See  figure 1 for a map of the Papahānaumokuākea Marine National  Monument showing the location of Midway, which lies about 1,300 miles  from Honolulu. II for a  fuller chronology of Midway events.) FWS Officials Reported That Midway’s Operations Funding Has Decreased in Recent Years and Project- Specific Funding Has Varied

The Midway Atoll National Wildlife Refuge’s funding consists of both  operational and project-specific funding. After Increasing for Fiscal Years 2009 to 2011, FWS Allocations for Midway Operations Reportedly Decreased Substantially

According to an FWS budget official we interviewed, after increasing from  fiscal year 2009 to 2011 to a peak of more than $4 million, Region 1’s  funding of operations for Midway decreased in fiscal years 2012 and  2013. For example, the Department of the Interior’s Central Hazardous  Materials Fund—an appropriation available to pay for the department’s  removal actions under CERCLA––provided over $20 million from fiscal  year 2010 to 2015 to perform lead-based paint abatement projects on  Midway, according to FWS officials. For Henderson Airfield, FAA, under an interagency agreement  for capital improvements with FWS, also provides up to $2.5 million  annually to pay for capital improvement projects, such as resurfacing  runways and taxiways. FWS Has Maintained Most Historic Properties but Not Others and Has Not Adequately Provided Public Notification and Sought Public Comment under the Section 106 Process

FWS has maintained most historic properties on Midway but has  demolished others without providing adequate public notification and  seeking public comment and input, which is not consistent with the  regulations implementing section 106 of the National Historic  Preservation Act. However,  officials with the Advisory Council on Historic Preservation pointed out  that another factor in the regulations that should be considered in  determining the extent of seeking and considering the views of the public  is the likely level of public interest in the action. Without  ensuring that key parties that have previously expressed interest in  historic preservation issues on Midway are notified about future actions  that may have an adverse effect on historic properties, FWS will not have  reasonable assurance that it is adequately providing public notification  and an opportunity for public comment under the section 106 process. Challenges FWS Faces Relate to Personnel, Infrastructure, Supplies, and Transportation Access

FWS has not had a public visitation program on Midway since November  2012 and faces multiple challenges to reestablishing such a program in  the future. The building that is available to  house visitors, known as Bachelor Officer Quarters Charlie Barracks, is  almost beyond the point of repairs and renovation, according to a  condition assessment conducted by contractors in 2009. In 2015, FWS  officials estimated that $1.2 million in additional annual funding would be  needed to operate and oversee a reestablished public visitation program  and that additional funding would also be needed for start-up costs. Midway’s Henderson Airfield serves as an emergency landing airport for  aircraft for the mid-Pacific Ocean region and facilitates access to the  marine national monument that includes Midway. To gain FAA approval, air carriers must, among other things,  designate adequate airports, which are certified by FAA, for use in the  event of a diversion during ETOPS. Henderson Airfield also serves as  an emergency airport for military aircraft. Recommendation for Executive Action

To fulfill the secretarial order’s directive that FWS manage Midway in  accordance with the National Historic Preservation Act, the Secretary of  the Interior should direct the Director of the U.S. The Advisory Council on Historic Preservation also agreed with our  recommendation and suggested that, to better reflect the regulations  implementing section 106 of the National Historic Preservation Act, we  clarify in our recommendation that FWS ensure the public––and not just  key parties previously expressing interest in historic preservation issues  on Midway––are notified about future undertakings that have adverse  effects on historic properties. Fish and Wildlife Service (FWS) has maintained historic  properties on Midway and the extent to which it has consulted key  stakeholders and sought public comment; (3) identify challenges, if any,  FWS faces in reestablishing a public visitation program; and (4) describe  the use of Henderson Airfield as an emergency landing airport and  access point for the Papahānaumokuākea Marine National Monument. To examine how FWS has maintained its historic properties, the extent  to which it has consulted key stakeholders, and any challenges FWS  faces in reestablishing a public visitation program, we collected  documents and data to determine the universe of historic properties on  Midway and actions that have been taken on these properties. To describe the use of Henderson Airfield, we reviewed FWS and FAA  reports, policies, and regulations on the operation of Henderson Airfield  and extended operations airports and interviewed FWS and FAA officials  regarding the agencies’ roles and responsibilities in providing an  emergency landing site on Midway. The law excludes Midway from  the state of Hawaii’s territory. April 3, 1997. May 7, 2003. 2009. As a result, FWS limited access to  Midway in January 2002. See table 5 for a summary of public visitation on Midway since 1996.
Why GAO Did This Study

Midway, a trio of islands about 1,300 miles from Honolulu, has been managed by FWS as a wildlife refuge since the closure of a naval base in 1996. Midway also serves as a national memorial to a historic World War II battle. GAO was asked to review FWS's management of Midway.
This report examines (1) funding for operations and projects on Midway for fiscal years 2009 to 2015, (2) how FWS maintained historic properties on Midway and the extent to which it consulted with key parties and sought public comment, (3) challenges FWS faces in reestablishing a public visitation program, and (4) the use of Midway's Henderson Airfield.
GAO visited Midway in April 2015 to observe the condition of historic and other properties. GAO reviewed budget data for Midway from fiscal years 2009 through 2015; reviewed laws, policies, and regulations on historic preservation; examined public visitation plans, emergency landing data, and the use of the airfield; and interviewed FWS, FAA, and Advisory Council on Historic Preservation officials and other stakeholders.

What GAO Found

According to officials in the Department of the Interior's U.S. Fish and Wildlife Service (FWS), operations funding for Midway Atoll (Midway) has decreased in recent years and project-specific funding has varied. Specifically, budget officials said that FWS, after increasing the funding allocated to Midway's operations to more than $4 million by fiscal year 2011, decreased Midway's allocation by more than $1 million by fiscal years 2012 and 2013. These officials said that the lower allocation led to suspension of public visitation on Midway in November 2012, which, in turn, decreased operations funding available from fees collected for services such as lodging. Midway has also received funding for specific projects, such as lead-based paint abatement. In addition, under an interagency agreement, the Federal Aviation Administration (FAA) has reimbursed FWS up to $3 million per year for the direct costs of operating Midway's Henderson Airfield and provided additional funds for capital improvement projects, such as resurfacing runways.
FWS has maintained most historic properties on Midway but has demolished others without providing for public notice and involvement, which is not consistent with the regulations implementing section 106 of the National Historic Preservation Act. A 2000 order by the Secretary of the Interior directs FWS to administer Midway in accordance with the law. Federal agencies must provide the public with notice of and opportunity to comment on agency actions that may affect historic properties. Since 2012, FWS has demolished seven historic properties on Midway as part of the agency's removal of lead-based paint and taken another action adversely affecting historic properties without providing adequate public notification, including directly notifying parties that have previously expressed interest in historic preservation issues on Midway, and an opportunity for public comment. An FWS official said that the extent of such notification may vary based on the size of the actions. However, officials with the Advisory Council on Historic Preservation said that groups known to have a high level of interest should be notified directly. Without providing public notification, including ensuring that such parties are notified about future actions that may adversely affect historic properties, FWS will not have reasonable assurance that it is adequately seeking public comment and input under the section 106 process.
Since the suspension of public visitation to Midway in 2012, FWS faces multiple challenges relating to personnel, infrastructure, supplies, and transportation access to reestablish the program. For example, the building used to house visitors is almost beyond the point of repair and renovation, according to a 2009 assessment of its condition. FWS officials estimated that $1.2 million in annual funding would be needed to reestablish a public visitation program and that additional funding would also be needed for start-up costs.
Midway's Henderson Airfield serves as an emergency landing airport for aircraft in the mid-Pacific Ocean region and facilitates access to Midway and its surroundings. Under FAA regulations, air carriers must designate in their flight plans a certified airport for use in the event of an emergency during extended operations. Since 2003, there have been seven military and civilian emergency landings on Midway.

What GAO Recommends

GAO recommends that FWS ensure that the public, including previously interested key parties, are notified about FWS actions on Midway that may have an adverse effect on historic properties. The Department of the Interior agreed with GAO's recommendation.
View a video of GAO's review of FWS's management of Midway. To view high-resolution photographs from this report, please see GAO's Flickr page .