[House Report 115-218]
[From the U.S. Government Publishing Office]
115th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 115-218
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KING COVE ROAD LAND EXCHANGE ACT
_______
July 13, 2017.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Bishop of Utah, from the Committee on Natural Resources, submitted
the following
R E P O R T
together with
DISSENTING VIEWS
[To accompany H.R. 218]
[Including cost estimate of the Congressional Budget Office]
The Committee on Natural Resources, to whom was referred
the bill (H.R. 218) to provide for the exchange of Federal land
and non-Federal land in the State of Alaska for the
construction of a road between King Cove and Cold Bay, having
considered the same, report favorably thereon without amendment
and recommend that the bill do pass.
PURPOSE OF THE BILL
The purpose of H.R. 218 is to provide for the exchange of
Federal land and non-Federal land in the State of Alaska for
the construction of a road between King Cove and Cold Bay.
BACKGROUND AND NEED FOR LEGISLATION
The communities of King Cove and Cold Bay are located at
the far west end of the Alaskan Peninsula, 625 miles southwest
of Anchorage. King Cove is especially remote, linked to the
outside world by a small gravel airstrip and a harbor. In the
winter, harsh weather conditions and gale-force winds routinely
ground planes and prohibit sea travel, preventing the community
of nearly 1,000 from accessing hospitals and other emergency
services. This has resulted in a number of fatal accidents over
the years, with evacuation from King Cove sometimes taking days
due to the extreme weather. As a result, the residents of King
Cove seek a public road to the larger, more modern airport
twenty miles away in Cold Bay, which serves as the regional
transportation hub and a site for medical evacuations to fully
staffed hospitals outside the region. Important to this bill,
Cold Bay originated as World War II-era military base, and as a
result has a sizable network of roads and infrastructure
surrounding the community, some of which currently exist on the
surrounding wilderness and National Wildlife Refuge areas.\1\
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\1\The Aleutians East Borough, ``King Cove Road Fact Sheet,''
updated February 1, 2017. http://www.aleutianseast.org/vertical/sites/
%7BEBDABE05-9D39-4ED4-98D4 -908383A7714A%7D/uploads/
Fact_Sheet_King_Cove_Road_Issue.pdf.
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Between the two communities lie both the Izembek National
Wildlife Refuge and a section of the Alaska Peninsula National
Wildlife Refuge, two small components of Alaska's nearly 59
million acres of designated wilderness. The Izembek National
Wildlife Refuge was originally established as a Wildlife Range
by an Alaska Public Land Order in 1960, and then was later
converted to a National Wildlife Refuge by the Alaska National
Interest Lands Conservation Act (ANILCA, 16 U.S.C. 3101 et
seq.) in 1980.\2\ Additionally, the Alaska Peninsula National
Wildlife Refuge was also designated with ANILCA's passage. Both
Refuges serve as important feeding grounds for migratory birds,
with nearly the entire population of three separate species of
geese returning to the Refuges each fall.\3\
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\2\The U.S. Fish and Wildlife Service, Izembek National Wildlife
Refuge. ``About the Refuge,'' updated July 24, 2013. https://
www.fws.gov/refuge/Izembek/about.html.
\3\The U.S. Fish and Wildlife Service, Alaska Peninsula Wildlife
Refuge. ``About the Refuge,'' updated July 24, 2013. https://
www.fws.gov/refuge/Alaska_Peninsula/About.html.
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King Cove community leaders have sought a road linking the
two towns for nearly four decades.\4\ Major legislative action
began in the 105th Congress, with then Natural Resources
Committee Chairman Don Young introducing H.R. 2259, the King
Cove Health and Safety Act of 1997, to facilitate a major land
exchange between the State of Alaska and the U.S. Fish and
Wildlife Service (FWS). Despite similar legislation (S. 1092)
passing the Senate on a 59-38 vote, no House action was taken
due to opposition from the Clinton White House and pushback
from environmental groups.\5\ Ultimately, Congress provided
$37.5 million in additional funding to the community of King
Cove to fund the construction of a hovercraft terminal and
local medical facility, as an alternative to constructing a
road through the wilderness area.\6\ However, despite the
additional funding, the hovercraft workaround only served to be
a temporary fix, with services only operating between 2007 and
2010 and eventually ceasing due to extreme operating costs and
the inability to handle rough weather conditions.\7\ In the
110th Congress, Congressman Young again introduced legislation,
H.R. 2801, to facilitate a land swap between the State of
Alaska and FWS. The bill was ordered reported to the House
floor, but no further action was taken.
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\4\The Aleutians East Borough op. cit., page 2.
\5\Warrick, Jo. ``King Cove's Relentless Road War,'' The Washington
Post, May 27, 1998. Accessed March 30, 2017. https://
www.washingtonpost.com/archive/politics/1998/05/27/king-coves-
relentless-road-war/08d3b248-d85a-4876-be07-a83bf1008de3/
?utm_term=.a4b7bf2663ff.
\6\The Wilderness Society, ``History of the Proposed Road Through
Izembek National Wildlife Refuge,'' updated April 16, 2016. http://
wilderness.org/sites/default/files/Timeline%20 -
%20History%20of%20the%20 Proposed%20Road%20Through%20Izembek
%20National%20Wildlife%20Refuge.pdf.
\7\The Aleutians East Borough op. cit., page 1.
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Headway was made in 2009, when Congress passed the Omnibus
Public Land Management Act (P.L. 111-11), which authorized the
Secretary of the Interior to determine if building the proposed
road would serve the public interest. Accordingly, FWS prepared
an Environmental Impact Statement (EIS) under the national
Environmental Policy Act of 1969 (NEPA, 42 U.S.C. 4321 et seq.)
and released the final EIS in February 2013. The final EIS
outlined five alternatives: two road construction alternatives;
one hovercraft improvement alternative; one harbor improvement
alternative; and the preferred alternative, no action.\8\
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\8\The U.S. Fish and Wildlife Service, ``Chapter 2: Alternatives,''
in Izembek National Wildlife Refuge Land Exchange/Road Corridor Final
Environmental Impact Statement. Updated February 6, 2013. https://
www.federalregister.gov/documents/2013/02/06/2013-02618/final-
environmental-impact-statement-izembek-national-wildlife-refuge-
proposed-land-exchangeroad.
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Following the release of the final EIS, then Secretary of
the Interior Ken Salazar directed the incoming Secretary of the
Interior Sally Jewell to hold an official meeting in King Cove
prior to making a final decision on the EIS. As a result,
Secretary Jewell visited King Cove in September 2013, but
ultimately decided to reject the land swap and uphold the FWS's
preferred no action alternative.\9\ The King Cove tribes, the
City of King Cove Corporation, and the Aleutians East Borough
sued the Department of the Interior (DOI) and Secretary Jewell
as a result of the decision, but in 2015 the Alaska District
Court ruled that neither DOI nor Secretary Jewell violated NEPA
or the Omnibus Public Land Management Act in the decision-
making process.\10\
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\9\U.S. Department of the Interior, ``Press Release: Secretary
Jewell Issues Decision on Izembek National Wildlife Refuge Land
Exchange and Road Proposal.'' Updated April 26, 2016. https://
www.doi.gov/pressreleases/secretary-jewell-issues-decision-on-izembek-
national-wildlife-refuge-land-exchange-and-road-proposal.
\10\The Aleutians East Borough op. cit., page 2.
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Despite the funding for the hovercraft terminal and
improvements made at the medical facility, the fact remains
that King Cove is physically isolated from the outside world in
the event of severe weather. Fifty-five emergency medevacs have
been required since Secretary Jewell's visit in 2013, a number
of which have required either costly Coast Guard involvement,
extended patient waiting times, or both. For instance, in 2016,
a King Cove woman in her 70s suffering from heart issues was
evacuated from King Cove to Cold Bay by the Coast Guard after
high winds prevented an air ambulance from landing at King
Cove. In the end, it took the woman over seven hours to reach a
hospital in Anchorage. A road between King Cove and Cold Bay
would go a long way from preventing similar situations from
reoccurring, and would provide a potentially life-saving
evacuation route for King Cove citizens in the event of an
emergency.\11\
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\11\The Aleutians East Borough, ``King Cove Optimistic President-
elect Donald Trump and Interior Secretary Nominee Ryan Zinke Will Get
Community their Life-Saving Road.'' Updated December 23, 2016. http://
www.aleutianseast.org/index.asp?SEC=4625D388-43A1-4E17-A354 -
F5F12E4E7205&DE=03B2B87B-ECDB-4CDB -9183-D464FFFB6040&Type=BPR.
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COMMITTEE ACTION
H.R. 218 was introduced on January 3, 2017, by Congressman
Don Young (R-AK). The bill was referred to the Committee on
Natural Resources, and within the Committee to the Subcommittee
on Federal Lands. On April 5, 2017, the Subcommittee held a
hearing on the bill. On June 22, 2017, the Natural Resources
Committee met to consider the bill. The Subcommittee was
discharged by unanimous consent. Congressman Raul M. Grijalva
(D-AZ) offered an amendment designated 2; it was not agreed to
by voice vote. No further amendments were offered, and the bill
was ordered favorably reported to the House of Representatives
on June 27, 2017, by a bipartisan roll call vote of 23 ayes and
14 nays, as follows:
COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS
Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of
rule XIII of the Rules of the House of Representatives, the
Committee on Natural Resources' oversight findings and
recommendations are reflected in the body of this report.
COMPLIANCE WITH HOUSE RULE XIII AND CONGRESSIONAL BUDGET ACT
1. Cost of Legislation and the Congressional Budget Act.
With respect to the requirements of clause 3(c)(2) and (3) of
rule XIII of the Rules of the House of Representatives and
sections 308(a) and 402 of the Congressional Budget Act of
1974, the Committee has received the following estimate for the
bill from the Director of the Congressional Budget Office:
U.S. Congress,
Congressional Budget Office,
Washington, DC, July 12, 2017.
Hon. Rob Bishop,
Chairman, Committee on Natural Resources,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 218, the King Cove
Road Land Exchange Act.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Jeff LaFave.
Sincerely,
Keith Hall.
Enclosure.
H.R. 218--King Cove Road Land Exchange Act
H.R. 218 would require the U.S. Fish and Wildlife Service
to convey, at the request of the State of Alaska, 206 acres of
federal land in the Izembek National Wildlife Refuge to allow
for the construction of a road. In exchange, the state would
convey to the federal government an amount of land up to 43,000
acres with a total fair market value equal to the value of the
federal lands the state would receive. CBO expects that the
total value of the state-owned land identified for exchange
under the bill (43,000 acres) would exceed the value of the
federal lands; therefore, we expect that the state would convey
a portion of that acreage equalize the value of the lands being
conveyed by the two parties and that no cash would be exchanged
in the transaction. Because none of the federal lands that
would be conveyed are expected to generate receipts over the
next 10 years, CBO estimates that enacting the bill would not
affect direct spending.
The federal government would incur certain administrative
costs associated with the exchange, including surveys and
appraisals. Because the bill would require the road to be built
in accordance with an environmental impact statement completed
in 2013, an updated impact statement would not be required. In
total, CBO estimates that any costs incurred in implementing
the legislation would total less than $500,000; that spending
would be subject to the availability of appropriated funds.
Because enacting H.R. 218 would not affect direct spending
or revenue, pay-as-you-go procedures do not apply. CBO
estimates that enacting H.R. 218 would not increase net direct
spending or on-budget deficits in any of the four consecutive
10-year periods beginning in 2028.
H.R. 218 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act and
would impose no costs on state, local, or tribal governments.
The CBO staff contact for this estimate is Jeff LaFave. The
estimate was approved by H. Samuel Papenfuss, Deputy Assistant
Director for Budget Analysis.
2. General Performance Goals and Objectives. As required by
clause 3(c)(4) of Rule XIII, the general performance goal or
objective of this bill is to provide for the exchange of
Federal land and non-Federal land in the State of Alaska for
the construction of a road between King Cove and Cold Bay.
EARMARK STATEMENT
This bill does not contain any Congressional earmarks,
limited tax benefits, or limited tariff benefits as defined
under clause 9(e), 9(f), and 9(g) of Rule XXI of the Rules of
the House of Representatives.
COMPLIANCE WITH PUBLIC LAW 104-4
This bill contains no unfunded mandates.
COMPLIANCE WITH H. RES. 5
Directed Rule Making. This bill does not contain any
directed rule makings.
Duplication of Existing Programs. This bill does not
establish or reauthorize a program of the federal government
known to be duplicative of another program. Such program was
not included in any report from the Government Accountability
Office to Congress pursuant to section 21 of Public Law 111-139
or identified in the most recent Catalog of Federal Domestic
Assistance published pursuant to the Federal Program
Information Act (Public Law 95-220, as amended by Public Law
98-169) as relating to other programs.
PREEMPTION OF STATE, LOCAL OR TRIBAL LAW
This bill is not intended to preempt any State, local or
tribal law.
CHANGES IN EXISTING LAW
If enacted, this bill would make no changes to existing
law.
DISSENTING VIEWS
H.R. 218 authorizes a land exchange between the Department
of the Interior and the State of Alaska for the purpose of
building a road through the Izembek National Wildlife Refuge, a
unit of the National Wildlife Refuge System managed by the Fish
and Wildlife Service (FWS). The bill declares that the land
exchange is in the public interest and waives all environmental
review and public participation requirements of the National
Environmental Policy Act (NEPA).
Proponents of this bill claim it is necessary to build a
road through the refuge, including the congressionally
designated Izembek wilderness, to address the transportation
needs of King Cove, a town of approximately 1000 people.
However, this is not the first time Congress has considered
or even approved this land exchange. The Omnibus Public Land
Management Act of 2009 (PL 111-11) directed the Secretary of
the Interior to analyze the land exchange and proposed road
corridor by going through the NEPA process to determine if the
land exchange is in the ``public interest.'' After a
transparent four-year review, FWS published the Izembek
National Wildlife Refuge Land Exchange/Road Corridor Final
Environmental Impact Statement (FEIS) on February 5, 2013.
Citing irreparable damage to ecological resources and the
availability of alternative transportation options, FWS
determined that development of a road within the
congressionally designated wilderness is not compatible with
management protocols of the refuge and chose the ``No Action
Alternative.''
During the development of the FEIS, the agency held over
130 meetings and analyzed thousands of public comments--70,111
of the 71,960 public comments analyzed by FWS during this
process were opposed to construction of the road.\1\
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\1\``Izembek National Wildlife Refuge Land Exchange Road Corridor
EIS--Izembek--U.S. Fish and Wildlife Service,'' https://
www.fws.gov.nwrs/threecolumn.aspx?id=2147524796.
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The FEIS is not the first government analysis of the
proposed road. The U.S. Army Corps of Engineers published a
report in 2015 outlining ``non-road alternatives'' for
transportation between King Cove and Cold Bay. That report
determined that suitable options exist, including an ice-
capable marine vessel, construction of a new airport and the
addition of a heliport.\2\ As early as 1996, FWS advised
against construction of the road, citing both the potential
damage to refuge resources and the availability of alternative
transportation options. Construction of the road has been
exhaustively evaluated by numerous federal agencies and each
evaluation has concluded that the road would do irreparable
damage to the ecological resources of the refuge.
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\2\``King Cove-Cold Bay: Assessment of Non-Road Alternatives,''
U.S. Army Corps of Engineers. June 18, 2015 https://
www.energy.senate.gov/public/index.cfm/files/serve?Fileid=D8EA08E9 -
75F1-4D79-A833-87EE91616819.
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Building a road through the middle of congressionally
designated wilderness is without precedent and unwarranted.
Increased human and mechanical presence from the construction
and ongoing use of the road will erode the wilderness values of
the area and do lasting ecological damage to the unique,
undisturbed wildlife habitat. For the reasons outlined above,
we oppose the bill.
Raul M. Grijalva,
Ranking Member, House
Natural Resources
Committee.
Colleen Hanabusa,
Ranking Member, Subcommittee
on Federal Lands.
Grace F. Napolitano,
Member of Congress.
Jared Huffman,
Ranking Member, Subcommittee
on Water, Power and
Oceans.
Donald S. Beyer, Jr.,
Member of Congress.
Nanette Diaz Barragan,
Member of Congress.
Darren Soto,
Member of Congress.
A. Donald McEachin,
Ranking Member, Subcommittee
on Oversight and
Investigations.