Deering AK Long-Range Transportation Plan (TPD1103012)

• An Orthometric map of Deering was created by Aerometric in December 2010 from an August 2010 photo. The area of coverage includes the village and northern part of the airport.
• Community profile maps and hi-resolution aerial photographs, orthomaps, and contour data are available for purchase from the State of Alaska, Division of Community & Regional Affairs.
• Deering Village Land Status Map, NANA Regional Corporation
• NANA Deering ANCSA Withdrawal Area Land Status Map
• Topographic surveys of Deering Road were conducted by DOWL Engineers in 2001 and 2003.

 2.7.2    Land status within project area

NANA Regional Corporation acts as the Village Corporation. NANA’s Alaska Native Claims Settlement Act (ANCSA) Section 12 (a) land entitlement from the federal government is 92,160 acres for Deering, Alaska (76,778 acres conveyed to date). Section 14 (c) (3) of ANCSA provides for the conveyance of surface estate from the Village Corporation to the City for the purpose of community use. This conveyance was signed and executed in 1996.

2.7.3    Culturally sensitive and traditional-use areas

Subsistence activities in and around Deering are not only an important part of the Inupiaq culture, but a necessity of life in rural Alaska. Cultural and traditional-use areas in the vicinity of Deering include:

• Berry picking: The areas south of Deering along the hillside and around the airport runway are popular for blueberry picking in late summer.
• Hunting: Deering is within the migration route of the Western Arctic Caribou Herd. Fall hunting areas are accessed by boat, or by vehicle along Deering Road. Winter hunting sites are accessed by snow machine using established trails.
• Fishing: Spring fishing takes place along the shore of Kotzebue Sound and Inmachuk River.
• Wood gathering: Wood is generally gathered from the beach located beyond the local cemetery. Wood is collected and stacked to dry during the summer months.
• Fish drying: Fish are typically dried at fish camps located along the banks of the Inmachuk River. Many residents also install fish racks next to their home for drying.
• Duck hunting: Duck hunting takes place to the immediate south and west of the community.
• Cemetery: The local cemetery is located northwest of the community.

3.0      Financial and Management Capacity

3.1         Economic and Financial Profile

Deering’s economy is a mix of cash and subsistence activities. Moose, caribou, musk ox, seal and beluga whale provide most meat sources; pink salmon, tom cod, herring, ptarmigan, rabbit and waterfowl are also utilized. The Karmun-Moto reindeer herd, once numbered about 1,400 animals, no longer provides any employment opportunities. A number of residents earn income from handicrafts and trapping. The village is interested in developing a craft production facility and cultural center to train youth in Native crafts. The Red Dog Mine, school, City, Maniilaq Association, stores, and an airline provide the only year- round jobs. Summer-time mining recently started near the historical Utica mine. Two residents hold commercial fishing permits. The village wants to develop eco-tourism, including a 38-mile road to Inmachuk Springs and a world-class bird-sighting area.

3.2         Transportation Management and O&M Practices

The City of Deering maintains the local roads. The airport runway and apron is maintained by the Alaska Department of Transportation and Public Facilities.

No information on road operations and maintenance expenditures were found. Deering has participated in the State Revenue Sharing in the past to fund roadway maintenance.

4.0      Existing Transportation Facilities

4.1       History of Transportation Improvements

Airport: The Deering Airport was constructed in about 1982 and is owned and operated by the State of

Alaska, Department of Transportation & Public Facilities. A cross-wind runway was constructed in about 1995. Deering owns a van that is used as an airport shuttle. The van, purchased in 2006 with tribal shares, is a 2007 GMC Savana. A list of FAA and DOT&PF funded projects is listed in Table 8 below. A small dirt runway is located near the Utica mine and remains in use by prospectors.

Trails: Local trails have been used in this area since Deering was first settled in the early 1900’s. Prior to the introduction of snow machines, inter-village trails were used by dogsleds for traveling and mail delivery. Seasonal trails connect to Kotzebue, Buckland, Shishmaref, upriver hunting sites, and coastal wood-gathering sites.

Roads: The early road system in Deering was developed to transport supplies and equipment to mining sites upriver. Local community roads were constructed without the benefit of long-range planning resulting in narrow roads, sharp turning angles, and limited right-of-way access within sections of the community. Over the years improvements have been made to grading and drainage along portions of the roads.

Waterways/ Docks: The boat docking area has been used since the earliest days of Deering.

FAA = Federal Aviation Administration, DOT&PF = Department of Transportation & Public Facilities.

4.2         Existing Transportation Facilities and Present Deficiencies

Passengers and cargo are transported to the community primarily by air. The village is equipped with a state-owned gravel airstrip and receives regularly scheduled flights on a daily basis. Most bulk cargo and fuel is transported to the community via barges during the summer months. Since the near shore is shallow, the freight must often be lightered to the beach. There are no constructed roads that connect Deering to other neighboring villages. Winter trails connect Deering with the neighboring communities of Candle, Buckland, Shishmaref, and Kotzebue.

4.2.1    Airport

A State-owned airport provides year-round access to Deering. The facility consists of a 3,300 foot primary runway, 2,640 foot cross-wind runway, apron, and equipment storage building. The airport and associated runway is located approximately one mile west of the community.

Operation: The Deering Airport is owned and operated by the State of Alaska, Department of Transportation & Public Facilities. Several regional air taxis operating out of Kotzebue provide daily service to Deering via the state-owned facility. These flights include transportation of people, U.S. mail, medical equipment, food, and general cargo shipments.

Maintenance: The airport is maintained by the State of Alaska DOT&PF. State-owned heavy equipment used for maintaining the runway includes a grader and front-end loader. The facility is maintained year- round and routinely graded in late spring after breakup. The runway is also plowed as-needed during the winter. Heavy equipment is stored in a heated garage. After heavy rains and spring breakup, the runway becomes soft, thereby increasing the maintenance requirements.

To reduce airborne dust, the DOT&PF has previously sprayed a liquid dust inhibitor on the runway and apron using spray equipment rented from Kawerak, Inc. out of Nome, Alaska. According to residents, the dust control works very well.

Deficiencies: The reported airport-related deficiencies include the following:

• Airport is too short to land larger airplanes.
• No waiting facility: The residents and visitors of Deering remain in the cold as they await air travel during winter months.
• Excessive dust: Dust is a major problem – especially at the apron when the aircraft are throttling to turn the plane. This often spreads dust over the entire community.

4.2.2    Waterways and dock

The Kotzebue Sound is a transportation route for both private watercraft and barge traffic. When the Sound is not frozen, the water body serves as the primary transportation route to nearby villages, fish camps, and hunting and fishing areas. The barge docking facilities at Deering consist of a gravely beach accessible by one road.

Private boats dock along the Inmachuk River and Smith Creek where they are protected from heavy wave action. During the summer it is common to find 20 to 30 boats anchored along the river’s edge.

Operation: Barge service provides delivery of general supplies for the local stores, gasoline, fuel, oil, gravel, personal vehicles, construction equipment and materials, and other items requiring shipment. Fuel delivery to Deering occurs only by barge during the summer months. Fuel and gasoline delivered by barge are used throughout the year to provide for electrical generation, commercial and residential heating, and transportation (boats, trucks, 4- wheelers, snow machines, etc.). Crowley Marine Services is the primary barge operator and ships fuel and supplies each summer.

Maintenance: None

Deficiencies: Improved road access to the beach will be addressed in the roads section below. Deficiencies specifically related to the beach and docking facilities include:

• Shallow docking for barges in Kotzebue Sound. Closer docking will provide safer loading and unloading of equipment and supplies.
• Poor landing along the Inmachuk River for private boats. Grading and improved road access is needed.
• Kotzebue Sound is eroding the entire beach front, including in the vicinity of the sewage lift station.

4.2.3    Roads

In 1993, the BIA Indian Reservation Road (IRR) Inventory was updated and presently includes three official routes in Deering. The routes, which are summarized in Table 9, combine for approximately 50.3 miles of existing and proposed roadway that serves the community’s residents, businesses, and public facilities. In general, the existing roads are 10 to 20 feet wide and are constructed at or above grade from sand and gravel taken from various local borrow sources. During spring and early summer, many of the roads become soft and muddy making vehicular travel difficult. Once the roads dry out, they become a nearly constant source of dust. Fall rains return the roads to their muddy condition.

Deering Road (BIA Route 2500): This road extends from town center to a historic inland mining district, approximately 26.3 miles in length. Deering Road runs adjacent to the Inmachuk River, and consequently, there are sections that run very close to the river’s edge.

Deering Road has a 90-foot span, 15-foot wide, wood/steel bridge across Smith Creek. The bridge is reported to be in good condition; however, the bridge was not intended for heavy equipment. Traffic from tractors, bulldozers and other construction equipment is diverted through the river during low water levels. Further investigation of the bridge structure and its load capacity is needed.

Chicago Creek Road (BIA Route 0007): This road serves as a passage to a mining area farther inland from Deering town center. This road veers off from Deering Road and extends 22 miles in length. This roadway has not had any maintenance or improvements thus far.

Cape Deceit Road (BIA Route 0006): During past winters, Cape Deceit Road becomes completely inaccessible to vehicular traffic due to deep snow and high drifts, thereby resulting in highly restricted travel. This obstruction is a major life and safety risk to all members of our community.

Cape Deceit Road (2.0 miles in length) is the most widely used road in the community and provides access to all homes, city and tribal offices, stores, clinic, school, airport road, power plant, water plant, fuel tank farm, and cemetery. During the winter months, snow accumulates on the road and is often blown into high drifts. When this happens the residents must use the wind-swept beach as an alternative roadway.

Operation: The primary means of overland transportation in the community is by four-wheeler and snow machine. There are, however, an increasing number of locally-owned, full-sized trucks. The trucks are difficult to maneuver on some of the more narrow roads.

Maintenance: There is no formal maintenance program for the local roads. Roads are graded and repaired as needed by the City of Deering. In the past, gravel has been added to the surface of a few roads, primarily those that connect the barge landing area with major construction sites. However, most roads are in poor condition and in dire need of repair.

Deficiencies: The identified road-related deficiencies in Deering include the following:

• Deering Road is in dire need of improved drainage, grading, and foundation repair along portions of the route. Recent improvements, including bank stabilization and culvert replacement have been very successful. A new river crossing is needed.
• Chicago Creek Road is currently inaccessible. Grading and drainage improvements are needed.
• Cape Deceit Road is in dire need of improved drainage, grading, and foundation repair. The road west of the fuel tank farm is located on tundra and in very poor condition. Permafrost degradation has resulted in ground slumping and deep pools adjacent to the road. The most notable impact is on the southwest corner of the sewage lagoon, which is at risk of failure. A failure and discharge of raw sewage would be highly undesirable and a health risk to the environment and Deering residents.
• Existing roads that currently provide access to homes and business are not on the BIA IRR Inventory. These roads need to be surveyed, platted, and added to the inventory.
• Secondary access to the airport is needed for evacuation and other emergency use. During past flood events, access between the community and airport was cut-off due to high waters. An alternate access will ensure a safe route for evacuation.
• The beach is regularly used as a road to travel within the community, particularly in the winter when Cape Deceit Road is inaccessible due to snow drifts. This route (Beach Road) will be added to the inventory.

4.2.4       Trails

Seasonal-use trails remain an important part of travel in and around Deering. During the winter, the trails are exclusively used by snow machine to travel to nearby villages including Kotzebue, Shishmaref, and Buckland. The trails also provide access to important hunting areas. These routes are used only after enough snow accumulates to provide a smooth trail.

Kotzebue Trail: The Kotzebue trail begins in Deering and extends approximately 28 miles eastward to Kiwalik. The trail is primarily on land and accessible only after sufficient snow fall. Kiwalik is an unincorporated village located where the Kiwalik River flows into Kotzebue Sound. There is a search and rescue cabin located in Kiwalik.

From Kiwalik, the trail continues on approximately 24 miles to Elephant Point. This section of the route is primarily on the frozen Kotzebue Sound. The trail then goes northward to Kotzebue.

Buckland Trail: The Buckland trail follows the same route as the Kotzebue trail until Kiwalik, then diverts to Buckland. Winter trails are staked.

Shishmaref Trail: The Shishmaref Trail begins in Deering and extends approximately 30 miles westward to Goodhope. The trail is primarily on land and passable only after sufficient snow accumulation. It is approximately 65 miles from Goodhope to Shishmaref.

Upriver Trail: The upriver trail extends from Deering Road (Station 19 + 600) over a ridge and to a historic mining area. The trail is currently used to access the backcountry for hunting. Future improvements will provide access to mining areas.

Operation: Trails are used in winter by snow machine.

Maintenance: The Northwest Arctic Borough (NAB) provides funding for maintenance of trail stakes along the following winter trails:

Note: Funding amounts based on 2006-2007 records.

Temporary stakes constructed of either willows or plastic are placed on frozen waterways (i.e. lakes and rivers). Permanent wooden tripod stakes are placed on tundra for long-term use. Each year the routes along lakes and waterways have to be re-staked.

Deficiencies: Trail routes need to be added onto the BIA IRR Inventory.

4.3         Need for Transportation Improvements

4.3.1     Health and safety considerations

Dust: Dust has been reported as the number one health issue facing rural Alaska. Children are especially susceptible to the negative health impacts of dust, including bronchitis and asthma.

Bumps and ruts: Bumps and ruts are common on Deering roads and create highly uncomfortable travel conditions. These hazards also increase the risk of injury while traveling by bicycle or four-wheeler.

Road width: Narrow roads and limited line-of-sight increases the risk of injury while traveling by bicycle, four-wheeler, or truck. Some roads are too narrow for two vehicles to safely pass each other. Overgrowth of shrubs along Deering Road blocks the view of oncoming traffic.

Access: Improved access is needed for homes located behind the Native Store. The roads are narrow and there is no formal right-of-way. Cape Deceit Road becomes unusable during the winter due to snow build up and snow drifts. This prevents operation of the local emergency use vehicle. The road needs to be graded throughout the winter to provide vehicular access. Also, overhead power lines are dangerously low throughout town and along Deering Road to the pump house.

4.3.2    Environmental considerations

Erosion: Inadequate storm water control, and poor quality road foundation and surface course results in excessive erosion and sediment transport to the Inmachuk River during spring run-off and heavy rains.

Dust: Road dust that collects onto nearby vegetation significantly reduces the overall health of the plants, including willows, berries, and trees.

4.3.3    Operation and maintenance considerations

Roads in Deering are costly and difficult to maintain for the following reasons:

• Extremely muddy during spring break and after a heavy rainfall. Roads are left rough and bumpy after drying. Requires additional grading to smooth over.
• Poor road foundation causes slumping and heaving. Requires additional grading to smooth over.
• Poor drainage causes ruts. Requires additional grading to smooth over.
• Dust control is required to reduce health risks associated with excessive dust.
• Snow accumulates along Cape Deceit Road requiring excessive maintenance for removal.

A non-frost-susceptible foundation and surface course would improve the comfort and safety of road travel while significantly reducing the maintenance required.

4.4         BIA Road Classification

Based on the BIA road classification criteria, the majority of roads within the Native Village of Deering fall within the Class 3 category. The Class 3 category consists of roads located within a community that primarily serve residential areas. Most roads within the Deering community provide access to one or more homes. The BIA road classification is as follows:

Table 9: Summary of Existing and Proposed IRR Routes in Deering                                                                                                                                                                                                                                       

Note: CN = construction need

*These routes will be added in the future. Right-of-way issues will have to be resolved.

5.0      Recommended Transportation Improvements

5.1       Airport Improvements

Based on the noted deficiencies, the recommended improvements to the Deering Airport include:

• Extend the runway from 3,300 feet to 4,000 feet
• Build waiting facility to offer visitors and residents a warm waiting area at the airport

5.2         Waterways and Dock Improvements

Based on the noted deficiencies, the recommended dock improvements include:

• Construct dock that extends 50 feet into Kotzebue Sound for loading and unloading barges
• Provide graded and improved vehicular access to the Inmachuk River boat landing area

5.3         Road Improvements

To address the current deficiencies the following improvements are recommended:

• Add existing roads to BIA IRR Inventory
• New secondary access road to airport for emergency evacuation
• Deering Road improvements
• Cape Deceit Road improvements (extend to beach for wood gathering)
• Construct heated garage for heavy equipment (used in winter for road plowing)
• Improve access along Chicago Creek Road
• Dust control

5.4         Trail Improvements

Trail maintenance between villages includes annual repair and placement of guide markers. This work is funded by the Northwest Arctic Borough. It is reported that there are no additional maintenance needs for the trails.

6.0      Prioritized Transportation Improvements

6.1       Prioritization Criterion and Process

A preliminary ranking of the improvements was made during the October 13, 2009 site visit. The ranking was based on two primary factors: the health and safety benefits of the improvement; and the number of users who will benefit from the improvement. A second round of transportation prioritization occurred on February 28, 2011. Minor changes were made at that time and are reflected in the current transportation plan.

6.2         Phase One Transportation Improvements

The Phase One Transportation Improvements are presently considered “high priority” by the residents of Deering and should be constructed prior to 2015. Presented below is a prioritized list of the recommended improvements during this phase.

6.3         Phase Two Transportation Improvements

The Phase Two Transportation Improvement projects are presently considered “medium priority” by the residents of Deering and may be constructed between years 2015 to 2020. Presented below is a prioritized list of the recommended improvements during this phase.

6.4         Phase Three Transportation Improvements

The Phase Three Transportation Improvement projects are presently considered “low priority” by the residents of Deering and should be constructed between years 2020 to 2030. Presented below is a prioritized list of the recommended improvements during this phase.

7.0      Planning, Design, and Construction Considerations

7.1         Site Control

Site control is required to obtain an enforceable right to use a parcel of land. This right must be in writing. A deed, lease, or easement is the most common form of written authorization to use land. New right-of-way easements will be required for the following transportation improvements:

• West Airport Road
• Beach Road
• New Route and ROW west of Native Store (Second Avenue)
• New Route and ROW east of Native Store (Third Avenue)
• New Route and ROW east of Gilbert Barr’s home (Fourth Avenue). This parcel is presently a vacant lot.

7.2         Permitting and Regulatory Requirements

The permitting and regulatory requirements depend somewhat on the location of the project and the funding agency. Local roads may be constructed in accordance with Borough standards, but must meet State environmental permitting requirements. Roads funded by the State DOT&PF are typically designed and constructed in accordance with the DOT&PF standards. The following permitting and regulatory requirements should be planned:

• Legal Right-of-Way to the constructed facilities
• Environmental Assessment – meets the requirements of NEPA. This document will address the requirements of the following:
• Wetlands permitting
• Historical properties
• Endangered Species
• Coast Zone Management Act: Prior to any construction in Deering a Coastal Project Questionnaire and Certification Statement must be completed.
• Storm Water Pollution Prevent Plan (SWPPP)
• Construction approval from ADEC and EPA
• Material agreement with NANA for gravel extraction and use
• Department of Natural Resources approval for construction in the Kotzebue Sound (dock)
• Alaska Department of Fish & Game, Fish Habitat Permit – for construction within Kotzebue Sound (dock) and construction within normal high water mark of Inmachuk River.
• Northwest Arctic Borough Title 9 Code of Regulations.

7.3         Equipment and Materials

Presented below is a listing of equipment and materials that are typically used to construct, operate, and maintain low-volume gravel roads.

7.4         Cost Considerations

7.4.1      Cost summary

Presented below is a conceptual cost estimate for the proposed projects. The estimate takes into consideration the short construction season and the high cost of labor and materials associated with construction in rural Alaska. The estimate does not take into account the regional cost difference within Alaska. Furthermore, cost estimates are sensitive to project-specific conditions and should be refined if the project advances beyond the conceptual level presented in this plan.

7.4.2    Potential funding sources

Some potential sources of full or partial funding for future projects include:

• Alaska Department of Community and Economic Development (DCED) Capital Matching Grants
• BIA IRR Program
• Alaska Native Tribal Health Consortium (ANTHC)
• Denali Commission
• DOT&PF, State Transportation Improvement Program (STIP)
• Community Development Block Grants

See Appendix D for agency listing and addresses.

7.5         Implementation Plan

The Implementation Plan (IP) is an essential part of the planning process. The IP specifies the project tasks, timeline, and responsible person(s). This provides a useful way of tracking progress and increases the likelihood of success. The implementation plan for the Long-Range Transportation Plan is separated into three phases and presented below in Table 11, Table 12, and Table 13.

Table 11: Phase One Implementation Plan (2010-2015)

Table 12: Phase Two Implementation Plan (2016 2020)

 Table 13: Phase Three Implementation Plan(2021-2030)