Alaska's Rural Schools: Dual Role as Education Centers and Emergency Shelters

Alaska's public school buildings serve a dual function, operating as educational institutions and designated emergency shelters. Observations indicate that various school facilities across the state require significant maintenance and upgrades.

Emergency Response in Kipnuk

In October, a storm, identified as the remnants of Typhoon Halong, caused significant flooding in Kipnuk, a village located in western Alaska's Kuskokwim river delta. Residents, including James Taq'ac Amik and his girlfriend, sought refuge from rising floodwaters. Their initial plan was to proceed to Kipnuk's public school, recognized as the largest structure in the Alaska Native Yup'ik community.

Upon arrival, the school's primary generator was operational but was subsequently overwhelmed by the increased demand for power from hundreds of residents. A smaller backup generator also failed to meet the heating and charging requirements. District staff had been performing upgrades to the main generator prior to the storm. Following two days, local leadership determined the storm damage necessitated a mass evacuation of the community.

Schools as Critical Infrastructure

Public school buildings are integral to disaster response in hundreds of predominantly Indigenous villages throughout Alaska. In many remote areas, these schools are among the few buildings equipped with flush toilets and independent generators. Their construction on pilings provides elevation, which is a factor in areas prone to rising water levels. Additionally, their size allows them to accommodate large numbers of people for extended durations.

Alaska state Senator Löki Tobin, chair of the Senate Education Committee, stated that schools are recognized evacuation points. Bryan Fisher, Alaska's emergency management director, described them as "last place of refuge" and "lifeboats."

Governor Mike Dunleavy has declared more than a dozen disasters since August 2024. Public schools were utilized as emergency shelters in at least half of these instances. In October, 52 communities reported damage, necessitating hundreds of residents to shelter in rural public schools. Since 1998, Alaska has experienced over 140 state-declared disasters, with schools functioning as shelters in dozens of these events.

Funding and Maintenance Deficiencies

Rural schools in Alaska have experienced decades of underfunding for maintenance. A report by KYUK Public Media, NPR, and ProPublica identified health and safety concerns within many of these facilities. The state is legally obligated to fund construction and maintenance projects in rural school districts, as these unincorporated communities lack local tax revenue for educational funding.

Over the last 28 years, Alaska's rural school districts submitted approximately 1,800 requests for state funding for school maintenance and repair. Only 14% of these requests received approval. The backlog of major maintenance projects continues to expand while the state budget has contracted.

Alaska Education Commissioner Deena Bishop noted that the consistent maintenance required to sustain buildings has not been adequately addressed, contributing to emergency situations.

Specific Community Cases

Kipnuk

The Lower Kuskokwim School District had waited 14 years for state funding for a major renovation, which was approved in 2015. However, the district has not submitted further funding applications since then, with Superintendent Hannibal Anderson indicating a belief that their needs would not be prioritized for funding, despite generator maintenance requirements.

Kotlik

In Kotlik, a village of over 650 residents, 70 individuals sheltered in the local school for two nights. Principal Cassius Brown explained that the school's elevation and distance from the river make it a preferred shelter over other community buildings. Since 2018, the Lower Yukon School District has annually requested between $2 million and $5 million for extensive repairs to the Kotlik school and another nearby, but these requests have not been funded.

Chevak

Chevak, home to approximately 950 Alaska Native Cup'ik people, saw 65 individuals shelter in its school's gymnasium for several nights. Principal Lillian Olson noted the community's reliance on the school for shelter, referencing a past week-long power outage. A fire sprinkler test failed in September. Superintendent Jeanne Campbell of the Kashunamiut School District reported issues with the school's boiler and broken water pipes affecting the fire sprinkler system. Last year, the district submitted a $32 million renovation request for the Chevak school, the first since 2001. This proposal was one of 114 for fiscal year 2025; only 17 projects received state funding, excluding the Chevak school.

Hooper Bay

Between 50 and 60 individuals sheltered in Hooper Bay's public school for two nights. Mayor Charlene Nukusuk indicated the school's safety in a village vulnerable to coastal storms. The school was rebuilt after a 2006 fire. Since then, the district has submitted 29 funding requests totaling over $8.4 million for various repairs, including roofing and emergency lighting. Last year, $2.3 million was allocated for "exterior repairs."

Inter-agency Coordination and Policy

Alaska's emergency management division and the state's education department do not have formal agreements designating schools as emergency shelters, nor do they have specific funding allocated for maintaining schools for this purpose. A spokesperson for the emergency management division noted that some state grants could be accessed for emergency preparedness.

Bryan Zadalis, spokesperson for the education department, stated that schools are constructed for educational purposes, with other uses considered incidental. He confirmed that the education department does not inspect facilities to assess their condition as emergency shelters.

Senator Tobin raised the issue of funding schools for emergency functions during a February 2024 budget meeting with Craig Christenson, deputy commissioner of the Alaska Department of Military and Veterans Affairs, which oversees the emergency management division. Tobin questioned whether the lack of maintained school shelters could lead to increased costs for evacuating residents. Christenson confirmed the department utilizes schools but stated his department does not maintain them.