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HomeMy WebLinkAboutPrince of Wales Island Regional Government Study Vol l 1983rc eg esse Hoe ee re | C Ferran ee roam tees: od > APPENDIX, Ay - > FINAL DRAFT CRA 001 PRINCE. OF WALES ISLAND ane REGIONAL GOVERNMENT ‘STUDY Ss “PROPERTY OF:- Neska Power Authority 834: W. 5th Ave. . _Ancherage, Alaska ect a e DEMOGRAPHICS AND INSTITUTIONAL "BACKGROUND -* Prepared For THE CITY OF CRAIG And THE ‘CITIZENS’ ADVISORY COMMITTEE By Holden & Associates - MARCH 1983 VOLUME : CONTENTS SECTION I. II. IIl. Iv. ve VI. Introduction Historical Overview Current Population Profile Future Population: Projections Community Institutional Profiles References TABLES 1. Tlingit /Haida Populations at Time of European Contact 2. Prince of Wales, Total Population of Selected Places 1890 - 1980 3. Comparison of Census and Revenue Sharing Population Counts 4. School Enrollment 5. Registered Voters/Voter Turnout 6. Population Estimates for Prince of Wales Island: 1981 7. Population and Employment Projections Through 1992 8. Southeast Island REAA Enrollment 9. School District Employment 10. School District Budgets ll. Municipal Budgets 12. U.S. Forest Service Headquarters Statistics CHARTS 1. Population Projections Through 1992 RECEIVED MAY 0 2 1983 ALASKA POWER AUTHORITY 17 II-3 III-1 III-2 III-3 III-5 III-5 Iv-4 v-6, 7 v-8 V-11 v-16 PAGE Iv-5 NOS emer es Nae Nm rene Reem od ere Nm Om ee aha! wed en me Sel I. INTRODUCTION This section of the Prince of Wales Island Government Study is seperated into two volumes. Volume I, the present volume includes demographics analysis and projections and a discussion of the historic and current institutional framework on Prince of Wales Island. Volume II contains an overall analysis of mechanisms for futher developing government on Prince of Wales Island, including a Borough option, the option of several incorporated communities and other optons, including alternative forms of cooperation which existing communities may undertake in order to better provide services. > ay > cc lw > Oo onal 4 o co - ” < II. HISTORICAL OVERVIEW The history of Alaska in general, as well as Southeast Alaska in particular, can be conveniently categorized into four maior histroical development periods. These periods are briefly described by Kresqe, Morehouse and Rogers (1977) as: 1. Native Alaska: The first was the aboriginal (or Native) strand of occupation and resource uses, which although eclipsed by subsequent development patterns has survived in certain essentials as a vital part of the contemporary Native Alaskan political movement evident in the Native claims settlement legislation. 2. Colonial Alaska: The second (1740-1940) was the strand resulting from the Russian and the initial United States occupations of Alaska. The periods were dominated by a traditional colonial economy of highly specialized exploitation for the benefit of distant markets and populations. 3. Military Alaska: The third (1940-58) strand resulted from World War II, which increased the importance of Alaska’s strategic northern polar location in the air age. During this time the economy and population shifted to defense activities and urban living. 4. The State of Alaska: The fourth (1959-present) strand occurred when post-World War II Alaska combined past patterns of development in a political context of statehood and growing international interest in the development of Alaska’s oil, gas, timber, fisheries and other natural resources. 1. Native Alaska Archaelogical evidence discovered at various sites in Southeast Alaska indicate that aboriginal peoples were living in isolated settlements in the Alexander Archipelago as long as 11,000 years ago. Geological interpretations and Carbon-14 dates from spruce wood fragments suggest that inhabitants of the Hidden Falls archaeological site care driven away by a small, re-advancing glacier during this period. e Upon the glacier’s retreat, another group of people settled at the Hidden Falls site approximately 3,700-4,000 years ago. A third period of occupation existed from approximately 1600-3500 years ago. Other archaeological investigations at Ground Hog Bay in Icy Straits and Coffman Cove on Prince of Wales Island definitively indicate that Native people were inhabiting increasingly widespread sites during the general time period of about 1000-3500 B.C. A growing body of archaeological evidence suggests that inhabitants of Southeast Alaska during the second mullenium B.C. were members of a cultural continuum which included people living on the Pacific Coast from the Alaska Peninsula to Puget Sound. (Clark, 1980) During the time preceding contacts with European explorers in the 1700%s, Native culture in Southeast Alaska and Prince of Wales Island reached high levels of development. Land ownership patterns had become well-established and political hierarchy, kinship patterns and subsistence food-gathering behaviors and technologies had become institutionalized. Abundance of food (especially salmon) and a relatively mild climate facilitated the development of highly specialized cultural patterns including division of social labor, artistic achievement, religious ceremony, social stratification. Anthropological researchers have estimated the pre-contact population of Tlingit and Haida Indians in Southeastern Alaska at approximately 10,000 people; with around 2,500 inhabiting the northern half of the territory and about 7,500 living in the southern regions. Alaska natives occupied a number of villaqe sites on and around Prince of Wales Island at the time of initial European contact. According to Langdon (1978), Tlingit habitation of Prince of Wales Island predates that of the Haida, although most knowledgeable observers believe that the Haida migration to the Prince of Wales area occurred within the 200 year period immediately prior to European contact. Initially, possibly due to population pressures, a contingent of Haida Indians migrated from the Queen Charlott Islands into Tlingit territory on Southern Prince of Wales Island. Through the years there was gradual migration northward by various Haida groups until, by the mid-1800°s, numerous Haida villages had been established in the Prince of Wales Island area, coexisting with local Tlingit communities. Historical research by Langdon (1978) and Sealaska (1975) suggest that the populations shown on Table 1 for Tlingits and Haidas existed in the Prince of Wales area at the time of European contact. Table 1 Tlingit/Haida Populations at Time of European Contact Tlingit Haida Shakan 150 Howkan 434 Tuxekan 300 Klinkway 417 Kasaan Island 100 Sukkwan 229 St. Phillips 150 Koianglas 148 Klawock 100 Kaigani 234 Kasaan 200 TOTAL 800 TOTAL 1662 2. Colonial Alaska Russian, English, and Spanish exploration of Alaska characterizes the second period in Alaska development. Accounts of contact in the 1700s by European explorers and traders and Natives living in the Prince of Wales Island region are sketchy at best. Generally however contact between white explorers and colonizers and Alaskan Native groups can be characterized by epidemic levels of disease among Native population, cultural conflict, resource exploitation and occasionally open warfare. Regarding Prince of Wales specificially, Landgon’s (1978) account is illustrative: DeLaquan, in commenting on the Englishman Portlock’s account of seeing numerous pockmarked faces at Sitka in 1789, suggests that the Spanish expedition of 1775 was probably responsible for the outbreak since they put into Salisbury Sound just north of Sitka. Since that same Spanish expedition visited and named Bucareli Bay on the west coast of Prince of Wales Island, it would seem likely that the significant population decline among the Prince of Wales Tlingit resulted from Spanish contact in 1775 or possibly from the nearly two months of contact with the Spanish again at Bucareli Bay in 1779. The Spanish expedition headed by Caamano that met with the Haida in Bucareli Bay in 1792 (or one of the earlier Spanish missions to the area in 1774, 1775, and 1779) might well be the source for the smallpox that Blackman records as reducing the Haida at Kasaan in the period prior to 1794. More intensive Russian, English and American exploitation resulted in serious disruptions in established Native cultural patterns. Following the early Russian for traders in the 1700’s, the more organized commercial ventures of Shelikof in 1770°s and 1780°s and the unsuccessful settlement attempts by Russian peasants in the period 1740-1780, the Russian Czar granted a charted to the Russian-American Company in 1977. Given a monopoly over all commercial enterprise and in the governing of Russian America, Baranof (the company’s manager) moved the headquarters from Kodiak to Sitka in 1805. Not long afterward he requested and received the support of the Russian navy to protect Russian-American Company interests from, among other threats, Tlingit Indians in Southeast Alaska. English traders were increasingly encroaching on Southeast Alaska, threatening Russian dominance. The influence of the Hudson Bay Company was legitimated by the Convention of 1825 and finally, in 1836, through a lease which turned over most of Southeast Alaska to the Hudson Bay Company. One of the lasting influences of the Russian period is the presence of the Russian Orthadox Church which to this day has a Bishop, fifteen priests and forty lay readers to serve approximately 20,000 members in Alaska, primarily residing in the North Pacific Coast, the Pribilof Islands, Cook Inlet, Kuskokwim River and the Aleutians. As economic and political realities began to close in on the Russian monarchy, it became clear that Russia would not be able to defend its Pacific colonies in the event of war. Russia therefore decided to sell Alaska, and military and political considerations dictated selling it to the United States rather than England, who would have paid more. With one vote to spare in the U.S. Senate, the treaty for the purchase of Alaska from Russia for $7,200,000 was ratified on May 26, 1867. Alaska’s economic development continued in the classical colonial pattern under American ownership. The period of U.S. military and naval rule was characterized by attempts at religious conversion and policies of cultural assimilation, armed conflict between Native villagers and military authorities and limitations on free access to salmon stocks with the introduction of the salmon canning industry in 1878 in Klawock and Sitka. 3. Military Alaska The outbreak of World War II dramatically changed the face of Alaska. The census taken in 1939 identified only 524 military personnel in Alaska. By 1943 there were over 150,000 soldiers, sailors and airmen stationed in Alaska in response to the Japanese landings in the Aleutian Islands and other threats. With a few exceptions such as the airfield at Yakutat, the oil pipeline from Haines to the Interior and scattered communications installations, Southeast Alaska was not effected as dramatically by the military build-up as other regions of the State. One of the most important after-effects of World War II for Prince of Wales Island was that residents living in local communities were exposed, through military conscription, to more cosmopolitan urban environments and broader social influences in general. ror 4. Present-day Prince of Wales Island Communities For a variety of social and economic reasons a few communites have survived as discrete social units up through the present. Craig, Hydaburg, Klawock, Kasaan and most recently, Thorne Bay are the only incorporated communities located on Prince of Wales Island. A number of other human settlements, such as non-Native subsistence communities, past and present logging camps and Forest Service work centers also dot the Island. A. Craig The community of Craig has.always been closely related to fishing. It was founded as a permanent settlement in 1907-1908 as a salomon canning and cold storage site. Craig was built around this salmon packing operations and continued to grow as the fishing industry expanded through the 1930°s. Between 1930 and 1940 the population of Craig grew from 231 to 505, partially due to Alaska Natives migrating to the area from Hydaburg and Klawock for employment. Salmon fishing and processing remained the focus of the cash economy until the 1950s and 1960°s when the fishing industry collapsed due to greatly-reduced salmon runs. Recent development of timber resources and processing, seafood processing, government services and commercial services have notably increased the opportunities for wage employment. Still considered a fishing community, Craig derives up to 40 percent of its employment from commercial fishing. As its economy has diversified into logging-related employment and construction, fluctuating market conditions have caused the population to rise and fall in TTT? response to available employment opportunities. Although the economy is dominated by fishing, fish processing, lumber processing and construction, Craig’s increasing role as a service center for central Prince of Wales Island attracts people employed in the service sector of the economy. such as retailers, managers and teachers. Presently a first-class city, Craig first incorporated in 1922. Expansion of the fishing industry and provision of municipal services such as street lights and education accelerated employment and population growth during the 1930%s and early 1940°s. During this period Craig became more closely integrated into a broader social system as air service to Ketchikan began and shipping improved. The National defense effort during the war years improved radio communication facilities. Since the end of World War II, Craig’s population steadily declined through 1970 (from 505 in 1940 to 272 in 1970). Between 1970 and 1980 however, population nearly doubled from 272 to approximately 527. By 1981, Craig’s population stood at 560 people. Today the population may exceed 800; the City is in the process of conducting a census to obtain an exact count. Craig’s first-class city status, current level of population and present infrastructure development have allowed it to provide municipally operated facilities (e.g. water and sewer system, dock, harbor, refuse collection), institutionalize a planning and zoning commission and implement a sales tax (currently at a 3% tax rate). Tro B. Hydaburg Hydaburg’s development occurred somewhat differently than Craig’s. As noted earlier by the middle of the 19th century a number of Haida settlements had grown up in close proximity to the southwest coast of Prince of Wales Island. In response to persistent requests for education services from people in the area, the Federal government and the Presbyterian Church persuaded the three largest villages (Hawkan, Klinkwan and Sukkwan) to combine into one community in order to facilitate the construction and operation of a centralized school. Establishment of Hydaburg occurred in this way in 1911. Like most of the communities on Prince of Wales Island, Hydaburg’s population has fluctuated rather dramatically since its inception. The cash economy of the community has been almost solely dependent on commercial fishing and cannery industries, whose levels of operations have varied substantially. Between 1911 and 1950 an increase in jobs provided by fishery and cannery opeations was associated with a population increase; conversely declining fishery and cannery operations during the 1950s and 1960°s were associated with a drop in population below 1930 levels. Between 1970 to 1980 the population increased by over 40%, possibly due to good fishing seasons and the prospects of expanded economic opportunities. Development in Hydaburg has been limited by limited access to the community. Float planes and private boats currently provide the only means of access. Although Hydaburg has remained somewhat isolated from the larger social systems of Prince of Wales and Southeast Alaska in general, this situation will be changed by completion of the road connecting Hydaburg with the Prince of Wales Island Road System and the Alaska Marine Highway System at Hollis. Hydaburg was incorporated in 1927 and became a first-class city in 1973. Municipally operated utilities include a sewer and water system, the city dock and refuse collection. These and other public and private facilities and services provide the foundation for continued population growth from the present into the future. Hydaburg’s 1981 population was 356 people. Today the population exceeds 400. An important point regarding the historical development of Hydaburg as a political and economic entity has been the involvement of the Indian Reorganization Act (IRA) Council. The Indian Reorganization Act of 1934 was amended in 1936 to correct the exclusion of Alaskan Natives from the original law. Hydaburg was the first Alaskan Native Community to adopt the IRA Council. Until statehood in 1958, the IRA Council was the only institutionalized political organization in Hydaburg empowered to legally represent the community on a variety of political and economic issues. C, Klawock As with most of the older communities on Prince of Wales Island, the history of Klawock is closely tied to the commercial fishing industry. In 1868 a salmon saltry and trading post were established in Klawock; ten years later it became the site of Alaska’s first salmon cannery. Subsequent salmon canning operations prospered or declined depending on market conditions and the relative strength of the salmon runs. Fluctuations in fishing industry employment resulted in accompanying population changes during the 1900’s. Population remained relatively stable from 1930 through 1950 (437, 455 and 404 people respectively in 1930, 1940 and 1950), but dropped precipitously in 1960 (251 people) and 1970 (213 people). As in the cases of Craig and Hydaburg, Klawock’s population has increased dramatically from 1970 to 1980. The 1981 population of Klawock was 389 people. Although Klawock’s cash economy has been historically dependent on commercial fishing and fish processing, economic diversification has been occurring over the last several years as Sealaska Corporation and Klawock-Heenya, the Klawock village corporation, have moved aggressively into the timber market. In addition, Klawock is the site of a number of timber related facilities, including a sawmill, a wood-powered steam generator, a log-sorting yard and a dock primarily used for loading timber destined for the Japanese market. \ Klawock is situated on the Prince of Wales road system, which gives it access to Craig, Thorne Bay and the Alaska Marine Highway at Hollis. Klawock was incorporated in 1929 and presently is constituted as a first-class city. Municipally operated facilities include a sewer and water system and refuse collection. D. Other Commnities The other two incorporated communities on Prince of Wales Island are Kasaan (1981 population: 64) and the logging-related community of Thorne Bay (1980 population: 320). According to the Kasaan Community Profile developed under contract to the State Department of Community and Regional Affairs, Old Kasaan was established in the early 1700°s. But residents relocated to the present site in 1892, where a school land a sawmill were established. Canneries operated off and on between 1901 and 1953. Population steadily declined from 1900 (150 residents) to 64 people in 1981. The decreasing population of Kasaan may be directly linked to the lack of employment opportunities. The local native village corporation, Kavilco, has plans to increase community infrastructure and facilities and thereby attempt to reverse the population declines. Kasaan is currently a second-class city and has adopted a local sales tax rate of 22. Thorne Bay is a relatively new community when compared with many of the other communities on Prince of Wales Island. It began as a logging camp in 1962 and has moved from a temporary logging facility into a permanent human settlement with a second-class city form of government (July, 1982). Because of the seasonal nature of logging activity, Thorne Bay’s population can vary by as much as 25% over the course of a year as seasonal employees move into the community to work various jobs in the wood products industry. The 1970 census lists the community’s population at 443, while the 1980 census registered 320 permanent residents. Thorne Bay is situated on the Prince of Wales road network and is accessible from the Alaska Marine Highway dock at Hollis. In addition to the above communities, a number of permanent and temporary communities are located on Prince of Wales Island. Some are associated with timber harvest operations and contain U.S. Forest Service work centers. These communities house employees during the logging season. Examples of these settlements include North Whale Pass (1980 population: 90), and Coffman Cove (1980 population: 193). Other communities, such as Point Baker (1980 population: 90) and Port Alice are small subsistence communities which became established in the 1900%s and now serve as the residence and home base for a II-12 small, largely hand troll, fishing fleet. Population data are sketchy from any of these communities, especially since wide seasonal employment and population fluctuations are normal. None of these communities possess local governing powers and some of them are likely to become extinct in the future. On the other hand, others show indications of becoming permanent human settlements as evidenced by the increasing number of institutions, facilities and services contained in them. One further indication of the emerging permanence of some of these communities is that the State land disposal program has transferred land into private ownership in locations such as North Whale Pass and in the Point Baker/Port Protection area. But for the near future, job opportunities and the related changes in population appear to be heavily dependent on the market condition for forest products, commercial fishing and mining. RN Ee IR Hh TAA NARNIA OP Ot Oe a CRAP NOE Me leh me cece: IS eos aati ie ol iL Oo. a a = Oo j= < aol Oe O ay ees Zz TT} ra cc 5 oO sar sceeenamnenwannioan waite tin ae saremnesine Sanamneot gente mtatiin SANE my Pte we siey cab neEhN nm ACORN Rim teme Ie Leh MAAN & meee ete ded RO ee MT ER ets ene Oe! bare tn meted sMavals sine Nem Aad Brat? meses aie He. bea ranemutmennen rein tepmanniy me eengey 4 eh Es 88 Bn NAYS OTERO TO FG Od TERR et ENED HN AER REET Ne Lae SERRE A RET, NELLY ae BARR My eer wey III. CURRENT POPULATION PROFILE The seasonal nature of employment opportunities and the remoteness of some of the smaller Prince of Wales Island communities contribute to the difficulty of generating accurate population data for the communities within the study area. The preliminary report prepared for Holden & Associates by Demographic Market Analysis draws on 1980 census data for community-level population information for this study. Table 2 presents historical census information concerning Prince of Wales Island communities for which census data is readily available. TABLE 2 Prince of Wales, Total Population of Selected Places 1890 to 1980 Place 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 Klawock 287 131 241 361 437 455 404 251 213 318 Kasaan - 150 129° 126 112 85 47 36 30 25 Hydaburg = - - 346 319 348 353 251 214 298 Craig - - - 212 231 505 374 373 272 527 Cape Pole - - - - - = - 92 123 29 Coffman Cove - = = 7 = 7 - - - 193 North Whale Pass - - - - - - - = 90 Point Baker - - 7 - - - - - = 90 Thorne Bay - - - - - - - ~ - 320 SOURCE: Derived from U.S. Census Bureau figures A number of community leaders around Alaska feel that the 1980 census under- represented the actual number of people in their communities and is inaccurate. Alternative population figures developed by other Agencies are presented below. A. Revenue Sharing The State Department of Labor in cooperation with the State Department of Community and Regional Affairs has developed a population census and projection model for use in allocating and disbursing revenue sharing funds to communities within Alaska. Although information is not available for unincorporated communities, the following information provided by the Division of Local Government Assistance, State Department of Community and Regional Affairs, is instructive in illustrating the magnitude of increase (or decrease) in population levels for Craig, Hydaburg, Kasaan, and Klawock. TABLE 3 Comparison of Census and Revenue Sharing Population Counts Population 1980 Population 1981 Community Census Data Revenue Sharing Increase or Decrease Craig 527 560 +62 Hydaburg 298 356 +19% Kasaan 25 64 +1562 Klawock 318 389 +222 Total 1,168 1,369 +17% The above 1983 revenue-sharing population data indicate that population levels in the incorporated communities on Prince of Wales Island have increased rather dramatically over their reported 1980 levels. (Information on Thorne Bay has been omitted since 1981 revenue-sharing population information was not collected. Since its incorporation into second-class status in mid-1982, revenue-sharing population data will be available in future years). TTT-2 a B. School Enrollment A second source of information which provides insight into a community“s population growth or decline is information regarding school enrollments. When used to supplement other information, school attendance information can be used to provide insights into population levels as well as age composition of individual communities. Table 4 represents trends in school enrollment information for selected communities on Prince of Wales Island. This information was provided by the Alaska State Department of Labor and illustrates trends in school attendance over the past decade. TABLE 4 School Enrollment Community 69-70 77-78 78-79 79-80 80-81 81-82 Craig 49 97 99 82 91 107 Hydaburg 44 64 51 53 58 57 Klawock 67 68 71 76 80 76 Thorne Bay 66 75 60 50 58 49 Whale Pass 18 36 28 26 25 23 Total 244 340 309 287 312 312 Although the above communities are not a 100 percent sample of school attendance on the Prince of Wales Island, the information presented above is indicative of the kind of increases in school enrollment that is occuring in Prince of Wales School systems. For example, in the communities sampled, the rate of increase from the 1969-1970 school year to the 1981-82 school year is III-3 28%. Although enrollment for the Prince of Wales Island schools sampled above as a whole remained at exactly the same level from 1980-1981 through 1981-82, the rate of growth occuring from the 1979-80 school year to the 1980-81 school year represents an increase of 9%. Interpreting these data must be undertaken with caution when attempting to _ relate school enrollment to community populations. Individual factors within the communities, such as the changing dage structure, occupational composition, etc., must be examined in order to draw conclusions regarding general population levels. C. Electoral Information A third source of information regarding population levels of communities is information on electoral participation. The Division of Elections in the Lieutenant Governor’s Office has provided the following information on electoral participation. It represents data on voting behavior and voter registration at the time of the 1980 general election. A factor which may serve to decrease the voter registration levels is that the information presented below represents data collected prior to the periodic “purges" of the voter registration lists. When individuals do not vote, unless they notify the Division of Elections of their desire to stay on the list of registered voters, their names are ‘removed from the registration lists. The following data are illustrative only. TABLE 5 Registered Voters/Voter Turnout Registered Voters Number of Votes Cast Community 1980 General Election 1980 General Election Craig 368 200 Hydaburg 160 98 Kasaan 66 22 Klawock 219 119 Thorne Bay 240 103 Point Baker 107 20 Port Alice 54 20 Naukati 66 22 Whale Pass 90 41 Total 1130 645 The following table provides an estimate of the total study area population, taking into consideration revenue sharing, school enrollment, voting trends and information supplied from local residents. Table 6 Population Estimates for Prince of Wales Island: 1981 Community Population Craig 560 Hydaburg 355 Kasaan 65 Klawock 390 Cape Pole 40 Coffman Cove 250 North Whale Pass 110 Point Baker 110 Thorne Bay 320 Other Settlements and Permanent Logging Camps 1,200* Total 3,400 *This estimate includes large logging camps in the study area; figures include seasonal work force and permanent, year-round residents. III-5 Ste see tee or tocieeenene mentee tee ten ent SAY STA AAA at emt Ad a ft mm PN Nm rte _ ene ete at a ee he AT at Lot Ls Bim cee hdd nt heen mts eet nefin a nih init eeent ee a ea AL SNOILOSPOud on Cc a 2D m vv me) U Cc re > 7 Oo = eee eae eiteamenemnnnemeiaint aetna tattae @stmat ntact mee ete tarent ae aac etree nanncermeeme seein sememate wees sorerary mowers menses eaumuareee-ennette ny itm tiwmeeneatae ewe" yreneimeneres menerecn at ndnaraunenetirer viens tty ated San wel Sram nia im reaacuteena oie rm IV. FUTURE POPULATION PROJECTIONS This section provides rough population projections for the study area based upon future employment estimates which are subsequently expressed as population figures by using "multipliers" now employed by the U.S. Forest Service and other Agencies. A high, medium and low projection is given for the ten year period ending in 1992. Data Data on probable future jobs was collected from the U.S. Forest Service, Village Corporations, Sealaska and State Agencies. The "Economics" chapter was also employed where applicable. It should be noted that figures on future jobs are sometimes highly speculative and are subject to corporate confidentiality. For this reason the "high, medium, low" method of projection has been utilized. Multipliers Creation of employment opportunities often results in retaining underemployed or unemployed members of the workforce who might otherwise leave the area. Creation of jobs also induces immigration of individuals to fill otherwise vacant positions. An individual migrating to am area to fill a fulltime job requires support industry services in that area, either for himself alone or for himself and family members. These support services may include shopping, transportation, utilities, government, education, housing, entertainment and related items. Thus a single fulltime job may create a number of support sector jobs and may therefore lead to a population increase greater than just the one employee or the one employee and his family. The current multiplier Iv-1 used by the U.S. Forest Service to equate total population from a fulltime job in Southeast Alaska is 2.46. This means that for every fulltime job in Southeast, there are calculated to be 2.46 fulltime residents. This figure may be high or low depending on the type of industry and the method used for providing support services to industry employees. For instance persons working fulltime in government in Juneau generally have their families in the area and receive all or nearly all of their support service requirements from local industry. The Juneau multiplier may therefore be higher than 2.46. In the project study area on the other hand, persons working in logging camps may not have their families with them and may receive nearly all of their support service requirements from Ketchikan or Seattle. So the multiplier for the study area may be somewhat lower than 2.46. For the purposes of the present study the figure 2.46 will be utilized as a multiplier for the ten year period. The multiplier may be somewhat low at present, but as local industry develops, less and less support services will be provided from distant locations, more and more from Prince of Wales Island service centers. In simple terms this is called the development of an “infrastructure.” As an area”’s industrial base and support industry infrastructure develops, the multiplier used for equating population from fulltime jobs increases. It is assumed that by 1992 the Prince of Wales Island multiplier will equal or exceed 2.46. The present multiplier is estimated to be about 1.70. This relatively low multiplier is used because of the large logging camps on Dall Island and North Prince of Wales which remain self-contained. Table 7 expresses study findings in numbers of jobs and people. Figure 1 graphically shows population projections through 1992. Table 7 headings are explained as follows: 1) "Industry" means all phases of a given economic sector; 2) "Jobs" means the total fulltime equivalent employment (2,000 hours per year) in a given industry as of the end of 1992; 3) "Multiplier" means the number of people who can be expected to be residents in the study area as a results on one fulltime job; 4) "Population" means the total number of study area residents given the previously-shown fulltime jobs in a given industry. Table 7 Population and Employment Projections Through 1992 INDUSTRY JOBS MULTIPLIER POPULATION Timber High 1,450 2.46 3,565 Medium 1,170 2.46 2,880 Low 870 2.46 2,175 Mining High 960 2.46 2,360 Medium 640 2.46 1,575 Low 320 2.46 785 Fishing High 1,000 2.46 2,460 Medium 750 2.46 1,845 Low 500 2.46 1,230 Tourism/ High 200 2.46 490 Service Medium 100 2.46 245 Low 50 2.46 125 Government High 600 2.46 1,475 Medium 400 2.46 985 Low 300 2.46 740 Other High 300 2.46 740 (Utilities, Medium 200 2.46 490 Construc- Low 100 2.46 245 tion, etc.) SUMMARY High 4,510 2.46 11,100 TOTALS Medium 3,260 2.46 8,020 Low 2,140 2.46 5,265 Current (Est) 2,000 1.70 3,400 TV=-3% = POPULATION PROJECTIONS FOR PRINCE OF WALES STUDY AREA THROUGH 1992 ' 12500 * 10000 7500 | 2O~- NA Frocvody 5000 1982 i 1984 | 1986 1988 - 1990 1992 KEY: t=eeses HIGH GROWTH 77477 MEAN GROWTH (ANTICIPATED) YEAR ora ae | OW GROWTH aka a a Reber enter aemede nanneie Wnts hit! OR AAR Rint Aine OO NO CART Ae ANS IS ONION Na rs om re a he ke ae we eden sot ste lecehinne ana Bol Lae mL Oe None wk acetate ah A SEA NT tank mn DANN ASTON LUN SOE ANE Ce hat At RSL RBS BSD a a Pa rehire I Aas emt a Da © recreate ee. PROFILES | | V. COMMUNITY INSTITUTIONAL. Vv. Community Institutional Profiles The major governmental jursdictions on Prince of Wales Island include local governments, the State of Alaska (whose influence is largely felt through the provision of financial support) and to a lesser extent the Federal government, through the U.S. Bureau of Indian Affairs and the U.S. Forest Service. No discussion of government institutions in Southeast Alaska would be complete without a brief history of the Indian Reorganization Act and its implementation. (See Volume II for additional analysis of the Act.) The Indian Reorganization Act was passed in 1934 and amended in 1936 to include Alaskan Natives. It constitutes a significant piece of Indian-related legislation because of provisions it contains granting rights of home rule to Indians and permitting charters of incorporation for business purposes. Hydaburg became the first village in Alaska to establish an IRA Council. When the IRA was applied to Alaska it was modified to meet the non-reservation condition of Alaska Natives. The Alaska amendments to the IRA permitted the Secretary of Interior to designate public lands actually occupied by Indians either as new reservations or as additions to existing reservations. The Interior Department immediately instituted an effort to organize villages under an IRA form of government. By early 1941, 38 Native villages had formed IRA councils and business charters, although none were associated with reservations. In 1943 however Secretary of the Interior Ickes withdrew almost one and a half million acres in two reserves. The Karluk Reserve near Kodiak Island included within its boundaries all the water within 3000 feet of shore. This drew the ire of fisherman and packers who eventually filed suit which called into question the permanent rights that Natives had to such reserves. At about the same time the Interior Department announced plans to establish similar reserves on the lands and waters around the Southeast communities of Klawock, Hydaburg and Kake. Secretary Ickes granted between 77,000 and 100,000 acres to each of the three communities; the grants included land, water and exclusive fishing privileges. Kake and Klawock both rejected their reservations, while Hydaburg finally accepted its reserve in 1949. In May, 1951 the Secretary of Interior filed suit against the Libby McNeil and _ Libby packing company, enjoining it from using a fishtrap on the Hydaburg reserve. The Alaska District Court decided against the United States and invalidated the Hydaburg reserve. It soon became apparent that, for political and judicial reasons, attempts to protect aboriginal title would have to wait for more comprehensive legislation. Although passage of certain laws, as well as certain court cases, limited somewhat the scope of authority of IRA governments (Public Law 83-280 extended State jurisdiction over Natives and Native lands for criminal and civil matters), IRA governments often provided the only organized entity in many Alaskan communities. And this has occured in spite of one problem that has traditionally hampered Native Alaskan governments -- the absence of a clearly-designated territory subject to their authority. In spite of the fact that over 70 IRA governments were eventually set up(Case, 1978), the reservations contemplated under the Alaska amendments to the IRA never materialized. Even though the IRA governments could provide various services to their resident populations and exercise certain authorities, the lack of well-defined boundaries inhibited their ability to exercise police, taxing and other governmental powers. The IRA Council was often the only political body in many communities, and they governed with broad jurisdiction. In addition to functions of local government, IRA organizations were often successful in promoting Native economic development and self-sufficiency. The Act permitted Natives to organize tribal business enterprises and to obtain loans from a revolving loan fund in order to finance those businesses. An example of this type of expertise is the Hydaburg Cooperative Association. The Bureau of Indian Affairs, under the Indian Reorganization Act loaned money to IRA-chartered corporations at Hydaburg, Klawock, Kake and Metlakatla to construct and operate fish canneries. According to Case (1978) these canneries began to suffer severe financial losses in the 1960°s. They fell behind in repayment of IRA loans, and the Hydaburg operation was consolidated with the Klawock cannery, supposedly for more efficient operation. But the Hydaburg Cooperative Association sued the Secretary of Interior over the handling of the cannery consolidation, and operation of the Hydaburg cannery reverted to the Hydaburg Cooperative Association. According to the Bureau of Indian Affairs (1978), the Hydaburg Cooperative Association also operates a relending program whereby borrowed funds are loaned by the Association to boat owners and the local cannery operation for maintenance and capital improvements, thus contributing to community stability and economic development. While Alaska IRA governments have been in the process of being gradually eclipsed by the establishment of State-incorporated municipal governments, it should not be overlooked that IRA governments played a critical role in the political and economic development of Prince of Wales Island communities. Additionally issues such as subsistence have Leen cause for a resurgence of interest in IRA Councils in Hydaburg and Craig. A. Local Government Several Alaskan communities, especially in Southeast Alaska, were organized as municipalities prior to Statehood. A Territorial Act passed in 1915 permitted Indian villages to organize as units of local government, although their powers were limited. The transition from the form of government existing under native culture to the structure of Western-style governments was more gradual in Southeast Alaska than elsewhere. Tlingit and Haida culture possessed systems of leadership and social control which functioned as governments for the various groups. Leaders were not formally elected, but usually chosen informally by the group for certain characteristics such as their superior knowledge, hunting ability and concern for the general welfare of the tribe, clan or village. Councils were both formal and informal but were usually made up of elders of the group or its accepted leaders. Unlike other aspects of Indian culture, missionaries often tried to preserve clan and chief systems which they found useful in exercising authority. The transition from traditional Tlingit and Haida governmental systems began with church clubs and other forms of voluntary organizations where electing officers, conducting meetings by parlimentary procedure, appointing committees, etc., began to gradually supplement traditional institutional patterns. These changes began to formalize Native cultural institutions into westernized political institutions. Councils of elders were formalized as village councils, chosen by popular election. Although in many villages formal and informal power systems coexist side by side, westernized political structures which raise revenues, pass and enforce ordinances and perform the other functions characteristic of government power are becoming increasingly institutionalized in Southeast Alaskan communities, including those on Prince of Wales Island. 1. School Systems on Prince of Wales Island. One of the most important factors of government is education of the young to permit them the opportunity to become fully-functioning members of society. Children living on Prince of Wales Island attend school under the jurisdiction of one of the following school jurisdictions: Craig School District, Klawock School District, Hydaburg School District or the Southeast Island Rural Education Attendance Area. Table 8 shows communities served by the Southeast Island REAA and average daily enrollment for FY 82. Table 8 Southeast Island REAA Enrollment Average Daily Community Enrollment, FY 1982 1. Howard Valentine ..cccccccccccccccecceee 42 2. Labouchere Bay .cccccccscccccccecccceves 32 3. Port Alexander .occccccccccccscccccccees 12 4. Rowan Bay cececcccccccccsccccccscccccces 18 Se Thorne Bay ccccccccccccccccccccccesececse 50 6. Whale Pass wcccccccscccccccccccecccceeee 33 7. Cape Pole cccccccccccccccccccccccscecces 20 8. El Capitan .ecccccccccccccccccscccccccce 16 9. Gildersleeve .ecccccceccccccccccccccsoee 15 10. Harbor Log cccccccccccccccccccccccccccce 6 11. Kasaan ccccccccccccccccccccccccccsscccce Ll 12. Long Island ...... 22 13. Meyers Chuck .. 8 14, Naukati .eccccccccccccecccescccscccccese 10 15. View Cove coccccccccccccccccccsececscoce 16 Total 311 In addition, the Alaska Education Directory, 1982, provides the following information on the other school districts on Prince of Wales Island. Table 9 School District Employment A. Craig City School District Craig Basic School Grade Span - Kindergarten through 6th grade Professional Personnel - 10 Total Facility Personnel - 12 Prince of Wales High School Grade Span - 7th grade through 12th grade Professional Personnel - 12 Total Facility Personnel - 13 B. Hydaburg City School District Hydaburg Elementary School Grade Span - lst grade through 8th grade Professional Personnel - 5 Total Facility Personnel - 5 Hydaburg High School Grade Span - 9th grade through 12th grade Professional Personnel - 6 Total Facility Personnel - 6 C. Klawock City School District Klawock Elementary School Grade Span - Kindergarten through 6th grade Professional Personnel -7 Total Facility Personnel - 8 Klawock Junior High School Grade Span - 7th grade through 9th grade Professional Personnel -4 Total Facility Personnel - 4 Table 10 lists the approved budgets for the school districts on Prince of Wales Island for the 1983 fiscal year. Table 10 School District Budget School District FY 83 Budget 1. Craig City : $1,025,935 2. Klawock City $1,230,511 3. Hydaburg $ 836,603 4. Southeast Island REAA $4,280,100 Total $7,373,149 Total enrollment for the school districts serving Prince of Wales Island communities during the 1982-83 year is approximately 551 (including Southeast Island REAA students attending school in other communities such 7 Meyers Chuch and Gildersleeve). The budget of $7,373,149 represents a student per capita expenditure of approximately $13,381.00. This represents a substantial investment by the State of Alaska, Prince of Wales Island School Districts and local community residents in the education, future productivity and social integration of young people attending school in Prince of Wales Island School Systems. 2. Municipal Government As population on Prince of Wales Island has increased and the socioeconomic environment has become more complex, local community governments are being increasingly called upon to provide a greater level and variety of municipal services. In response to this need, for example, the community of Thorne Bay recently voted to incorporate into 2nd class city status. This will allow the w_Q community to adopt certain powers (such as tax authority) in order to better meet the needs of community residents. As a result local governments are becoming more and more differentiated, or specialized, in the functions and roles they perform and provide for their respective communities. In order to provide an overview of the services and facilities provided by each municipal government on Prince of Wales Island, the Alaska Municipal Officials Directory, 1982, was consulted to identify the functions currently assumed by each organized community on Prince of Wales Island. The preliminary listing is provided immediately below. Thorne Bay is omitted owing to the lack of information on the governmental structure. A. Craig Political and Advisory Institutions Mayor , City Council Planning and Zoning Commission School Board Administrative Functions Administrators Clerk/Treasurer Attorney Police Chief Emergency Preparedness Director Health Officer Public Works Director Harbormaster Public Utility Manager School Superintendent Parks and Recreation Director Purchasing Agent Craig is a Ist class city and was first incorporated in 1922. It currently has a sales tax rate of 3% and manages the following municipally-owned utilities: water, sewer, docks, harbor, and refuse collection. According to the Craig Community Profile developed by Dowl Engineers (1981) for the Alaska Department of Community and Regional Affairs, the community employs 13 people full time in the general municipal government. B. Hydabu Political and Advisory Institutions Mayor City Council Planning and Zoning Commission School Board Administrative Functions Administrator Clerk/Treasurer Health Officer Public Works Foreman School Superintendent Hydaburg is a lst class city incorporated in 1973. The municipal government manages the following community-owned facilities: water, dock, refuse collection. The Hydaburg Community Profile states that the government employs 10 individuals. C. Klawock Political and Advisory Institutions Mayor City Council Administrative Functions Clerk/Treasurer Police Chief Fire Chief Emergency Preparedness Director Health Officers Water and Sewer Superintendent School Superintendent Purchasing Agent Klawock is a lst class city. It first incorporated in 1929. It has established a 2% sales tax and manages the water system and refuse collection. The municipal government employs seven full-time employees. D. Kasaan Political and Advisory Institutions Mayor City Council Administrative Functions Administrator/Clerk Treasurer Attorney Fire Chief Community Health Representative Parks and Recreation Director Kasaan is a 2nd class city which incorporated in 1976. It has imposed a 2% sales tax. The Kasaan city government has five employees. In order to give an idea of the level of municipal services provided by the municipal governments on Prince of Wales Island, municipal budget and State revenue-sharing figures are provided in Table ll. Table 11 Municipal Budgets Community FY_ 1983 FY 1982 FY 1981 FY 1980 FY 1979 FY 1978 Craig $250,000 $142,110 $80,711 $30,415 $26,676 $15,025 Hydaburg 260,202 24,396 25,958 16,497 13,262 7,328 Klawock (being 24,527 24,021 18,049 13,964 9,739 Kasaan developed) 24,398 23,581 4,575 4,059 4,475 Point Baker 23,194 24,571 - - - Pt. Protection 23,194 24,571 - - - Thorne Bay 23,194 24,571 - - - Sources: City officials and Division of Local Government Assistance, Alaska Department of Community & Regional Affairs. Note: Fiscal Year 1981 was the first year that unincorporated communities became eligible for revenue-sharing funds under State law. wo. B. Federal Institutional Role The federal government administers a variety of programs and projects applicable to Prince of Wales Island communities. For the most part these are generally in the form of project funding administered through a regional or local contractor such as the Tlingit-Haida Central Council or the Southeast Alaska Reginal Health Corporation. The major exception is an agency within the U.S. Department of Agriculture: The U.S. Forest Service. This agency has undertaken gradual institutional elaboration since it first established a presence on Prince of Wales Island (in Craig, around 1919) and now administers two District Ranger’s offices and a number of smaller work centers in order to provide facilities for personnel and equipment in managing the Tongass National Forest lands on Prince of Wales Island. Although the Bureau of Indian Affairs recently closed its branch of roads in Hydaburg, it and other Federal departments still provide funding to a number of programs and projects on Prince of Wales Island. For example the U.S. Department of Health and Human Services, through the Indian Health Service, provides funding for a number of health-related programs, most of which are provided on contract through the Southeast Regional Health Corporation. This non-profit corporation administers a number of community-level programs such as Emergency Medical Technician training and community health aides and provides funding for the construction of health clinics and the purchase of ambulances. The Department of Housing and Urban Development provides funding (through the Tlingit-Haida Housing Authority) for housing programs in Native communities. Other Federal Agencies also provide financial support for Tlingit-Haida administered programs. The U.S. Department of Commerce, Office v-1? of Development Planning and the U.S. Department of Labor, Manpower Division, have funded specific programs, such as CETA training and employment in Southeast communities. The two federal agencies with the greatest presence on Prince of Wales Island are the U.S. Forest Service and the U.S. Bureau of Indian Affairs. 1. The U.S. Forest Service President Theodore Roosevelt desired information as to the desireability and possibility of creating forest reserves in Alaska. In 1902, in response to his request, George Emmons wrote a report describing forest conditions in Alaska and recommending the creation of a Forest Reserve. Emmons wrote about a number of specific areas, and his report is paraphrased by Rahestraw (1981): "Prince of Wales Island, the largest, contained an abundance of pedal land, including substantial quantities of red-cedar and yellow-cedar as well as spruce and hemlock. There were only about 800 Natives and no white settlement of any size. There were small sawmills at Hawkan, Shahan, Kasaan Bay, and Hetta Inlet and a few canneries." On August 20, 1902, the Alexander Archipelago Forest Reserve was established by President Roosevelt’s proclamation. Through the years additions and name changes resulted in creation of the Tongass National Forest which included all of Prince of Wales Island. Very early on multiple-use policy was in operation. Timber sales were being let wo194 and mining operations were progressing. In 1909 the Supervisor of the Forest Reserve, William Langille, concerned with the effect of logging on fish stocks, developed cooperative regulations with the Bureau of Fisheries to preserve salmon runs. These regulations prohibited logging on streams with established hatcheries, including creeks in the Klawock and Hetta Inlet areas. Although timber harvest for commercial and private use occured during the 1920°s and 1930s, it was the advent of World War II in the 1940’s and the 50-year timber sale contracts in the early 1950°s that spurred timber harvest, road building and associated management activities. Concurrent with timber operations the Forest Service has made important contributions to the preservation of Native cultural artifacts, especially totem poles. As early as 1914 the Forest Service recommended that funds and a program be instituted to preserve the “exquisite specimens of Native Art" in the pole and house construction at Old Kasaan. Then again in the 1930%s Forest Service Architect Linn Forrest supervised Civilian Conservation Corp teams composed largely of local Natives in the restoration and duplication of many totem poles in Hydaburg, Old Kasaan, Tuxekan and in other areas in and around Prince of Wales Island. This project was largely responsible for preserving a large number of Native totem poles currently residing in a variety of totem parks on Prince of Wales Island and around the rest of Southeast Alaska. As early as World War I a sawmill with 35,000 board feet capacity was constructed for timber being harvested annually off the Tongass National Forest. By 1979, with the passage of the Alaska National Interest Lands Conservation Act, 450 million board feet per year were mandated to be cut on the Tongass National Forest annually, after reaching highs of approximately 600 million board feet 20 years earlier. During this period (1940-1979) logging camps were established; road construction boomed, and timber harvest flourished. The Forest Service institutional structure became increasingly elaborated during this period. The first Ranger District was established in Craig (initial Forest Service preserve there began about 1919). Three Forest Service Supervisor headquarters were eventually designated for the Tongass National Forest; one each at Sitka, Ketchikan and Petersburg. In an experimental reorganization in 1973 the Ranger District Structure was dropped but later re-instituted in 1981. Prince of Wales Island housed headquarters for the Thorne Bay Ranger District (in Thorne Bay) and the Craig Ranger District (in Craig). A third District, the North Prince of Wales Ranger District, was later consolidated with the Thorne Bay Ranger District (1982). Currently the Agency has a number of temporary work centers on Prince of Wales Island in addition to the Ranger District Headquarters. They are located at Coffman cove, Naukati (Tuxecan) Whale Pass, El Capitan and Labouchere Bay. Additional work centers are located at Port Alice on Heceta Island and Cape Pole on Kosciusha Island. Besides timber harvest and road building activities, the Forest Service manages the South Prince of Wales Wilderness Area, approximately 21 public use recreation cabins, archaeological excavations and fish and wildlife habitat enhancement activities. Until recent budget cuts were implemented, the Forest wrote Service managed an active Youth Conservation Corps/Young Adult Conservation Corps program. Currently, the Forest Service has a variety of facilities and employees in Craig and Thorne Bay, the two Ranger District Headquarters. facilities and employees at these headquarters. Table 12 U.S. Forest Service Headquarters Statistics Craig Facilities: 3 Office Bunkhouse Shop Facility Thorne Bay Facilities: 7 Office Bunkhouse Bunkhouse Shop Facility Storage Facility Storage Facility Equipment Building Employees: 11 District Ranger Wildlife Biologist Supervisory Forestor Pre-Sale Forester Forester Timber Management Assistant Maintenance Foreman Maintenance Worker Other Resource Assistant Business Management Assistant Clerk-Typist Employees: 14 District Ranger Landscape Architect Maintenance/Administrator Pre-Sale Forester Personnel Clerk Forestry Technician District Clerk Forestry Technician Pre-Sale Forester Maintenance Worker Timber Management Assistant Timber Sale Officer Wildlife Biologist Fisheries Biologist Table 12 shows The Forest Service is in the process of constructing a new administrative complex on a site above and behind the community itself. In addition with the consolidation of the North Prince of Wales Ranger District and the Thorne Bay District, the Thorne Bay District may expand the number of employees under its jurisdiction in the near future. Finally the Forest Service also employs a number of other employees on a temporary basis during the summer field season. ‘ VI. REFERENCES Alaska Department of Education 1981. Alaska Education Directory - 1982. Alaska State Department of Education, Juneau, Alaska Case, David S. 1978. The Special Relationship of Alaska Natives to the Federal Government. The Alaska Native Foundation, Anchorage, Alaska Alaska Department of Education 1981. Alaska Education Directory - 1982. Alaska Department of Education, Juneau, Alaska Alaska Department of Community and Regional Affairs and Alaska Municipal League N.D. Alaska Municipal Officials Directory - 1982. Alaska Municipal Legaue, Juneau, Alaska Rakestraw, Lawrence W. 1981. A History of the United States Forest Service in Alaska. Alaska Historical Commission, Anchorage, Alaska Clark, Gerald H. 1980. Cultural Resource Notes No. l. U.S.D.A. Forest Service, Alaska Region Kresge, David T., Thomas A. Morehouse, and George W. Rogers 1977. Issues in Alaska Development. Unversity of Washington Press, Seattle Langdon, Steve 1978. Comparative notes on Tlingit and Kaigani adaptation to the West Coast of Prince of Wales Archipelago. Paper prepared for the 5th Annual Alaskan Anthropoligical Associ- ation Meeting, March 17-18, 1978. Sealaska Corporation 1975. Native Cemetary and Historic Sites of Southeast Alaska. Wilsey and Ham, Inc., Seattle U.S. Bureau of Indian Affairs 1978. Hydaburg Its History, Population, and Economy. U.S. Bureau of Indian Affairs, Planning Support Group, Billings, Montana NBBJ Management Consulting Services 1976. Craig Comprehensive Plan. City of Craig, Craig, Alaska CH2M Hill 1981. Hydaburg Coastal Zone Management Program Resource Inventory - Phase I (Draft). City of Hydaburg, Hydaburg, Alaska