Ethnicity 64 Population and Economics 66 Demographics and Household Size 67 Population and Age/Sex Distribution 68 Community Size and Introduced Political Change 68 Population and Land 68 Land 69 Spatial Organization Within the Community 69 Land Outside of Densely Populated Areas 71 Political Control 72 Political Control and Social Complexity 72 Politics and the Process of Formalization 73 Politics and Political Issues 73 Political Control and Demographics 76 Political Hierarchy and Sociocultural Change 76 Sociocultural Institutions 77 Sociocultural Complexity 77 Religious Organizations 77 vi Page Economy 77 Economic Organization 77 Community Budgets 78 Economics and Employment 81 Fisheries, 81 Oil-Related Activities 85 Other Businesses 88 Transportation 90 Support Services 90 Shipping 91 Economics and Household Structure 92 Income and Transfer Payments 92 Health 94 Social Welfare 94 Public Safety 94 Social Services 99 Health and Physical Well-Being 101 Education 104 Preschool 104 Unalaska City School 105 Post-Secondary/Adult Education 107 Enrollment 108 Conclusion 111 CHAPTER 4: ATKA 121 Introduction 121 Population 121 Introduction 121 Population and Ethnicity 122 Demographics and Household Size 123 Population and Age/Sex Distribution 126 Population Size and Economic Change 126 Population and Land 126 Land 127 Spatial Organization Within the Community 127 Land Outside of Atka 128 vii Page Political Control 129 Political Autonomy and Local Government Structure 129 Politics and the Process of Formalization 129 Politics and Political Issues 131 Political Control and Demographics 131 Sociocultural Institutions 131 Social Complexity 131 Religious Organizations 131 Economy 131 Economics and Fiscal Priorities 131 Village Council Budget 132 Infrastructure 132 Transportation 132 Communication 133 Construction 133 Economics and Employment 133 Sources of Employment 133 Economics and Business Development 137 Seasonality of Employment and Traditional Values 137 Commercial and Subsistence Economies and Change 137 Economics and Household Expenses 139 Atxam Corporation 140 Health 142 Public Safety 142 Clinic 142 Education 143 Preschool 143 Atka Village School 143 Post-Secondary Education 145 Conclusion 145 viii Page CHAPTER 5: ST. PAUL 149 Introduction 149 Population 150 Total Population 150 Age and Sex Ratios 152 Population and Ethnicity 158 Demographics and Household Size 158 Land 158 Land Ownership 158 Land Use 160 Housing 161 Values Relating to Land and Sea 161 Political Control 162 Federal and State Institutions 165 Regional Institutions 166 Local Institutions 167 City of St. Paul 167 A1eut Community of St. Paul 168 Tanadgusix Corporation 169 Other Local Political Institutions 171 Sociocultural Institutions 172 Kinship and Informal Associations “ 172 Voluntary Associations 173 Religious Organization 174 Social Differentiation 175 Economy 177 Fishery Development 177 Harbor Development 178 Tourism 180 Fur Seal Harvest 180 OCS Development 184 Infrastructure Development 185 Employment and Income 186 Tanadgusix Corporation 204 Aleut Community of St. Paul 204 City Administration 205 Subsistence Activities 213 ix Page Health 215 Introduction 215 Social Welfare 215 Public Safety Indices 215 Social Services 218 Physical Health 218 Facilities, Services, and Staff 218 Patient Load 219 Morbidity and Mortality 219 Education 220 Introduction 220 Facilities, Services, and Staff 220 Enrollment 222 Post-Secondary Education 224 Role of Institutions in the Community 224 Conclusion 225 CHAPTER 6: COMPARISON OF SOCIOCULTURAL CHANGE 228 AND INSTITUTIONAL RESPONSE IN THE STUDY COMMUNITIES Introduction 228 Population 229 Land 231 Political Control 232 Sociocultural Institutions 235 Economy 238 Health 242 Education 243 Conclusion 244 APPENDIX A: Eligibility and Benefit Criteria 246 LIST OF REFERENCES 250 E List of Tables Table Page 1. Sand Point Population, 1980-1985 9 2, Sex Distribution by Residential Status, Sand Point, 1980-1985 13 3. Distribution of Sand Point Permanent Resident Population by Neighborhood, 1980-1985 15 4. Attitudes of Aleutians East Communities to Oil and Gas Development in the Region 20 5. 1981 Sand Point Development Goals 29 6. Sand Point General Finances, 1981-1985 40 7. Financial Condition of the Shumagin Corporation, 1980-1985 41 8. Composition of Sand Point Employment 42 9. Sand Point Patterns of Limited Entry Permit Holdings, 1980 43 10. Alaska Peninsula Finfish and Shellfish Catch, 1979-1985 44 11. Estimates of Ex-Vessel Value of Alaska Peninsula Finfish and Shellfish Catch, 1979-1985 50 12. Police Activity Report, Sand Point, 1985-1986 52 13. Public Assistance Programs and Sand Point Beneficiaries, 1986 53 14. Sand Point Substance Abuse Indices 56 15. Enrollment in Sand Point City School District, 1981-1986 58 16. Unalaska Population, 1970-1984 64 17. Ethnicity of Marriage Partners in Unalaska, 1980-1985 65 18. Unalaska General Finances, FY1981-FY1986 79 19. Alaska Commercial Company, Dutch Harbor, Alaska, Total Store Sales 1981-1986 89 20. Unalaska Emergency Services, 1980-1986 96 21. Unalaska Court Cases Filed, 1980-1985 97 22. Unalaska Clinic Patient Encounters, 1981-1985 102 23. Coroner’s Cases in Unalaska, 1980-1985 103 24. Unalaska City School Average Daily Attendance, 1979-1987 108 25. Unalaska Department of Parks, Culture and Recreation Attendance Figures 109 26. Population of Atka, 1970-1986 122 27. Household Size in Atka, April 1986 123 28. Regular Employment in Atka, April 1986 134 29. St. Paul Births and Deaths, 1970-1984 157 30. Receipts from Fur Seal Skin Sales, 1970-1983 183 31. NOAA Funding for the Pribilof Islands, 1979-1985 184 32. On-Island Salaries and Wages: St. Paul, 1979 189 33. Estimated Unearned Income: St. Paul, 1979 190 34. City of St. Paul Employment: 1981 191 35. St. Paul Employment and Earnings: 1982 193 36. St. Paul Employment History: 1980-1986 199 37. St. Paul Unearned Income Sources: 1985 201 38. St. Paul Unearned Income: 1985 202 39. St. Paul Island Trust: Balance Statement, 1985-1986 210 40. St. Paul Island Trust: Statement of Revenues and Expenses, 1985 211 41. St. Paul Island Trust: Consolidated Statements, 1985 and 1986 212 42. Cases Prosecuted in the St. Paul Court, 1980-1986 216 43. Death Rate for St. Paul Residents, 1980-1984 219 44. St. Paul School Enrollment, 1983-1986 222 45. St. Paul School Enrollment Rates, 1983-1986 223 xi List of Figures Ek!w Page 1. Sand Point Age and Sex, 1980-1985 12 2. Unalaska General Fund Revenue, 1981-1986 80 3. Unalaska Crime Indices, 1981-1985 98 4. Unalaska School Budget History, 1979-1987 106 5, AtkaAge/SexPopulationDistribution, 1986 124 6. AtkaAge/SexPopulationDistribution, 1983 125 7. Atka Subsistence Year-Round Cycle 138 8. St.PaulAge/Sex Population Distribution: 1970 153 9. St.PaulAge/Sex Population Distribution: 1980 154 10. St.PaulAge/SexPopulationDistribution: 1986 155 11. St.PaulAge/SexPopulationDistribution: 1986 (by specific age) 156 12. St. Paul Employment by Month: 1980 188 13. St. Paul Employment by Month: 1983 195 14. St. Paul Employment by Month: 1984 196 15. St. Paul Employment by Month: 1985 198 16. St. Paul Employment by Month: 1986 200 17. St. Paul City Expenditure History: