Legislature(2009 - 2010)BARNES 124
03/17/2009 10:15 AM House FISHERIES
| Audio | Topic |
|---|---|
| Start | |
| Overview(s): the Changing Arctic - Issues on the Horizon for Coastal Communities in Western Alaska | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
ALASKA STATE LEGISLATURE
HOUSE SPECIAL COMMITTEE ON FISHERIES
March 17, 2009
10:18 a.m.
MEMBERS PRESENT
Representative Bryce Edgmon, Chair
Representative Craig Johnson
Representative Wes Keller
Representative Cathy Engstrom Munoz
Representative Robert L. "Bob" Buch
MEMBERS ABSENT
Representative Charisse Millett
Representative Scott Kawasaki
COMMITTEE CALENDAR
^OVERVIEW(S): THE CHANGING ARCTIC - ISSUES ON THE HORIZON FOR
COASTAL COMMUNITIES IN WESTERN ALASKA
PREVIOUS COMMITTEE ACTION
No previous action to report
WITNESS REGISTER
CHRIS HLADICK, City Manager
Unalaska, Alaska
POSITION STATEMENT: Participated in the discussion regarding
the changing Arctic.
ARNE FUGLVOG, Legislative Assistant
Senator Lisa Murkowski
Fisheries Policy
U.S. Senate
Washington, D.C.
POSITION STATEMENT: Testified on behalf of Senator Murkowski
during the discussion on the changing Arctic.
REAR ADMIRAL ARTHUR EUGENE BROOKS, Commander
U.S. Coast Guard District 17
Juneau, Alaska
POSITION STATEMENT: Participated in the discussion regarding
the changing Arctic.
DAVID BENTON, Executive Director
Marine Conservation Alliance (MCA)
Juneau, Alaska
POSITION STATEMENT: Participated in the discussion regarding
the changing Arctic.
ACTION NARRATIVE
10:18:21 AM
CHAIR BRYCE EDGMON called the House Special Committee on
Fisheries meeting to order at 10:18 a.m. Representatives
Edgmon, Buch, and Keller were present at the call to order.
Representatives Munoz and Johnson arrived as the meeting was in
progress.
10:18:45 AM
^OVERVIEW(S): THE CHANGING ARCTIC - ISSUES ON THE HORIZON FOR
COASTAL COMMUNITIES IN WESTERN ALASKA
CHAIR EDGMON announced that the only order of business would be
an overview of the issues on the horizon for coastal communities
in Western Alaska.
10:20:30 AM
REPRESENTATIVE EDGMON said that policy issues related to the
future of the Arctic are being considered on the state, federal,
and national fronts.
10:21:01 AM
CHRIS HLADICK, City Manager, told the committee that his job is
to make recommendations to the Unalaska City Council regarding
the projects that come forward to support the infrastructure
needed for commercial fishing.
10:23:24 AM
MR. HLADICK, in response to Chair Edgmon, discussed the
importance of establishing a point contact for Arctic issues on
the state level, so that municipal officials can keep apprised
of related developments and planning.
10:24:14 AM
ARNE FUGLVOG, Legislative Assistant, Senator Lisa Murkowski,
Fisheries Policy, U.S. Senate, told the committee that he works
on the following issues: fisheries, transportation, and natural
resources. He said he has spent a lot of time on Arctic issues.
He said he would give an overview of what has been going on, on
the federal level, in hopes of stimulating conversation. He
related that ultimately he would like to address how
communities, the legislature, and the state can get involved.
MR. FUGLVOG emphasized Senator Murkowski's involvement with
Arctic issues. As ranking member on the Energy Committee, she
plays a large role in the development on the North Slope,
Chukchi, and North Aleutian Basin. The first priority of
Senator Murkowski, he said, would be to ratify the United
Nations Law of the Sea Treaty; it is the senator's goal to do so
this year. Another issue is the development of the new U.S.
Arctic policy, released by the Bush Administration on January 9
this year; the last policy made was in 1994. Discussion will
take place with Secretary of State Hillary Clinton to decide how
to implement policy, what Alaska's priorities are, and what is
expected out of the current administration.
10:29:57 AM
MR. FUGLVOG said the Senator supports what the U.S. Coast Guard
would like to do in the Arctic. Her staff met with the
ambassador of Canada and spoke extensively about Arctic
cooperation. Except for disagreements regarding the sovereignty
of the Northwest Passage and the maritime boundary in the
Beaufort Sea, Canada wants to work hand in hand with the U.S.,
he related. Meetings occur periodically with many of the Arctic
coastal nations, including Iceland, Denmark, Norway, and
Greenland. Russia provides a bigger challenge, he said.
MR. FUGLVOG said Senator Murkowski got Senate Joint Resolution
17 passed through U.S. Congress, which directed the U.S. to
initiate international discussions and take necessary steps with
other nations to negotiate an agreement for managing migratory
and "transboundary" fish stocks in the Arctic Ocean. A primary
motivator for this, Mr. Fuglvog said, was the action by the
North Pacific Fishery Management Council to develop an Arctic
fisheries management plan (FMP) to put a moratorium on fishing
north of the Bering Sea until stock assessments are made and
there is a better handle on what type of fisheries the council
would allow. That proaction by the council has been heralded
both internationally and domestically by "pretty much everybody"
as a positive step in protecting the Arctic resources. The
state department has taken the council's Arctic FMP overseas to
present the idea to some of the other Arctic nations. Mr.
Fuglvog said it will be challenging to get all those nations to
agree, but he called the effort worthwhile. He added that he
anticipates it will take multiple years to reach agreement, but
the effort is off to a good start.
10:33:16 AM
MR. FUGLVOG next discussed what various agencies are doing on
the federal and state level. He talked about an effort by the
Army Corp of Engineers to undertake a study of harbor needs of
all the ports in Alaska, including such issues as infrastructure
and ports of refuge. The senator has supported that effort and
has tried to assist by authorizing and appropriating funds to
pay for the study. He mentioned U.S. Coast Guard, waterway, and
Aleutian Island risk assessments that he thinks are currently
underway. He opined that the state needs those assessments both
in the Chukchi and Bering Seas, and Senator Murkowski's office
is ready to assist in that process. He noted that there are
other things that need to occur before there is more activity in
the Arctic.
MR. FUGLVOG related that Senator Murkowski was the U.S.
Representative on the Arctic parliamentarian. The U.S. also
sits on the Arctic Council with a representative of the state
department. He said, "We want to continue both those forums."
10:36:04 AM
MR. FUGLVOG reported that a new ship will be headed to the
Arctic, which will be a National Science Foundation (NSF) ship
to replace the Alpha Helix that has been in Seward. In the
stimulus bill there is approximately $150 million for the
construction of this ship, which is called the Alaska Regional
Research Vessel (ARRV). The ship will be run by the University
of Alaska and paid for by NSF. The ship is not a heavy ice
breaker, but will serve as a great scientific platform, he said.
It will also have the capability of doing fisheries surveys,
although perhaps not full bottom trawling. The ship is expected
to be built in three years.
10:37:28 AM
MR. FUGLVOG said a hearing on the Arctic will come before the
U.S. Foreign Relations committee in early May; a first for the
committee. A number of Alaskans will be able to participate.
The Arctic policy is non-partisan. Mr. Fuglvog said he does not
anticipate that the Arctic policy will change much. It is broad
and comprehensive enough to last a decade or more. The
preceding policy held for 14 years.
10:40:09 AM
CHAIR EDGMON asked Mr. Fuglvog to comment regarding the opening
of "the passage way."
10:40:33 AM
MR. FUGLVOG said presently what Alaska is doing is more vague
than what other nations are doing, regarding the Arctic. He
encouraged the committee to explore better ways to lead the
effort. It would be helpful for the D.C. delegation to have a
coordinator, working group, or agency to head this issue on
behalf of the state, he relayed. Multiple agencies are
involved; however, the general public is not particularly
involved or informed. Having an Arctic contact to call would be
of great help, he said. A person in the legislature or the
governor's office may also be an option for this type of
support. He concluded, "I want to make sure that the state is
just as involved as the feds are up in Alaska."
10:45:29 AM
MR. FUGLVOG, in response to Representative Buch, said the
regional ports and harbors projects are via the Army Corps of
Engineers, not Homeland Security. Funding is important for
these projects, and should be taken out of competition with
Lower 48 dock and harbor needs. The focus is very different. A
comprehensive infrastructure will need to be established to
support the traffic that will eventually be seen in the Bering
Strait. He said it will take a lot of money to do a port and
harbor study in every region of Alaska.
REPRESENTATIVE BUCH asked about the disposition of the studies.
MR. FUGLVOG replied that funding has been achieved but further
headway has not been made. Preliminary stages are still being
worked out, with everything a year or two away. In response to
a follow-up question, he said the initial appropriation was only
about a couple million dollars, which is not a lot of money for
a study of this measure. The Army Corps has estimated a need
for $5-$10 million. The Senator is working to obtain larger
appropriations now. He offered his understanding that another
half million dollars were received in the fiscal year 2009 (FY
09) Omnibus. In response to a request, he said he would send
information to the committee regarding how the initial
appropriation has been utilized, and he expressed willingness to
send any other information requested.
10:51:21 AM
REAR ADMIRAL ARTHUR EUGENE BROOKS, Commander, U.S. Coast Guard
District 17, presented a PowerPoint presentation. He said the
big issue is the retreat of the sea ice, which opens up
increasingly more sea for shipping; in 2007 the ice was at a
record low. Challenges occur because the Arctic does re-freeze
each season, which creates a hazardous environment; however,
when there is no ice, shipping can occur.
10:53:53 AM
REAR ADMIRAL BROOKS indicated slide 4, which shows future
maritime Arctic shipping routes. The majority of current
shipping is on the European side. The reason for shipping
across the top, instead of through the Panama or Suez Canals, is
because it is half the distance. Currently commercial ships are
[taking longer routes] because the Arctic route is still
hazardous and Lloyds of London will not insure a vessel
traveling that route. When the top route is used, the Bering
Strait will become "the new choke point of the planet." In
response to Representative Buch, he explained that the boxes
shown on slide 4 depict the "choke points" in the transit lines
- the straits where ice and vessel traffic are of the utmost
concern.
10:55:55 AM
REAR ADMIRAL BROOKS, regarding slide 5, said the challenge of
the Bering Strait is that it is a well-known strait. It is half
Russian and half American. There is an assumption that a
traffic management scheme will be necessary in 7-10 years to
avoid the trouble large ships run into when they are not
managed. Any of the ships could cause a large oil spill just
through propulsion fuel.
10:56:57 AM
REAR ADMIRAL BROOKS turned to slide 6, which addresses resource
development. He said it is estimated that up to 25 percent of
the world's hydrocarbons are in the Arctic, with as many as $33
trillion in value inside 200 nautical miles - inside the
exclusive economic zones of the nations of the world. He
indicated that the majority of the resource is in the Chukchi
Sea. There will be pressure for development.
10:57:44 AM
REAR ADMIRAL BROOKS highlighted slide 7, which shows photos of
the Red Dog Mine. He stated that that mine is the world's
richest zinc mine. The water is shallow and there are no ports.
Large barns are filled with lead and zinc, and for two months
each summer, 80,000-ton ore ships anchor 11 miles off shore and
are loaded. He said Northern Alaska is rich in minerals, and
extracting minerals seasonally could be done in 30 places.
10:59:02 AM
REAR ADMIRAL BROOKS turned to slide 8, and talked about the
increase of eco-tourism in Northern Alaska and Antarctica.
"Pocket cruise ships" have been entering the Arctic. He talked
about the sinking of the M/S Explorer in Antarctica, and said it
is a challenge to keep these ships safe. There have been no
casualties in the American Arctic, he noted.
11:00:34 AM
REAR ADMIRAL BROOKS showed slide 9, regarding the northern
migration of fish stocks, including pollock and other ground
fish. Salinity is changing and salmon are decreasing, which are
signs of animals adapting to climate change. Rear Admiral
Brooks said it will be a challenge for him and for NOAA
enforcement to ensure that no one fishes in the Arctic once the
North Pacific Fishery Management Council puts into effect its
management plan for the Chukchi and Beaufort Seas. He mentioned
threatened and endangered species, as shown on slide 10.
11:01:37 AM
REAR ADMIRAL BROOKS, regarding slides 11 and 12, discussed
working with Native Alaskans on tribal, community, borough, and
corporate levels and his focus on protecting the subsistence
lifestyle of these people. In response to Representative Buch,
he explained that Executive Order (EO) 13175 is a requirement by
former President Dwight D. Eisenhower for a federal agency to
consult with Native tribes before taking any actions that would
materially affect their interest or well being. He offered
further details. He explained that part of his job is to
prepare the Native Alaskans living in the Northern part of the
state for the eventual appearance of large ships.
11:04:21 AM
REAR ADMIRAL BROOKS moved on to slide 13, which highlights
challenges in the U.S. Arctic. He noted that the last full
service port for ships going north is Dutch Harbor. Although
the Corp of Engineers has done some harbor work in Nome, the
large ships still cannot get into that harbor. Beyond Nome,
there is no pier or port. As ships funnel in or out of the
Bering Strait, he noted, their options for support, maintenance,
or repairs are limited.
11:06:16 AM
REAR ADMIRAL BROOKS displayed slide 15, which lists Arctic
operations conducted by the U.S. Coast Guard in the summer of
2008. He said the U.S. Coast Guard made efforts to complete
exercises in the northern areas that are routine in southern
waters, but found them to be either tough or impossible. For
example, the helicopters were too small to handle the great
distances in the north, while the boats were too large. He
described the exercises and the levels of proficiency achieved.
He highlighted that the Canadian Coast Guard was involved in
these exercises.
11:09:04 AM
REAR ADMIRAL BROOKS talked about the lessons learned, as shown
on slide 16. Infrastructure is insufficient and there is a lack
of effective communication. Also, there is a lack of ice-
hardened vessels. The U.S. Coast Guard relies on input from
indigenous people.
REAR ADMIRAL BROOKS discussed pending operations, as shown on
slide 17. There are plans to work a spring patrol for the Polar
Sea, into the Bering Sea, in order to get ice breaking training,
and perhaps to make a port call on Russia. He stated his intent
to work in cooperation with the Russians, rather than in
competition with them. Admiral Brooks spoke of resuming the
Arctic "main awareness" flights as soon as the ice breaks and
deploying larger helicopters and smaller boats in Nome and
Barrow this summer. He said the U.S. Coast Guard will continue
its waterways analysis and outreach in the Arctic.
11:10:35 AM
REAR ADMIRAL BROOKS talked about the United States being an
Arctic nation and the responsibilities and obligations that
carries. As shown on slide 18, there is a balance between
developing the area, helping indigenous people maintain their
culture and subsistence way of life, and maintaining a pristine
environment that is being stressed by climate change.
Currently, he said, there is no way to achieve that balance.
Every Arctic nation is part of this conundrum.
11:12:22 AM
REAR ADMIRAL BROOKS turned to slide 19, which addresses U.S.
Arctic policy goals. The U.S. policy regarding the Arctic
region is being reviewed by the Obama Administration.
11:13:25 AM
CHAIR EDGMON asked if there are any prospects for stimulus
package money to be put toward this overall effort.
11:13:36 AM
REAR ADMIRAL BROOKS responded that he was amazed that ice
breakers were removed from the stimulus package as "pork." He
said that clearly shows the ignorance that exists regarding the
Arctic. He said the question to answer is in regard to how much
presence the federal and state governments want in the Arctic.
Once someone decides to build a port, the question will be how
much security is needed for that port and how that will fit
within the regime of the Maritime Transportation Security Act.
11:15:56 AM
REAR ADMIRAL BROOKS, in response to Co-Chair Keller, reiterated
that the U.S. Coast Guard works closely with Canadian forces.
He noted that Joint Task Force North is the Canadian military
component that does surveillance and security in the Canadian
Arctic. He said working together is imperative, because no one
has enough resources to deal with the issue of the Arctic alone.
He noted that there is a boundary dispute that does exist in the
Beaufort Sea, but that is not an issue that is addressed by
either the Canadian or U.S. Coast Guard.
11:17:49 AM
REPRESENTATIVE BUCH asked what Admiral Brooks knows about the
Russians currently building 100 double-bottomed, ice-breaking
liquefied natural gas (LNG) tankers.
11:18:09 AM
REAR ADMIRAL BROOKS replied that the Russians are the most
experienced Arctic nation, as they have the most Arctic
frontage, and they want to identify and protect their national
interest. He reported that he is in daily contact with his
Russian counterparts, primarily regarding fishing issues. He
stated that it is in the best interest of the United States to
communicate with Russia, and he opined that, given Alaska's
history with Russia, it is easier for Alaska to do so.
11:19:59 AM
REPRESENTATIVE BUCH remarked that there is no choice but to work
with Russia. He asked if Rear Admiral Brooks currently works
with Russia regarding that country's ongoing processes for
shipping LNG in the northern region.
REAR ADMIRAL BROOKS replied that he does not "have visibility on
how much or how they're doing that." He stated his concern is
that sooner or later the Russian ships will come. That is why
he is pushing to develop some sort of traffic scheme with Russia
in order to control the Bering Strait and minimize risk to that
area before the ships come. He emphasized that he does not want
to be unprepared.
11:21:12 AM
REPRESENTATIVE JOHNSON asked what Russia is protecting its
boarders against and whether or not the United States should be
doing the same.
11:21:31 AM
REAR ADMIRAL BROOKS responded that the Russians, like any other
country, want to protect what is theirs. He explained, "They're
posturing because they know that these boundaries will have to
be determined." He said he understands protecting interests,
and he said he does not see this as belligerence on the part of
the Russians. He added that he is willing to help Russia
protect its interests, as long as that support is returned as it
pertains to America's interests.
11:22:37 AM
REAR ADMIRAL BROOKS, in response to Representative Johnson,
named some Russian ports and noted that Russia shares Alaska's
problem of having shallow waters and limited infrastructure
further north. He speculated that from a safety perspective,
having a place further north in Alaska where ships could be
brought in for maintenance would be helpful. Currently, he
said, there is no place up north to "get out of the weather" to
"work a ship." Risk assessment for the Aleutians and then Cook
Inlet are a priority. The infrastructure to prevent disaster is
important to have in place.
11:25:23 AM
REPRESENTATIVE JOHNSON asked what the repercussions are for
signing or not signing the Law of the Sea Treaty.
11:25:52 AM
REAR ADMIRAL BROOKS responded that the treaty has worked for a
long time. Since 1982, the U.S., having been an architect of
the treaty, but not a signer, has reaped its benefits; however,
it is taking advantage of the treaty without meeting any
responsibilities. He said he has been told by other countries,
including Canada, that U.S. leadership is needed in the
international arena - especially when it comes time to make the
difficult decisions regarding where the boundaries of the Arctic
are. He emphasized that the issue of the seabed claims beyond
200 nautical miles is the real challenge. Decisions are being
made without the U.S. having a voice. Rear Admiral Brooks
opined that all treaties abrogate sovereignty to some extent; a
country gives something up to get something more. It would be
important for the U.S. to be part of the discussions, he
concluded.
11:28:41 AM
CHAIR EDGMON asked what the U.S. Coast Guard's presence in
Unalaska will be in the future, given the efforts directed
toward opening the Arctic.
11:29:02 AM
REAR ADMIRAL BROOKS said the U.S. Coast Guard has experienced a
slowly growing marine safety detachment in Unalaska. He said
Unalaska is the busiest port in terms of ships that come and go.
He said he considers Unalaska an important port. How much the
U.S. Coast Guard grows there will depend upon shipping. Being
prepared ahead of time is crucial. Now is the time to set the
economic and political structures in place "to deal with what
will be," he said.
11:30:59 AM
REPRESENTATIVE BUCH remarked that some were thinking five years
ago was the time. He asked Rear Admiral Brooks to talk about
discussions regarding Wrangell Island, which is just north of
Russia - shown on the top of the world map.
REAR ADMIRAL BROOKS said he does not know the history of the
discussions. He offered his understanding that during World War
II, the U.S. "walked away from any claim to Wrangell [Island]."
He said Senator Helms and others have said that the U.S. should
assert a claim to the island. Currently the U.S. is not
asserting any claim to the island, but owning the island would
dramatically alter the seascape in the Arctic.
11:33:07 AM
REAR ADMIRAL BROOKS, in response to Representative Buch, said
the U.S. Coast Guard in Alaska has jurisdiction over all vessels
within 12 miles of U.S. shores, regardless of the nationality of
those vessels. Furthermore, he said he has jurisdiction over
all vessels engaged in economic activities, such as fishing,
within 200 miles of U.S. shores. The U.S. Coast Guard also has
jurisdiction over the navigable waters of the U.S., which
essentially means "all waters in the internal part of the state
that are subject to tidal influence or subject to navigation and
interstate commerce." There are many places in Alaska where the
U.S. Coast Guard has no jurisdiction, he said. For example,
jurisdiction on dry land extends only as far as the back fence
of a terminal or facility.
11:34:47 AM
DAVID BENTON, Executive Director, Marine Conservation Alliance
(MCA), listed his work history. He stated that Alaska ranks
ninth in the world for fisheries production, accounts for
approximately 62 percent of the United States' "landings," and
provides 78,000 jobs in the fishing industry. Furthermore, 80
percent of the manufacturing done in Alaska is related to
seafood processing. The "breadbasket" for that fishery is in
the Bering Sea. Dutch Harbor, Unalaska, has been the number one
fishing port in terms of volume for the nation for many years,
he noted.
11:36:59 AM
MR. BENTON mentioned climate change, and he stated that there is
evidence that fish populations are moving north, and several
important species are relocating to new areas. How these
changes are going to affect the industry is still not known;
however, renewable resource management calls for conservative
approaches and a scientific approach.
11:39:00 AM
MR. BENTON reported that the North Pacific Fishery Management
Council has passed an FMP that would close all waters north of
the Bering Sea to commercial fishing. He said that it is a bold
pro-active step. The long tradition of getting the science
right can be upheld by this type of action. He said the council
looks forward to working with the science community and managers
to determine "what's up there, what might be available, and, at
some future date, perhaps have fisheries occur."
11:40:41 AM
MR. BENTON said another reason that the council supported the
FMP is because it has had a long experience with international
relations and the effects that international fisheries can have
on Alaska's resources and industry. He provided an example to
illustrate the vulnerability resulting from not having rules in
place, and he said he does not want to see a similar situation
occur in the high Arctic. It would be better to hold a
moratorium prior to nations gaining a vested interest. The U.S.
is leading the way in this, via the council establishing this
platform.
11:44:01 AM
MR. BENTON related that the European Union is interested in
fisheries exploitation in the high Arctic, which causes concern,
because Spain and Portugal, for example, are not known as great
stewards of the resource. He said the council is encouraging
those countries to engage in "a manner more consistent with the
approach that we've taken." He said the Norwegians and
Icelanders have interests in the region as well. The council
advocates reaching a consensus first with Canada and Russia
before branching out to work with other countries that are not
connected to the Arctic but may have Arctic "interests or
designs."
11:45:23 AM
MR. BENTON stated that Alaska can either wait for events to
unfold and then react to them or take charge and be an active
player. He indicated that the council has already secured
statutory authority for an organization called the Bering Sea
Fisheries Advisory Body. Seats on that body are filled by
Alaskans and fishing representatives, scientist, and managers
from the state of Washington, and it is charged with
coordinating U.S. policy on fisheries with Russia. The governor
of Alaska makes appointments to that body.
11:47:35 AM
MR. BENTON urged that the state put together a small group of
experts to meet regularly to discuss "cross-cutting issues" and
report back to the legislature and Alaska public. He suggested
that funding be established to support the group's need to
travel to crucial meetings.
11:48:41 AM
MR. BENTON noted that the congressional delegation has been
through changes, and he recommended that the Alaska State
Legislature consider how it will engage with this delegation, as
well as with the State of Washington's delegation, to forge a
common goal.
11:51:06 AM
MR. HLADICK suggested that 7-10 years is not a long time frame
with which to be working, particularly considering the building
projects that may be involved in a strategic plan. It is
important to not delay, he stressed, as this new frontier opens.
The unknowns are great, but it is important to be ahead of the
game.
11:52:11 AM
ADJOURNMENT
There being no further business before the committee, the House
Special Committee on Fisheries meeting was adjourned at 11:52
a.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| Excerpts--Draft Arctic Fishery Management Plan.PDF |
HFSH 3/17/2009 10:15:00 AM |
|
| National Security Presidential Directive--Arctic Region Policy.PDF |
HFSH 3/17/2009 10:15:00 AM |
|
| Senate Joint Resolution 17--Fish Stocks in the Arctic Ocean.PDF |
HFSH 3/17/2009 10:15:00 AM |