Shaktoolik, Alaska: Climate Change Adaptation for an At-Risk Community
Alaska Sea Grant Program
Sources for Climate Change Adaptation Funding and Technical Assistance
Prepared by
Alaska Sea Grant Program and
Glenn Gray and Associates
February 2014
1.0Introduction
1.1Background
1.2How to Use this Report
2.0Funding Needs
2.1 Hazard Assessment and Emergency Response
2.1.1Hazard Assessment
2.1.2Emergency Response Plans
2.2Community Planning
2.2.1Community Plans
2.2.2Adaptation Planning
2.3“Stay and Defend” Projects
2.3.1Utilities
2.3.2Bulk Fuel Storage
2.3.3Landfill
2.3.4Transportation
2.3.5Buildings
2.3.6Erosion Control
2.3.7Local Observation Programs
3.0Funding Sources
3.1Federal Funding Sources
3.1.1Department of Agriculture
3.1.1.1 Natural Resource Conservation Service (NRCS)
3.1.1.2 Rural Development Agency
3.1.2Department of Commerce
3.1.2.1NOAA, National Marine Fisheries Service (NMFS)
3.1.2.2 NOAA, Community-Based Restoration Program.
3.1.2.3 NOAA, Office of Atmospheric Research, Climate Program Office
3.1.2.4 NOAA Sea Grant
3.1.2.5 Economic Development Administration
3.1.2.6 Office of Ocean and Coastal Resource Management
3.1.2.7 Broad Agency Announcement
3.1.2.8Coastal Services Center (CSC)
3.1.3Department of Defense
3.1.3.1 U.S. Army Corps of Engineers (USACE)
3.1.3.2 Innovative Readiness Training Program
3.1.4Denali Commission
3.1.5Environmental Protection Agency (EPA)
3.1.6U.S. Department of Health and Human Services (HUD)
3.1.6.1 Administration for Native Americans
3.1.6.2 Indian Health Service
3.1.7Department of Homeland Security
3.1.7.1 Federal Emergency Management Agency (FEMA)
3.1.8U.S. Department of Housing and Urban Development (HUD)
3.1.9 Department of the Interior (DOI)
3.1.9.1 Bureau of Indian Affairs (BIA)
3.1.9.2 U.S. Fish and Wildlife Service (USFWS)
3.1.9.3U.S. Geological Survey (USGS)
3.1.10 U.S. Department of Transportation
3.1.10.1Federal Highway Administration (FHWA)
3.1.10.2Federal Aviation Administration (FAA)
3.2State Agencies
3.2.1Division of Homeland Security and Emergency Management (DHS&EM)
3.2.2Department of Commerce, Community & Economic Development (DCCED)
3.2.2.1 Division of Community and Regional Affairs
3.2.2.2 Alaska Energy Authority (AEA)
3.2.3Department of Environmental Conservation
3.2.4Alaska Department of Transportation and Public Facilities (DOTPF)
3.2.5Alaska Housing Finance Corporation (AHFC)
3.3OTHER
3.3.1Bering Straits School District
3.3.2Alaska Native Tribal Health Consortium (ANTHC)
3.3.3Norton Sound Economic Development Corporation (NSEDC)
3.3.4Alaska Village Electric Cooperative (AVEC)
3.3.5Kawerak, Inc.
3.3.6Climate Solutions University
3.3.7 Seventh Generation Fund
3.3.8RurAL CAP
3.3.9 Zender Environmental
3.3.10 National Fish and Wildlife Foundation (NFWF)
3.3.11 Alaska Conservation Foundation
Sources for Climate Change Adaptation Funding 1
Shaktoolik, Alaska - Climate Change Adaptation
for an At-Risk Community
Sources for Climate Change Adaptation Funding and Technical Assistance
1.0Introduction
This document was prepared to fulfill one of the grant deliverables for the 2012-2013 Alaska Sea Grant Project titled Shaktoolik Alaska Climate Change Adaptation for an At-Risk Community. It identifies potential sources for funding for the community of Shaktoolik in its efforts to respond to increased risks of flooding and erosion from climate change. While many funding sources do not specifically address climate change issues, there may be opportunities to protect against flooding and erosion threats when upgrading buildings, roads, utilities, and facilities. In addition, it identifies organizations that fund climate change related initiatives. While prepared for Shaktoolik, this document may also be of use to other at-risk communities in Alaska.
1.1Background
Shaktoolik faces considerable threats of erosion and flooding, especially from fall storms due to a trend of later freeze up of Norton Sound. The GAO found that at least 184 of Alaska’s 214 villages have experienced some degree of erosion or flooding (GAO 2003).[1] Government agencies consider Shaktoolik as to be one of 4 communities in immediate need of relocation (GAO 2009), and the State of Alaska Immediate Action Workgroup included it in the 6 top priority communities referenced in this document as “at-risk communities.”[2] A clear plan of action with widespread community and agency support will increase Shaktoolik’s chances of receiving future funding.
Current efforts to reduce both state and federal budgets level combined with the number of at-risk Alaska communities will result in extreme competition for limited funds.
At the time this document was written, community leaders agreed to focus their efforts on protection of the existing community site from erosion and flooding rather than relocating the community. Interim solutions being discussed by the community and government agencies include erosion protection structures, an evacuation road and a multi-purpose shelter located in the community that would provide shelter during a storm.
Since the community has decided not to pursue co-location or relocation at this time, this document focuses on funding sources to implement a “protect in place” approach. That said, some of the funding sources may also be useful to support construction of new infrastructure.
In addition to the funding programs identified in this paper, flood proofing or relocation efforts can be funded through direct appropriations from either the State of Alaska or Congress.
1.2How to Use this Report
While some funding programs of state and federal agencies are relatively stable, others may only be temporary programs. For that reason, this report provides a snapshot in time of programs available in 2013. Website addresses are provided with the recognition that some of these links will change with time. If the links no longer work, it may be possible to find the current link by doing a web search on the key words of the grant.
Grant programs often change, so communities seeking funding may wish to search the following sites.
- Listings of current federal grants available on
- Community-related funding through the Alaska Department of Commerce, Community and Economic Development at
- Tribal funding opportunities for climate change related projects at
- Signup for the Denali Commission newsletter at
- Opportunities for private funding through the Foundation Center
The remainder of this document is organized under the following categories:
- Section 2 outlines funding needs for the community of Shaktoolik. While some of these needs may be shared by other at-risk communities, this section focusses on the current situation facing Shaktoolik.
- Section 3 describes federal and state funding sources for erosion control, flood protection and relocation by agency.
2.0Funding Needs
2.1 Hazard Assessment and Emergency Response
At-risk communities in Alaska need funding to complete plans that will help them prepare for storm events, flooding and erosion. In addition, some funders require completion of specific plans before they will provide funding in response to an event.
2.1.1Hazard Assessment
An accurate assessment of natural hazards is imperative in order for a community to plan adequately for a storm or another natural hazard. FEMA requires completion of a Local Hazard Mitigation Plan before a community can be eligible for certain funding.
- Local Multi-Hazard Mitigation Plan: This plan, completed in October 2009 by WHPacific and Bechtol Planning and Development, provided an initial assessment of natural hazards. Updates to this plan are required.
- Alaska Baseline Erosion Assessment: This 2006 study completed by the U.S. Army Corps of Engineers, included a Community Erosion Assessment for Shaktoolik and other at-risk communities.
- Shaktoolik Coastal Flooding Analysis: This study, completed in 2011 by the U.S. Army Corps of Engineers, provides a site-specific analysis of flooding and erosion threats.
2.1.2Emergency Response Plans
Community planning in response to erosion and flooding hazards is necessary in order to evaluate options and plan a future course of action.
- Emergency Operations Plan: This plan, completed by Ecology and Environment in 2010, describes how the community will respond to emergencies resulting from all types of hazards.
- Continuity of Operations Plan: This plan, completed by Ecology and Environment in 2010, indicates how the community will provide essential services during emergency response and recovery.
- Evacuation Plan: This plan, completed by Ecology and Environment in 2010, describes efforts that will be taken for partial or full-community evacuations.
2.2Community Planning
Communities often complete strategic or comprehensive plans to create a vision for the future and a roadmap for getting to that vision. Some funders require a current community plan before funding community improvements.
2.2.1Community Plans
- Local Economic Development Plan: Kawerak, the regional tribal nonprofit organization, works with communities in the Norton Sound and Bering Strait region to develop local economic development plans. In practice, these plans address other issues in addition to the local economy. During 2013, Kawerak was updating the 2006-2011plan which was written in 2006.
2.2.2Adaptation Planning
Some at-risk communities in northern Alaska and Canada are planning to respond to increases threats of erosion and flooding caused in part by changing climate conditions. These plans are not required, but are instrumental in helping communities develop a step-by-step process to respond to flooding and erosion.
- Shaktoolik Planning Project: The Kawerak Transportation Department hired Glenn Gray and Associates to help the community plan for storms, flooding and erosion. This one-time project resulted in a Situation Assessment and documentation of initial steps the community plans to take to respond to flooding and erosion.
- Sea Grant Project: In 2012, the Alaska Sea Grant program teamed with Glenn Gray and Associates to complete an adaptation plan to respond to flooding and erosion risks associated with Climate Change.
- Multipurpose Facility: The Alaska Department of Commerce, Community and Economic Development funded a project to investigate the feasibility of a multipurpose building that could also serve as an emergency shelter.
- Alaska Community Coastal Protection Project: This project will continue flooding and erosion planning efforts for Shaktoolik.
2.3“Stay and Defend” Projects
Shaktoolik has decided to “state and defend” the current site of the community against threats from flooding and erosion. In order to protect the community infrastructure and provide basic public safety needs,
2.3.1Utilities
In order to protect the community during an extreme flooding event, public utilities will need to be upgraded or replaced. For example, it may be necessary to raise electrical lines above the anticipated flood level. Septic systems may also need refurbishing to ensure that tanks do not float above ground during a flood. Telecommunications may also need upgrading to ensure operations during storms.
The current water system may also need to be upgraded to respond to flooding and erosion. The community has expressed concerns that continued beach erosion at the old site could breach the peninsula and jeopardize the current source of water at the area known as First Ben.
2.3.2Bulk Fuel Storage
The community has two bulk fuel storage facilities that need to be upgraded. The first facility, located at the south end of town, includes tanks owned by the Shaktoolik Native Corporation, the Native Village of Shaktoolik, the City of Shaktoolik, and the Bering Straits School District. The second tank farm is located next to the Alaska Village Electric Cooperative (AVEC) power plant. None of the tanks meeting Coast Guard standards, liners are in need of replacement, and several of the tanks are no longer used because of their poor condition. Coastal storms of 2003, 2004 and 2005 brought driftwood a few feet from both storage facilities. A larger storm could damage the tanks further and lead to a petroleum spill. The community’s 2006 -2011 economic plan listed consolidation of the fuel tanks away from the coast as its top priority.
2.3.3Landfill
Although relatively new, the Shaktoolik landfill could use some improvement, including an enhanced burn unit. No analysis has been done about impacts to the landfill from flooding.
2.3.4Transportation
Transportation systems provide an important role for movement within the community as well as evacuation from the community during an extreme event. A portion of the apron at the current airport was placed within the active zone of the shoreline and is subject to flooding during severe storms. Boats could provide an option for evacuation or refuge during a storm, but there has not been an analysis of the feasibility of this option. Initial work has been done to investigate an evacuation road, but the community has determined to pursue other options because the route could be dangerous during storms.
2.3.5Buildings
Floodproofing will be necessary to protect buildings in the community from a severe flooding event. Buildings may need to be raised, anchored and armored to prevent damage from debris. Initial designs have been completed for a multi-purpose building that could also serve as an emergency shelter.
2.3.6Erosion Control
The U.S. Army Corps of Engineers estimates that the shoreline in front of the community is eroding at a rate of 2-feet per year. This prediction depended on a limited set of aerial photos, and there may be a need for additional funding to reevaluate the erosion potential for this area.
If it is verified that the area in front of the community is eroding, it will be necessary to implement erosion protection measures. Possible responses include construction of berms vegetated with native materials, beach nourishment or construction of revetments or groins. In addition, the area at the former village site is currently experiencing erosion along the beach and along the river. Funding will be needed to complete feasibility studies to evaluate erosion control options as well as to implement the option that is selected.
2.3.7Local Observation Programs
Local environmental observation programs are growing throughout Alaska. The programs depend on local observers to record weather, flood levels and anomalies. While some of these programs depend on volunteer labor, funding is necessary to provide equipment.
3.0Funding Sources
This section summarizes potential funding sources to complete community responses to flooding and erosion as well as research about climate impacts. Section 3.1 summarizes federal funding opportunities, and Section 3.2 addresses state funding opportunities.
3.1Federal Funding Sources
Federal funding sources are listed by department and then by agency within that department.
3.1.1Department of Agriculture
3.1.1.1Natural Resource Conservation Service (NRCS)
Emergency Watershed Protection (EWP) Programs: The goals of these programs are to prevent flood and erosion damage and further conservation and use of land and water. The programs provide technical and financial assistance to public and private landowners, state or local governments, and Alaska Native tribes or tribal organizations. The Small Watershed Program requires a sponsoring local organization. Eligible projects must employ measures that are adequate, safe, economically and environmentally defensible, and technically sound and must meet other requirements in federal statutes and regulations.
Emergency Community Water Assistance Grants: This programassists rural communities that have experienced a significant decline in quantity or quality of drinking water due to an emergency or an imminent threat.
Conservation Technical Assistance: This program provides technical assistance for activities that use natural resources. The assistance is in the form of resource assessment, practice design, resource monitoring.
Wildlife Habitat Incentive Program (WHIP): This program provides technical assistance and up to 75% cost share for programs that improve fish and wildlife habitat.
3.1.1.2Rural Development Agency
The Rural Development Agency provides a number of grant opportunities to communities, including the programs listed below.
Water and Wastewater System Grants: This program funds water and waste disposal systems in rural Alaska villages to develop and construct water and wastewater systems to correct dire health and sanitation conditions.
Rural Alaska Village Water and Waste Disposal Grants:The goals of this program are to help rural Alaska villages remedy dire sanitation conditions using funds made available specifically for this purpose. Grant funds construct, enlarge, extend, or otherwise improve rural water, sanitary sewage, solid waste disposal, and storm wastewater disposal facilities. In addition, Grant funds construct, relocate, or make other public improvements necessary for the successful operation or protection of such facilities. To qualify, a dire sanitation condition must exist and a community must meet the definition of a village. Hub communities with populations exceeding 600 may also be eligible if dire sanitation conditions exist. This funding requires a 25% match with funds from the Alaska Village Safe Water Program or other nonfederal sources.
Water and Waste Disposal Loans and Grants: The program assists public entities such as municipalities, boroughs, special purpose districts, Native tribes, and nonprofits in rural areas or cities. It provides loan and grant funds to construct or improve rural water, sanitary sewage, solid waste disposal, and storm wastewater disposal facilities, and to construct, relocate, or make other public improvements necessary for the successful operation or protection of such facilities. Cities, boroughs, federally recognized Alaska Native tribes, and nonprofit corporations are eligible.
USDA Community Facilities Program: This program provides low interest long-term loans and grants to fund essential community services, which can include roads, bridges, public safety facilities, medical facilities, libraries, town halls, emergency shelters, etc.
Water and Environmental Programs: This program provides loans and grants for drinking water, sanitary sewer, solid waste and storm drainage facilities for rural communities.
Housing and Community Assistance: This program provides loans and grants to assist rural communities in providing adequate housing and community facilities.
Rural Repair and Rehabilitation Loans and Grants: This program provides funding to low income homeowners to improve dwellings or remove health and safety issues. Check to see if this could be used to elevate buildings.
Housing Preservation Grants: This program provides grants for the repair or rehabilitation of low income housing.
Predevelopment and Planning Grant: This program provides funding for developing a complete application for a project.
Special Evaluation Assistance for Rural Communities and Households Grants: This program provides funding for planning a solid waste site.
Revolving Fund Water and Waste Loan: This program provides loans for development of solid waste facilities.
Emergency Community Water Assistance Grants: This program assists rural communities that have experienced a significant decline in quantity or quality of drinking water due to an emergency.
Solid Waste Management Grants: This program provides grants for technical assistance and training to reduce or eliminate pollution of water resources and improve planning and management of solid waste sites.