The Bureau of Land Management in Alaska has the job of administering the public domain and its resources, usually estimated to be 270 million acres in area. In this area, one-fifth the size of the continental United States, the challenge to a bureau such as ours is great and continuous. The ranking official of the Bureau of Land Management in Alaska is the area administrator. I occupy that position at the present time. The headquarters of BLM is presently at Anchorage but is to be shifted to Juneau as soon as the mechanics of the move can be solved. The area administrator has a staff of four men, forestry, cadastral engineer who is presently at Juneau, lands and minerals and administrative officer. There are two land offices, one at Fairbanks and one at Anchorage. There are three forestry districts and they are at Fairbanks, Anchorage, and McGrath. During the fire season the number of guards stationed are many. The most northern of these are stationed at Fort Yukon, 8 miles north of the Arctic Circle; the most southerly one is Homer. As of September 1, there were 150 BLM employees in all of Alaska. Ninety-nine are permanent and fifty-one are temporary. The temporary employees are attached mainly to survey crews and fireguard stations. An attempt has been made to give you a rather detailed explanation of our programs, objectives, and problems in the statement which I am submitting to you. I will not review matters discussed in that statement, for to do so would consume too much of your valuable time. One problem upon which we have not dwelt in the prepared statement is that of withdrawals. Too much of Alaska has been in reservations in the past but something has been done about the situation and will continue to be done. The useless and unnecessary withdrawals are being eliminated. Roughly 11⁄2 million acres have been restored in the past 2 or 3 years. We have not eliminated the problem but I believe that the word "withdrawal" now has a connotation a bit less fearsome than it has had in the past. I would be glad to discuss with you in some detail the aspects of the withdrawal problem at your convenience. The Bureau of Land Management is in the middle of the development and growth of Alaska. The problems we encounter and the problems individuals encounter dealing with land problems are many and devious. You will be reminded, then, of problems dealing with land throughout your Alaska trip. We try to follow the rules and regulations which have been laid down for us to follow, at the same time tempering our actions with liberal doses of commonsense and justice. Thank you, Mr. O'Brien and members of the subcommittee, for permitting me to appear before you at this time. I might add that if you find in these statements that I have given you that maps would add to your information, I can furnish those maps when you come to Anchorage. We had intended to have them as a part of the statement but did not have time to prepare them. Mr. O'BRIEN. We would like to have them if it could be arranged. Mr. PUCKETT. Fine. Mr. O'BRIEN. Mr. Abbott. Mr. ABBOTT. You referred to the figure, I believe, of 270 million acres. Mr. PUCKETT. Yes. Mr. ABBOTT. To what are you referring when you use that figure? Mr. PUCKETT. I am referring to the statement in the statistical appendix of the Director's annual report in which a table gives the lands over which the Bureau of Land Management has jurisdiction in Alaska as 270 million. Mr. ABBOTT. So that would be 270 million of the approximately 365 to 370 million acres in the Territory. Mr. PUCKETT. Yes. Mr. ABBOTT. And over what lands would you not have jurisdiction, those under other Federal agencies? How about defense withdrawals? Mr. PUCKETT. That would be outside of our jurisdiction. Mr. DAWSON. The bulk of the balance would be under Forest Service; would it not? Mr. PUCKETT. This same table gives about 20 million acres as being under the Forest Service in Alaska and a little over 3 million being under the Defense Department. Mr. O'BRIEN. That figure of 99 percent of the land owned by the Federal Government pretty well stands up then. Mr. PUCKETT. I think so. Mr. ABBOTT. Mr. Puckett, you have included in here, of course, reference to the homestead development in the Territory of Alaska and have set out, I believe, certain recommendations for attention which might be given to Federal statutes affecting land utilization in Alaska; is that correct? Mr. PUCKETT. Yes, sir. Mr. ABBOTT. The enactment of which you people feel, of course, would go a long way towards a long-range program for more effective land utilization? Mr. PUCKETT. That is true. Mr. ABBOTT. And after the committee has had an opportunity to listen to some of those people who are the beneficiaries of your presence here in the Territory, that is, the Bureau of Land Management, you will have people present who, at Anchorage, perhaps, where you are headquartered and perhaps at Juneau, can be in a position to respond to questions which might be raised on the operation of your present program. Mr. PUCKETT. That is right. Mr. O'BRIEN. Without objection, the statement submitted by Do any members have any questions? Mr. DAWSON. I just suggest it be made a part of the file. Is it not a little bulky for the record? (Discussion off the record.) Mr. DAWSON. I have no objection. Mr. O'BRIEN. It will be made a part of the record at this point. (The statement referred to follows:) DEPARTMENT OF THE INTERIOR, Hon. LEO W. O'BRIEN, AREA 4, Chairman, Subcommittee on Territorial and Insular Affairs. DEAR MR. O'BRIEN: There is submitted for your consideration and that of members of the subcommittee, of which you are chairman, a statement of the 70587-56-pt. 1-2 program, objectives and problems of the Bureau of Land Management in Alaska. This statement was prepared by personnel of BLM in Alaska and has not yet been reviewed by the Director. You will note that we have broken down the program into several clearly defined topics. We hope that this presentation will be of aid to you in obtaining a clear picture of our activities in Alaska. We feel that the BLM has played and will continue to play with distinction, an important part in the development of Alaska. Very truly yours, LOWELL M. PUCKETT, SUMMARY OF FORESTRY PROGRAM FOR ALASKA I. FOREST POTENTIAL OF ALASKA Her forests are the key to Alaska's development. With possible exception of the potential oil and gas industry, the forest industry is likely to be the largest economic factor in Alaska's future. Today, the pulp industry is looking toward Alaska's forests for the new mills needed to meet constantly expanding national demand for pulp and paper. The large blocks of timber required to assure long-term amortization of heavy capital investment are scarce in the States. Alaska has large volumes of timber, relatively low stumpage prices, available long-term contracts (50 years), certain tax-amortization benefits, desirable pulp species, and plentiful water for power and pulp processing. The first Alaskan pulp mill began production in 1954 at Ketchikan; a $50 million investment. Extension of pulp mill development to the public domain forests is expected in 7 to 20 years. Mills based on public domain timber are expected first at Haines, Cordova, and Cook Inlet. Other industries such as fishing ($70 million per year), mining ($28 million), fur and game ($3 million to $5 million), recreation (potential $100 million) are directly affected by the forest. This optimum development in Alaska requires the restoration and retention of complete forest cover on farflung watersheds. It seems incredible, yet, in the past 60 years, 80 percent of the Alaskan forest lands have burned one or more times. Each year fire destroys enough timber to supply the needs of 10 pulp mills the size of Ketchikan's (350 tons of cellulose per day) for entire year. In short, to attract the development of an Alaskan forest industry which will soon be needed to supply America's rapidly expanding pulp requirements, the Bureau of Land Management must take adequate steps now to protect and perpetuate the remaining resources, rebuild what have been depleted, and begin a program of sound management designed to increase average growth of timber per acre. Investors cannot be expected to make the heavy long-term capital commitments for pulp mills until the risk of losing the basic timber resource through fire destruction is reduced to a reasonable minimum. Certainty of long-term timber supply is an indispensable prerequisite for pulp industry development. Needed is a balanced forestry program offering immediate, adequate normalyear fire protection and the beginning of a forest rehabilitation and management program which can lay the groundwork for new industry, and then be expanded to meet industrial requirements. Protection must come first and foremost because without it all esle is to no avail. II. OBJECTIVES 1. Multiple use of public-domain forest and rangelands for maximum benefit to the people of the United States Management of the entire forest-resource complex, rather than timber management alone, is the goal. 2. Water-resource protection and development Interior Alaska is semiarid. Mining, fishing, and waterpower industries as well as domestic water supplies are therefore more dependent on the regulated runoff of undamaged watersheds than are regions of higher precipitation. 3. Fuller utilization and development of the present timber resource to achieve highest local and national well-being Huge volumes of overripe timber are lost annually through decay and produce no economic benefit. Long rotation age requires sound management 100 to 160 years before expected use. This tends to produce public carelessness and indifference concerning the potential economic importance of the forest resources. 4. Protection of the public's vested interest in the forest and range resources of Alaska from destruction or damage by fire, insects, and disease Alaska's rapid development is annually increasing the fire danger and control problems. Adequate insect and disease damage high; investigative funds needed to detect outbreaks and evaluate their seriousness and determine feasible control measures. 1. Fire protection III. NEEDED PROGRAMS Present program grossly inadequate. Since 1940, when organized fire protection was started, average annual burn has been 1,100,000 acres. Prior to that it was several times as great. Alaska cannot afford such massive destruction. Her forests are slow growing-100- to 160-year rotation. With industrial development imminent, 7 to 20 years, there is urgent need to halt the excessive fire losses and to begin the slow process of restoring forests on the many millions of acres of denuded land. Desired burn standard is not to exceed 100,000 acres per year. 2. Forest inventory Where and how large are Alaska's forests? A reliable answer can come only with a systematic forest inventory. None has been made to date. Sound forest practices and planning for the long-term needs of the potential pulp industry require at least an extensive inventory now. The estimated 125 million acres of forest land with possibly 350 billion board-feet must be covered. Inventory data will attract industrial attention and stimulate earlier development. 3. Forest research No research done to date. Alaska's forests are the only boreal forests in the United States. Management techniques from protecting and growing new forests to methods of cutting must be developed to assure maximum production per acre. The development of these techniques depends largely upon research which is the key that unlocks the door of the future. 4. Access roads Only 3,100 miles of road in Alaska. Fire and past cutting have reduced accessible timber supply near present roads and communities. Small, undercapitalized, part-time loggers, typical of Alaska today, cannot afford access-road construction. A program of road-construction development should be correlated with Alaska Road Commission projects. 5. Forest management Improve present timber sale and use supervision. once a year. Only 1 man per 10 million acres now. for near future sales. Program to be stepped up, as forest industrial expansion. 6. Forest planting Many sales now seen only Basic plans must be made needed, to handle expected No planting or reseeding to date in Alaska. Given time, 30 to 50 years, and 7. Forest recreation As a major aid in fire prevention and to afford the public reasonable opportunities for enjoyment of Alaska's forest lands, and its superlative scenic attractions, limited campground facilities and access' trails are needed along present and future highway routes. 8. Materials disposal program Averaging 5 million cubic yards since 1950, but 15 million cubic yards in 1954, gravel, sand, and rock are important public-domain assets in Alaska's construction economy. Size of future program dependent on court decisions and congressional action regarding gravel, etc., as a material versus mineral. More adequate supervision and selection of sites needed to assure unimpeded construction yet not destroy scenic values, fish streams, etc. 9. Facility construction program The Bureau has operated for 15 years from poorly constructed, temporary-type buildings obtained from CCC, Army surplus, and salvage. Only a meager $57,000 has been appropriated for construction. Needed are headquarters-office buildings, garages, warehouses, crew barracks, etc., at forest district and fireguard headquarters located at a dozen strategic places. These would be bases of operation for all forestry activities. IV. APPROPRIATION NEEDS FOR PROGRAM To achieve the foregoing programs under present cost structures and developmental stage of Alaska the following funds are needed: Over the years the rate of surveys of the public domain in Alaska has progressed slowly, comparatively speaking. To say that less than 1 percent of the area has been surveyed presents a gloomy picture. This infers that all of Alaska awaits survey and should be covered. Such is not the case. There are millions of acres which do not require survey in the foreseeable future. However, the specific statement that we have under survey less than 3 million acres shows that we have a long way to go. It has been necessary that we concentrate on specific jobs rather than try to add acreage to our credit. Such detailed surveys as townsites and small tracts for home, business and recreation have been strategically located. Taking cognizance of the pulp-mill activity in southeastern Alaska, we have lotted many areas in the vicinity of Ketchikan, Sitka, Wrangell, and Juneau. We have extended the townsite surveys in several of those communities. Likewise in the Fairbanks and Anchorage areas we have surveyed and have disposed of several thousand tracts to people who have built homes, have businesses, or have secured them for recreation. Isolated special surveys requested by land claimants scattered throughout Alaska require much of our attention. Cautiously, we will advance the idea that our special survey program and our small tract surveys are reasonably current. During the past two seasons and particularly in the summer of 1955 we have concentrated a high percentage of our efforts in the field toward extending the rectangular net-that is, defining on the ground the outline of townships and sections within townships. We are extending the net along the main highways and in areas which give promise of early settlement. Once descriptions can be made in terms of the rectangular survey the necessity for many special surveys will disappear and our operating expenses will diminish. Also, if land claimants have a readymade land description which we and they recognize as official, the time within which patent may be secured is diminished by a year at least, pro |