[Congressional Record Volume 145, Number 118 (Monday, September 13, 1999)]
[House]
[Pages H8115-H8118]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]




             BIKINI RESETTLEMENT AND RELOCATION ACT OF 1999

  Mr. SHERWOOD. Mr. Speaker, I move to suspend the rules and pass the 
bill (H.R. 2368) to assist in the resettlement and relocation of the 
people of Bikini Atoll by amending the terms of the trust fund 
established during the United States administration of the Trust 
Territory of the Pacific Islands.
  The Clerk read as follows:

                               H.R. 2368

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Bikini Resettlement and 
     Relocation Act of 1999''.

     SEC. 2. PARTIAL DISTRIBUTION OF TRUST FUND AMOUNTS.

       Three percent of the market value as of June 1, 1999, of 
     the Resettlement Trust Fund for the People of Bikini, 
     established pursuant to Public Law 97-257, shall be made 
     available for immediate ex gratia distribution to the people 
     of Bikini, provided such distribution does not reduce the 
     corpus of the trust fund. The amount of such distribution 
     shall be deducted from any additional ex gratia payments that 
     may be made by the Congress into the Resettlement Trust Fund.

  The SPEAKER pro tempore. Pursuant to the rule, the gentleman from 
Pennsylvania (Mr. Sherwood) and the gentleman from Guam (Mr. Underwood) 
each will control 20 minutes.
  The Chair recognizes the gentleman from Pennsylvania (Mr. Sherwood).
  Mr. SHERWOOD. Mr. Speaker, I yield myself such time as I may consume.
  (Mr. SHERWOOD asked and was given permission to revise and extend his 
remarks.)
  Mr. SHERWOOD. Mr. Speaker, H.R. 2368, the Bikini Resettlement and 
Relocation Act of 1999 is an important

[[Page H8116]]

measure to help the relocation and resettlement of the people of the 
Bikini Atoll. This community was displaced during the time of United 
States nuclear testing in the Pacific, and while the U.S. was the 
administering authority for the islands under the United Nations' Trust 
Territory of the Pacific islands.
  In the 1982, Congress established a Resettlement Trust Fund for the 
benefit of the Bikinians. H.R. 2368 would authorize a one-time 3 
percent distribution from the Resettlement Trust Fund for relocation 
and resettlement assistance primarily for the remaining senior citizens 
of the Bikini Atoll, 3 percent of $126 million, or $3.7 million.
  This will not require any appropriation of any funds by the U.S. 
Congress, and will not diminish the original corpus of the Resettlement 
Trust Fund of $110 million.
  These funds will provide relocation assistance now to the surviving 
90 members of Bikini who were removed from their home island, as it may 
still take years to complete radiological restoration of the atoll to 
permit safe habitation.
  The bill also responds to the resolution of the Bikini Council 
requesting this legislative action by Congress. I urge my colleagues to 
support this bipartisan measure.
  Mr. Speaker, I reserve the balance of my time.
  Mr. UNDERWOOD. Mr. Speaker, I yield myself such time as I may 
consume.
  (Mr. UNDERWOOD asked and was given permission to revise and extend 
his remarks.)
  Mr. UNDERWOOD. Mr. Speaker, this act would authorize a one-time 3 
percent distribution from the resettlement fund for the people of 
Bikini established by Congress in 1982 for relocation and resettlement 
assistance primarily for the remaining senior citizens of Bikini Atoll.
  The odyssey of the Bikini people is a very sad one, indeed. They were 
moved off their atoll in March of 1946 by the U.S. Navy to facilitate 
the U.S. nuclear testing program. They were first moved to Rongerik, an 
uninhabited atoll some 100 miles east of Bikini. Naval officials stated 
that Rongerik was bigger and richer than Bikini, but it turned out that 
the move was ill-conceived and poorly planned.
  Contrary to the Navy's assertions, Rongerik's land area is one-
quarter of the size of Bikini, and its life-sustaining pandanus and 
coconut trees were considerably less productive than those of Bikini.
  The situation on Rongerik steadily deteriorated over the next 2 
years. In July of 1947, a medical officer who visited the atoll 
reported that the Bikinians were visibly suffering from malnutrition. 
Several sites for another relocation were explored, but none proved 
satisfactory.
  However, when a Navy physician examined the Bikinians in March of 
1948 and found them to be a starving people, emergency measures were 
called for and the Bikinians were immediately evacuated to the Navy 
base at Kwajalein Atoll. As early as 1948, as the official Navy history 
of the Trust Territory notes, ``Definite physiological scars were left 
on the people.'' The consequences of their two relocations, 2 years on 
Rongerik and nearly 8 months on Kwajalein, were already abundantly 
evident.
  In less than 3 years, the once self-sufficient people had been 
transformed into dependent wards of the United States. Their very 
existence had been threatened, and the little confidence that they had 
in themselves was diminished.

                              {time}  1500

  The third relocation of the Bikinians occurred in November of 1948 
when the community was moved to Kili Island some 400 miles south of 
Bikini. Although Kili receives more rainfall than Bikini and has richer 
soils, it is an island, a high island, not an atoll, and it is about 
one-ninth the land area of Bikini.
  It has neither lagoon, sheltered fishing ground, protected anchorage, 
nor good beaches. Instead, a flat reef shelf forms around the 
circumference of the island and drops abruptly to great depths. As a 
result, it is virtually inaccessible by sea from November to May, when 
tradewinds cause heavy surf to pound the shore.
  This drastic change from an atoll existence, with its abundant fish 
and islands as far as the eye could see, to an isolated island with no 
lagoon and inaccessible marine resources, took a severe physiological 
toll on the Bikini people.
  Since their arrival there in 1948, the Bikinians have compared Kili 
to a jail. The elders sorely miss the ability to move about an atoll, 
engage in fishing expeditions across the lagoon or in the open sea, and 
sail to other islands. At Bikini, much of men's lives had centered 
about their sailing canoes, and they spent many hours working together 
on them. These sailing canoes had to be abandoned on Kili, and the 
Bikinians have lost virtually all thier sailing and fishing skills.
  Today, 53 years after their move from Bikini, less than half the 
``elders'' who were moved off originally in 1946 are still alive. The 
radiological cleanup and resettlement of Bikini is at least a decade 
away, and will cost at least several hundred million dollars, and the 
numerous relocations of the people have had severe consequences.
  The Bikinians did not desire relocation in 1946, but they believed 
they had no alternative but to comply with the wishes of the United 
States.
  Much of the Bikinians' culture and society and identity are rooted in 
their ancestral home: the islands, reefs, and lagoon of Bikini Atoll. 
The people's identity, the very essence of their perceptions of 
themselves, is intimately tied to their home atoll.
  The system of land rights provided much of the underlying structure 
for the organization of the community. Short of loss of life itself, 
the loss of their ancestral homeland represented the worst calamity 
imaginable for the Bikini people.
  The confinement of the Bikini people to Kili has deprived them of 
most of the activities and pleasures that they enjoy at Bikini Atoll.
  The people of Bikini gave the United States everything they had, 
their land and their home. They demanded nothing in return. They asked 
only that the United States care for them until their land had served 
its purpose and could be returned to them. The United States promised 
that it would do so, but some 53 years later, and 41 years after the 
last nuclear test at Bikini, the Bikinians are still not home. They 
lived up to their side of the deal, and the people of the free world 
did well by them.
  They made contributions to the victory and the Cold War that many 
other peoples did not. The tests in the Marshall Islands cost hundreds 
of billions of dollars, but we never questioned their value because 
these nuclear tests assured U.S. nuclear superiority over the Soviet 
Union and saved billions of dollars in defense spending.
  As the Atomic Energy Commission reported to Congress in 1953, ``Each 
of the tests involved a major expenditure of money, manpower, 
scientific effort, and time. Nevertheless, in accelerating the rate of 
weapons development, they saved far more than their costs.''
  In an attempt to assist the people of Bikini, we provided funding for 
their Resettlement Trust Fund in 1982. Those funds have been well 
invested, and it is only appropriate for us to support a one-time 3 
percent distribution to the heads of household, with the understanding 
that the Bikini elders will be the primary beneficiaries.
  Thanks to sound investment decisions, this trust fund has earned 
almost 14 percent annually since 1982, so a 3 percent distribution will 
not require an appropriation of funds by Congress nor will it diminish 
the original corpus of the trust.
  I want to say on a personal note that this especially goes out to the 
family of Ralph Waltz who was a Peace Corps volunteer on Kili Atoll and 
who was personal witness to this. Mr. Waltz has since passed away, but 
he was a very good friend of mine, and he first brought me to these 
issues that are attendant to the plight of the Bikini people.
  Mr. Speaker, I yield such time as I may consume to the gentleman from 
American Samoa (Mr. Faleomavaega).
  (Mr. FALEOMAVAEGA asked and was given permission to revise and extend 
his remarks.)
  Mr. FALEOMAVAEGA. Mr. Speaker, I want to thank the gentleman from 
Guam (Mr. Underwood) for yielding this time to me to say a few words 
concerning this piece of legislation. I do

[[Page H8117]]

thank the gentleman from Pennsylvania (Mr. Sherwood) for his management 
of the bill.
  Mr. Speaker, I rise in strong support of H.R. 2368, a bill to assist 
the resettlement and relocation of the people of Bikini Atoll by 
amending the terms of the trust fund established during the United 
States administration of a Trust Territory of the Pacific Islands.
  Mr. Speaker, 53 years ago, we removed the residents of Bikini Atoll 
from their home to conduct atomic and nuclear weapons tests. Between 
1946 and 1958, we conducted well over 23 such tests, which made the 
Atoll uninhabitable. In 1968, we told the former residents it was safe 
to return to the Atoll only to remove them again in 1979 because 
radiation levels were still far in excess of Federal standards.
  Mr. Speaker, today the remaining nine residents of Bikini in 1946 who 
are still alive, and some of the descendants of the other 158 people of 
the atoll, are still living in a temporary location 400 miles from 
their true home.
  Mr. Speaker, in an effort to partially compensate the residents of 
Bikini for all the injury and suffering the United States has caused 
them, it is only reasonable that Congress establish a trust fund in 
1982, and a total of $110 million has been appropriated for the fund. 
The fund has been well managed, and the market value of the fund is now 
approximately $126 million. H.R. 2368 authorizes a one-time 
distribution of 3 percent of the value of the trust, which will go 
primarily to the elders of this group.
  Mr. Speaker, I have taken to this floor many times over the years to 
advocate that the United States devote more of its resources to this 
problem, especially as it deals with the good people of the Republic of 
the Marshall Islands. This is only a small part of the mess we created 
by conducting atomic and nuclear atmospheric tests in the Pacific.
  The residents of the Bikini and other atolls of the Pacific have been 
forced to make considerable sacrifices so that our Nation could remain 
militarily strong, and I find it highly offensive that we have not 
addressed this problem forthrightly.
  Even today, Mr. Speaker, we do not have a plan to clean up and 
resettle the atoll, and it is estimated that cleanup and resettlement 
will take 10 years, 10 more years, Mr. Speaker. We can, and we should 
be doing better than that.
  I want to thank the gentleman from Alaska (Mr. Young), the gentleman 
from California (Mr. George Miller), our ranking Democrat of the 
committee, and their staffs for moving this bill as quickly as they 
have. This is important to the former residents of Bikini and shows 
that this authorizing committee can act in a timely manner.
  Mr. Speaker, I know the Bikinians would have liked to have seen this 
provision in the fiscal year 2000 Interior appropriations bill, but 
with today's action in the House and a little luck in the Senate, they 
may get their money just as quickly as following regular authorizing 
procedures. I support this bill and believe we have a moral obligation 
to do much more than this.
  Mr. Speaker, again I want to commend the gentleman from Guam (Mr. 
Underwood) for his tireless efforts and tremendous leadership to assist 
his fellow Pacific Island community.
  Again, I ask my colleagues to support this bill.
  Mr. MILLER of California. Mr. Speaker, I have cosponsored this 
legislation with Chairman Young which directs the Secretary of Interior 
to distribute 3% of interest made from the Resettlement Trust Fund for 
the People of Bikini to surviving Bikini elders. This payment will be a 
one time only payment and comes from interest made, does not need an 
additional appropriation, and will not effect the original corpus of 
the fund.
  To facilitate the US nuclear testing program, the people of Bikini 
were moved off their islands in 1946. Between 1946 and 1958, the U.S. 
government detonated 23 atomic and hydrogen bombs at Bikini Atoll, 
including the March 1, 1954 Bravo shot, the largest nuclear test ever 
conducted by the United States. Our treatment of the people directly 
affected by these tests has not always been forthright and just. Much 
information about the test shots was kept from the Marshallese until I 
was able to persuade the Bush Administration to finally release DOE 
documents to the Marshall Islands Government. While this process has 
been slow, it has resulted in thousands of pages of new information 
released.
  In 1982 Congress established the Resettlement Trust Fund to assist 
the people of Bikini, ``for the relocation and resettlement of the 
Bikini People in the Marshall Islands, principally on Kili and Ejit 
Islands.'' Congress appropriated additional funds in 1988 into the 
trust and modified its terms to provide that monies could also be 
``expended for the rehabilitation and resettlement of Bikini Atoll.''
  The people of Bikini have maintained the fiscal integrity of the 
Resettlement Trust Fund since its inception. They have hired U.S. banks 
as trustees and well respected investment advisors and money managers. 
The Trust has averaged a nearly 14% annual return since inception and 
has permitted the Bikini community to provide for scholarships, health 
care, food programs, housing electrical power, construction, 
maintenance and repairs on the islands of Kili and Ejit, as well as 
infrastructure, cleanup and resettlement activities on Bikini Atoll. 
Through prudent management and voluntary restrictions on the use of the 
corpus by the people of Bikini, the market value of the Resettlement 
Trust Fund today is approximately $125 million.
  Throughout this most tumultuous time, the elders of the community 
have remained the solid base for all the people of Bikini. This one 
time payment is being made at the request of the Bikini community 
based, in part, on the reality that resettlement of the atoll is 
unlikely during the lifetime of the elders. I urge my colleagues to 
support this legislation.
  Ms. JACKSON-LEE of Texas. Mr. Speaker, I rise in support of H.R. 
2368, the Bikini Resettlement and Relocation Act of 1999. I fully 
support the request of the Bikini Council to have a one-time 3% 
distribution from the Resettlement Trust fund to assist in the 
resettlement and relocation of the people of Bikini Atoll.
  In 1946, our country made the decision to test nuclear weapons in the 
Bikini Atoll in the Marshall Islands. This difficult decision, during 
World War II, created a negative situation for the Bikini Atoll. This 
environmental catastrophe still exists, over thirty years later. The 
people of Bikini Atoll have been relocated twice since the Island was 
polluted with nuclear residue during the nuclear testing that started 
in 1946.
  I commend our government's recognition of the devastation caused 
during this testing period and I commend our efforts to restore this 
magnificent Island so its citizens can return to their homes. 
Unfortunately, it appears another 10 years is necessary to guarantee 
the return of the Bikini people to an environmentally safe home.
  Traditionally, the people of Bikini Atoll have administered the 
Resettlement Trust Fund in a commendable manner. I fully support the 
Council's decision to make available 3% percent of the market value of 
the Resettlement Trust Fund for immediate ex gratia distribution to the 
people of Bikini. The culture and tradition of the people of Bikini pay 
special homage to the seniors of the communities. It is anticipated 
that the senior citizens of Bikini, many who will not have an 
opportunity to return to the Island and their homeland because of the 
length of clean-up time, may be the primary beneficiaries of this 
distribution.
  The Congressional Budget Office estimates that the enactment of the 
bill would have no impact on the federal budget. Mr. Speaker, dear 
colleagues, I urge that we continue to support the restoration of 
Bikini Island and resettlement of its citizens.
  Mr. YOUNG of Alaska. Mr. Speaker, the Bikini Resettlement and 
Relocation Act of 1999, H.R. 2368, is an important measure to help the 
relocation and resettlement of the people of Bikini Atoll. This 
community was displaced during the time of United States nuclear 
testing in the Pacific and while the U.S. was the administering 
authority for the islands under the United Nations Trust Territory of 
the Pacific Islands. Congress continues to have responsibility for the 
trust funds that were established during the trusteeship for the 
resettlement and relocation of certain island communities, including 
Bikini Atoll.
  The Committee on Resources conducted a Congressional pre-hearing 
briefing on May 10th and a hearing on May 11th, 1999, on the status of 
nuclear claims, relocation and resettlement efforts in the Marshall 
Islands. During the hearing process, the elected representative of the 
people of Bikini presented the Kili/Bikini/Ejit Local Government 
Council's May 12, 1999 Resolution, asking Congress to support a one-
time 3% distribution from the Resettlement Trust Fund, which is used 
both for the cleanup of Bikini and for the ongoing needs of the Bikini 
people. In addition, the Marshall Islands Government expressed 
unqualified support for the Bikini request. Congress established the 
Resettlement Trust Fund in 1982 pursuant to P.L. 97-257 and 
appropriated additional funds in 1988 pursuant to P.L. 100-446.
  I introduced H.R. 2368 jointly with the Ranking Minority Member 
George Miller of the Committee on Resources on June 29, 1999, to 
respond to the request of the Bikini community and the government of 
the Marshall Islands. My statement of introduction appeared

[[Page H8118]]

in the Congressional Record on that date with the text of the Kili/
Bikini/Ejit Local Government Council's May 12, 1999 Resolution on June 
29, 1999 H.R. 2368 would:
  Authorize a one-time 3% distribution from the Resettlement Trust Fund 
for relocation and resettlement assistance primarily for the remaining 
senior citizens of Bikini Atoll [3% of $126 million or $3.7 million]; 
not require an appropriation of any funds by the U.S. Congress; not 
diminish the original corpus of the Resettlement Trust Fund [$110 
million]; provide relocation assistance now to the surviving 90 members 
of Bikini who were removed from their home island, as it may still take 
years to complete radiological restoration of the atoll to permit safe 
habitation; and respond to the resolution of the Bikini Council 
requesting this legislative action by Congress.
  The Bikinians, for their part, have ensured the fiscal integrity of 
the Resettlement Trust Fund. They have selected reputable U.S. banks as 
trustees, hired well-respected and talented investment advisors and 
money managers, and provided for routine monthly financial statements 
and annual audits. Due to the Bikini Council's voluntary restraint on 
the use of these funds, and the success of the fund managers, the 
corpus remains intact, the trust fund has earned almost 14% annually, 
every dollar has been accounted for, annual audits are prepared, and 
monthly financial statements are sent to the Interior Department.
  In light of the strength of the trust, its fiscal integrity, the 
lengthy time a cleanup and restoration will take, and the special 
circumstances of the elders, the Bikinians wish to make a one-time 3% 
distribution from the Resettlement Trust Fund, with the understanding 
that the primary beneficiaries of the distribution will be the 90 
surviving Bikini elders. Because of the excellent management of the 
trust fund, such a distribution will not require an appropriation of 
funds by Congress, nor will it diminish the original corpus of the 
trust.
  The authorization in H.R. 2368 for the people of Bikini is 
appropriate and consistent with the desires of the community of Bikini 
and congressional intent for the resettlement of the people whose lives 
and homes were disrupted by U.S. testing. This measure assists some of 
the people of the former Trust Territory community administered by the 
United States, who we still maintain relations through a Compact of 
Free Association. Without any additional cost to the U.S. taxpayer, 
Congress can be responsive to the remaining senior Bikini elders' 
resettlement and relocation efforts.
  Mr. UNDERWOOD. Mr. Speaker, I have no further speakers. I urge an 
``aye'' vote, and I yield back the balance of my time.
  Mr. SHERWOOD. Mr. Speaker, I yield back the balance of my time.
  The SPEAKER pro tempore (Mr. Foley). The question is on the motion 
offered by the gentleman from Pennsylvania (Mr. Sherwood) that the 
House suspend the rules and pass the bill, H.R. 2368.
  The question was taken; and (two-thirds having voted in favor 
thereof) the rules were suspended and the bill was passed.
  A motion to reconsider was laid on the table.

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