Professional Documents
Culture Documents
BRIEF OF:
The Hon. Madeleine Z. Bordallo
Member of Congress representing Guam
The Hon. Stacey Plaskett
Member of Congress representing U.S. Virgin Islands
The Hon. Gregorio Kilili Sablan
Member of Congress representing the Northern Mariana Islands
The Hon. Eddie Baza Calvo
Governor of Guam
The Hon. Carl T.C. Gutierrez
Former Governor of Guam
The Hon. John de Jongh, Jr.
Former Governor of the U.S. Virgin Islands
The Hon. Charles W. Turnbull
Former Governor of the U.S. Virgin Islands
The Hon. Donna M. Christian-Christensen
Former Congresswoman representing the U.S. Virgin Islands
AS AMICI CURIAE
April 2018
Counsel listed on next page
Counsel for Amici Curiae
V. Conclusion ........................................................................................................................25
i
TABLE OF AUTHORITIES
Federal Statutes
1936 Organic Act of the United States, Pub. L. No. 749, 49 Stat. 1807 (1936), available at
http://www.legisworks.org/congress/74/publaw-749.pdf ......................................................... 18
Pub L. No. 94-241, § 1, 90 Stat. 263 (1976), Covenant to Establish a Commonwealth of the
Northern Mariana Islands in Political Union with the United States of America, art. I, available
at https://www.law.cornell.edu/uscode/pdf/uscode48/lii_usc_
TI_48_CH_17_SC_I_SE_1801.pdf. ................................................................................... 25, 28
ii
Federal Agency Reports
Bureau of Justice Statistics, Federal Criminal Case Processing Statistics, available at
http://www.bjs.gov/fjsrc/ ............................................................................................................. 4
U.S. Census Bureau, Thousands of U.S. Veterans Call the Island Areas Home, available at
https://www.census.gov/newsroom/blogs/random-samplings/2016/05/thousands-of-u-s-
veterans-call-the-island-areas-home.html (last updated May 2, 2016) ....................................... 2
U.S. Dep’t. of State, Case Study: Brown Tree Snake, available at https://2001-
2009.state.gov/g/oes/ocns/inv/cs/2309.htm (last visited Mar. 13, 2018) .................................. 10
U.S. Department of the Interior, Office of Insular Affairs, Island Military Heroes, available at
http://www.doi.gov/oia/islanders_in_the_military/heroes (last visited Mar. 17, 2018).............. 3
U.S. Environmental Protection Agency, Superfund Site: Andersen Air Force Base,
https://cumulis.epa.gov/supercpad/SiteProfiles/index.cfm?fuseaction=
second.topics&id=090282 ......................................................................................................... 10
U.S. Gov’t Accountability Office, GAO-16-324, Medicaid and CHIP – Increased Funding in
U.S. Territories Merits Improved Program Integrity Efforts, (2016), available at
https://www.gao.gov/assets/680/676438.pdf ................................................................ 13, 30, 31
U.S. National Archives, Korean War: State-Level Fatal Casualty Lists sorted Alphabetically by
Last Name, available at https://www.archives.gov/research/military/korean-war/casualty-
lists/state-level-alpha.html (last visited Mar. 17, 2018) .............................................................. 3
U.S. National Archives, Vietnam War: State-Level Fatal Casualty Lists sorted Alphabetically by
Last Name, available at https://www.archives.gov/research/military/vietnam-war/casualty-
lists/state-level-alpha.html (last visited Mar. 17, 2018) .............................................................. 3
U.S. Virgin Islands, U.S. Dep’t of the Interior, Office of Insular Affairs, available at
https://www.doi.gov/oia/islands/virgin-islands (last visited Mar. 13, 2018) ...................... 17, 18
iii
Other Authorities
‘At the Tip of the Spear’: Guam Residents on U.S.-North Korea Tensions, N.Y. Times, Aug. 10,
2017, available at https://www.nytimes.com/2017/08/10/us/
guam-residents-north-korea.html ................................................................................................ 7
Aaron Steckelberg and Chiqui Esteban, More than 4 million Americans don’t have anyone to
vote for them in Congress, Wash. Post, Sept. 28, 2017, available at
https://www.washingtonpost.com/graphics/2017/national/fair-representation/.......................... 2
Anita Hofschneider, Can These Islands Survive America’s Military Pivot to Asia?, Honolulu
Civil Beat, Dec. 12, 2016, available at http://www.civilbeat.org/2016/12/can-these-islands-
survive-americas-military-pivot-to-asia/. .................................................................................. 28
Anita Hofschneider, Tinian: ‘We Believed in America’, Honolulu Civil Beat, Dec. 14, 2016,
available at http://www.civilbeat.org/2016/12/tinian-we-believed-in-america/. ...................... 27
Associated Press, Pacific Natives Sue U.S. Navy Over Live Fire Training Plans, CBS News, July
27, 2016, available at https://www.cbsnews.com/news/pacific-natives-northern-mariana-
islands-sue-us-navy-live-fire/. ................................................................................................... 28
Bea Cabrera, TripAdvisor: NMI Tourism Growth ‘Dramatic’, Saipan Tribune, Oct. 25, 2017,
available at https://www.saipantribune.com/index.php/tripadvisor-nmi-tourism-growth-
dramatic/. ................................................................................................................................... 26
Ben Mutzabaugh, Delta Air Lines will pull out of Guam, ending flights by Jan. 8, USA Today,
Sept. 20, 2017, available at
https://www.usatoday.com/story/travel/flights/todayinthesky/2017/09/20/delta-air-lines-pull-
out-guam-ending-flights-jan-8/684409001/ .............................................................................. 14
Blaine Harden, Guam’s Young, Steeped in History, Line Up to Enlist, Wash. Post, Jan. 27, 2008,
available at http://www.washingtonpost.com/wp-
dyn/content/article/2008/01/26/AR2008012602050.html........................................................... 8
Brianna Sacks, This is What it is Like For People Trying to Get Health Care on the Devastated
US Virgin Islands, BuzzFeed News, Sept. 28, 2017, available at
https://www.buzzfeed.com/briannasacks/us-virgin-islands-
hospitals?utm_term=.fjoPG82zo#.kaKErR5w6 ........................................................................ 21
Catherine Norton, Military Buildup Seen as Boom, Test for Tiny Island of Guam, PBS News
Hour, June 9, 2008, available at https://www.pbs.org/newshour/world/military-buildup-seen-
boom-test-tiny-island-guam ...................................................................................................... 11
iv
Cherrie Anne E. Villahermosa, DPL Identifies 74 Lots for Agricultural Homesteading on Pagan,
Marianas Variety, Sept. 13, 2016, available at http://www.mvariety.com/cnmi/cnmi-
news/local/89144-dpl-identifies-74-lots-for-agricultural-homesteading-on-pagan. ................. 28
Clynt Ridgell, GovGuam Shortfall Estimated at $67M; $20M More than Original Estimate,
Pacific News Center, Feb. 13, 2018, available at https://pacificnewscenter.com/govguam-
shortfall-estimated-at-67m-20m-more-than-original-estimate/ ................................................ 13
Congresswoman Plaskett’s Transfer Day Centennial Ceremony Remarks (Mar. 31, 2017),
available at https://plaskett.house.gov/news/documentsingle.aspx?
DocumentID=182 .......................................................................................................... 15, 16, 17
Dennis B. Chan, Navy Directs Second EIS Review, Saipan Tribune, Oct. 5, 2015, available at
http://www.saipantribune.com/index.php/navy-directs-second-eis-review/. ............................ 27
Eddie Calvo, Governor Calvo Addresses United Nations Fourth Committee - October 3, 2017,
YouTube, (Oct. 10, 2017), https://www.youtube.com/watch?v=ivZ1zigcPJ4 ........................... 5
Emergency Response and Recovery: Central Takeaways from the Unprecedented 2017
Hurricane Season: Hearing Before the H. Transp. & Infrastructure Comm., 115th Cong.
(2017) (testimony of Stacey Plaskett, Congresswoman, U.S. Virgin Islands), available at
https://plaskett.house.gov/news/documentsingle.aspx?DocumentID=243
(last updated Nov. 2, 2017) ........................................................................................... 20, 21, 22
Erwin Encinares, Every Citizen Has Right to Vote, Saipan Tribune, Oct. 10, 2017, available at
https://www.saipantribune.com/index.php/every-citizen-right-vote......................................... 25
Governor Calvo delivers his final State of the Island Address, Kuam News, available at
http://www.kuam.com/story/37491190/2018/02/Tuesday/governor-calvo-delivers-his-final-
state-of-the-island-address (last updated Feb. 20, 2018, 4:40 AM) ...................................... 9, 13
Greg Allen, In the U.S. Virgin Islands, Health Care Remains in a Critical State, NPR News, Feb.
4, 2018, available at https://www.npr.org/2018/02/04/582256476/in-the-u-s-virgin-islands-
health-care-remains-in-a-critical-state ................................................................................ 20, 21
Haidee V. Eugenio, Guam Contractors: H-2B Visa Denials Forced Congress to Act, Pacific
Daily News, available at http://www.guampdn.com/story/news/2018/01/01/guam-contractors-
defense-law-response-uscis-h-2-b-visa-denials-has-forced-unprecedented-congress-
act/991986001/ (last updated Jan. 1, 2018, 4:00 PM) ............................................................... 11
Hearing on the Need for Transparent Financial Accountability in Territories’ Disaster Recovery
Efforts Before the H. Comm. on Natural Resources, 115th Cong. (2017) (testimony of Kenneth
E. Mapp, Governor, U.S. Virgin Islands) (Nov. 14, 2017), available at
http://docs.house.gov/meetings/II/II00/20171114/106587/HHRG-115-II00-Wstate-MappK-
20171114.pdf....................................................................................................................... 21, 23
v
James Cave, The Pentagon Wants to Bomb the Hell Out of This Tiny Pacific Island, Huffington
Post, May 29, 2015, available at https://www.huffingtonpost.com/2015/05/29/pagan-island-
marines-military_n_7342168.html. ........................................................................................... 28
Jasmine Stole, Compact-Impact Costs for Guam Climb to Estimated $148M, Guam Daily Post,
Feb. 6, 2016, available at https://www.postguam.com/news/local/compact-impact-costs-for-
guam-climb-to-estimated-m/article_37374b9c-cbf1-11e5-abe8-af215387168e.html .............. 14
Joel D. Pinaroc, CNMI Remembers its Fallen Heroes, Saipan Tribune, May 26, 2015, available
at https://www.saipantribune.com/index.php/cnmi-remembers-its-fallen-heroes/ ................... 26
John I. Borja, 25 Years Later, Andersen Air Force Base Still Cleaning Up Contamination, EPA
Says, Pacific Daily News, Oct. 15, 2017, available at
http://www.guampdn.com/story/news/2017/10/15/25-years-later-andersen-air-force-base-still-
cleaning-up-contamination-epa-says/764211001/ .................................................................... 10
Josh Hicks, Guam: A High Concentration of Veterans, But Rock-Bottom VA Funding, Wash.
Post, Oct. 29, 2014, available at https://www.washingtonpost.com/news/federal-
eye/wp/2014/10/29/guam-a-high-concentration-of-veterans-with-little-va-
funding/?utm_term=.8ccdc3a21d4e .......................................................................................... 12
Kaiser Family Foundation, Federal Medical Assistance Percentage (FMAP) for Medicaid and
Multiplier, available at https://www.kff.org/medicaid/state-indicator/federal-matching-rate-
and-multiplier/?currentTimeframe=1&sortModel=%7B%22colId%22:%22
FMAP%20Percentage%22,%22sort%22:%22desc%22%7D
(last visited Mar. 13, 2018). ...................................................................................................... 30
Katherine Aguan & Tony Palomo, WWII: From Occupation to Liberation, Guampedia, available
at http://www.guampedia.com/wwii-from-occupation-to-liberation/
(last visited Mar. 6, 2018) ........................................................................................................... 8
Kenneth E. Mapp, Governor U.S. Virgin Islands, 2018 State of the Territory Address, (Jan. 22,
2018), available at https://drive.google.com/file/d/1_-
zu9pWaWkKVTjPoSNcMGn85x6n0JRlJ/view ................................................................. 19, 24
Letter from Members of Congress to Postmaster General, Feb. 12, 2018, available at
https://plaskett.house.gov/uploadedfiles/02.12.18_letter_to_postmaster_general.pdf. ............ 22
Letter from the U.S. Environmental Protection Agency to Craig B. Whelden, Executive Director,
U.S. Marine Corps Forces Pacific, (Sept. 29, 2015), available at
https://www.documentcloud.org/documents/3235232-
EPA-Comments-on-CJMT-DEIS.html. .................................................................................... 29
Louella Losinio, Business, Political Leaders Push for Lifting of Jones Act, Guam Daily Post,
Oct. 16, 2017, available at https://www.postguam.com/news/local/business-political-leaders-
push-for-lifting-of-jones-act/article_fa0b3be2-aff7-11e7-97bd-2f7281249fcc.html ................ 14
vi
Pedro Sanchez, Guahan/Guam: The History of Our Island, (1998) ............................................... 9
Richard Parker, The Real Reason North Korea Is Threatening Guam, Politico, Aug. 15, 2017,
available at https://www.politico.com/magazine/story/2017/08/15/north-korea-guam-nuclear-
weapons-215493.......................................................................................................................... 8
Richard Pérez-Peña, After Irma and Maria: How 3 Spots on the U.S. Virgin Islands Are Faring,
N.Y. Times, Nov. 10, 2017, available at https://www.nytimes.com/2017/11/10/us/virgin-
islands-hurricanes.html. ............................................................................................................ 22
Shawn Raymundo, Navy, GWA Water Deal Could Be Closer Step to Fena, Pacific Daily News,
Aug. 24, 2016, available at http://www.guampdn.com/story/news/2016/08/24/navy-gwa-
water-deal-could-closer-step-fena/88441702/ ........................................................................... 10
Stacey Plaskett, The Ironic State of Freedom Without Democracy, The Hill, July 11, 2017,
available at http://thehill.com/blogs/congress-blog/politics/341403-the-ironic-state-of-
freedom-without-democracy ..................................................................................................... 19
Stacey Plaskett, The Virgin Islands Must Be Sober-Minded As We Execute Our Rebuilding, V.I.
Consortium, Feb. 20, 2018, available at http://viconsortium.com/opinion/the-virgin-islands-
must-be-sober-minded-as-we-execute-our-rebuilding/. ............................................................ 23
Steve Limtiaco, Calvo tells industry buildup forum he doesn’t support the buildup, Pacific Daily
News, available at http://www.guampdn.com/story/news/2018/03/07/calvo-tells-industry-
buildup-forum-he-doesnt-support-buildup/402177002/
(last updated Mar. 8, 2018, 10:49 AM) ..................................................................................... 11
Steve Limtiaco, Key Events in the Guam Military Buildup, Pacific Daily News, Aug. 18, 2017,
available at http://www.guampdn.com/story/news/2017/08/18/key-events-in-guam-military-
buildup/578993001/ .................................................................................................................. 10
Thomas H. Neale, Cong. Research Serv., R43824, Electoral College Reform: Contemporary
Issues for Congress, (2017), available at https://fas.org/sgp/crs/misc/R43824.pdf. ................... 2
Tim Craig, Shredded roofs, shattered lives, Wash. Post, Feb. 6, 2018, available at
https://www.washingtonpost.com/news/national/wp/2018/02/06/feature/as-tourism-returns-
hurricane-recovery-in-the-virgin-islands-is-leaving-some-residents-
behind/?utm_term=.f318c42d2ac4 ............................................................................................ 16
Tiphanie Yanique, Americans in a Battered Paradise, N.Y. Times, Sept. 12, 2017, available at
https://www.nytimes.com/2017/09/12/opinion/irma-virgin-islands-damage.html ................... 15
vii
Washington Post, Faces of the Fallen, available at
http://apps.washingtonpost.com/national/fallen/ (last visited Mar. 17, 2018) ............................ 3
viii
I. Introduction and Background
The United States is the oldest democracy in the world. It is also a global
champion for expanding democracy to peoples throughout the world. Yet, when it comes to the
democratic rights of nearly 4 million U.S. citizens living in the country’s territories, the United
States falls far short of its own foundational democratic and constitutional principles of
government by consent. United States citizens in the territories cannot vote for President and are
denied voting representation in Congress. Yet the federal government has more power over the
daily lives of U.S. citizens living in the country’s territories than it does for their countrymen
living anywhere else in the United States. This democratic deficit and lack of political
participation is not just a violation of the United States’ own core principles, it is also a violation
of its commitments under international law, including the American Declaration of the Rights
Amici2 are current and former elected officials from U.S. territories who stand in
solidarity with the Petitioners in Rosselló v. United States in calling on the Inter-American
recognize that the United States is violating its international law commitments by failing to
ensure full democratic participation for the nearly 4 million U.S. citizens living in U.S.
territories. As proud and patriotic citizens, amici believe it is their duty to speak out when the
United States does not live up to the democratic values that serve as the bedrock of our nation.
The rights of U.S. citizens should not depend on where they happen to live – every U.S. citizen
1
See Petitioner Observations Regarding the Merits of their Case at 113-134.
2
A full list of amici is included as Appendix A.
1
The combined population of the United States’ five territories (3.7 million), is
larger than the combined population of the country’s five smallest states (3.6 million).3 Indeed,
more U.S. citizens live in its territories than live in 21 of the 50 U.S. states. Yet, while residents
of the five smallest states are represented by ten U.S. Senators and five voting U.S.
Representatives and have fifteen votes in the Electoral College,4 the political participation of
residents of U.S. territories is limited to five non-voting Delegates to the U.S. House of
Representatives, no representation at all in the U.S. Senate, and zero votes in the Electoral
College.5
Among those disenfranchised in U.S. territories are more than 10,000 veterans
who proudly served in the U.S. Armed Forces to defend America’s democratic and constitutional
principles.6 When males residing in U.S. territories turn 18, they are required to register for
selective service, making them eligible to be drafted for U.S. military service.7 More than 20,000
territorial residents have served in Iraq and Afghanistan, with nearly 100 paying the ultimate
3
Aaron Steckelberg and Chiqui Esteban, More than 4 million Americans don’t have anyone to vote for them
in Congress, Wash. Post, Sept. 28, 2017, available at https://www.washingtonpost.com/graphics/2017/national/fair-
representation/.
4
Under the U.S. Constitution, the Electoral College’s 538 members – selected in a variety of ways by the
voters of each state and the District of Columbia – are who actually vote to decide who is President. See Thomas H.
Neale, Cong. Research Serv., R43824, Electoral College Reform: Contemporary Issues for Congress, (2017),
available at https://fas.org/sgp/crs/misc/R43824.pdf.
5
Residents of U.S. territories do participate in the presidential primary process, where each political party is
able to establish its own set of rules.
6
U.S. Census Bureau, Thousands of U.S. Veterans Call the Island Areas Home, available at
https://www.census.gov/newsroom/blogs/random-samplings/2016/05/thousands-of-u-s-veterans-call-the-island-
areas-home.html (last updated May 2, 2016).
7
Selective Service System, Who Must Register, available at https://www.sss.gov/Registration-Info/Who-
Registration (last visited Mar. 17, 2018).
2
sacrifice.8 Hundreds of territorial residents serving in uniform have been killed in action in past
conflicts, including 434 in the Vietnam War9 and 843 in the Korean War.10
The denial of voting rights and federal representation matters to residents of U.S.
territories. Structurally, the federal government has significantly more power over residents of
U.S. territories than it does over residents of U.S. states.11 As a practical matter, federal
decisions affect nearly every aspect of daily life in the territories, often with profound
consequences. For example, following Hurricanes Irma and Maria, the responsiveness of the
federal government was literally an issue of life and death for thousands of people in the U.S.
Virgin Islands and Puerto Rico. On Guam, residents sit in the cross hairs of nuclear threats from
North Korea as the federal government considers diplomatic and military solutions to this crisis.
America’s military conflicts disproportionally affect families in the Northern Mariana Islands
and American Samoa, where service casualty rates are four to seven times the national average.
Federal tax policies, federal mandates, and decisions about federal spending affect everything
from healthcare, to education, to roads, to waste disposal, to transportation costs, and more.
Indeed, it would be difficult to talk about any issue facing U.S. territories without there being an
8
See U.S. Department of the Interior, Office of Insular Affairs, Island Military Heroes, available at
http://www.doi.gov/oia/islanders_in_the_military/heroes (last visited Mar. 17, 2018); Washington Post, Faces of the
Fallen, available at http://apps.washingtonpost.com/national/fallen/ (last visited Mar. 17, 2018).
9
U.S. National Archives, Vietnam War: State-Level Fatal Casualty Lists sorted Alphabetically by Last
Name, available at https://www.archives.gov/research/military/vietnam-war/casualty-lists/state-level-alpha.html (last
visited Mar. 17, 2018).
10
U.S. National Archives, Korean War: State-Level Fatal Casualty Lists sorted Alphabetically by Last Name,
available at https://www.archives.gov/research/military/korean-war/casualty-lists/state-level-alpha.html (last visited
Mar. 17, 2018).
11
Compare U.S. Const. art. IV, § 3, cl. 2 (“The Congress shall have power to dispose of and make all needful
Rules and Regulations respecting the Territory or other Property belonging to the United States . . . .”) with U.S.
Const. amend. X (“The powers not delegated to the United States by the Constitution, nor prohibited by it to the
States, are reserved to the States respectively, or to the people.”).
3
Disenfranchisement in the federal executive and legislative branches also creates
a lack of democratic accountability for residents of U.S. territories in the federal judicial branch.
Federal judges are appointed by the President and confirmed by the Senate. The same is true for
federal prosecutors. So residents of U.S. territories not only lack a political voice in determining
the laws they are required to follow, but when it comes time to determine whether those laws are
being followed, those residents enjoy no democratic nexus to those who sit in judgment. While
federal judges and prosecutors serve an important role in ensuring the rule of law and public
safety in U.S. territories, this lack of democratic accountability raises serious concerns. And
each year hundreds of territorial residents lose their liberty as a result of federal criminal
Amici present this brief to the Commission to provide additional context on the
impact disenfranchisement has on territories not covered in Petitioner’s brief, focusing on Guam,
the U.S. Virgin Islands, and the Northern Mariana Islands. Each section provides a historical
overview of a particular territory, and explains how decisions made by the federal government
impact daily life in that territory. Amici hope this presentation will help the Commission better
understand both what is at stake and the importance of recognizing that the United States must
II. Guam
Guam has been a part of the United States since 1898 – nearly 120 years – yet the
U.S. citizens who call Guam home remain unable to vote for President and lack voting
representation in Congress. At the same time, the federal government makes important decisions
12
In FY 2014, a total of 1,695 territorial residents were criminally charged in federal court, with 1,653
territorial residents receiving sentences that year. Bureau of Justice Statistics, Federal Criminal Case Processing
Statistics, available at http://www.bjs.gov/fjsrc/.
4
– even life and death decisions – that affect the people of Guam. In an October 2017 speech
before the United Nations, Guam Governor Eddie Baza Calvo highlighted that “the people of
Guam are Americans, yet the rights that other Americans may take for granted are not a right for
us, but an impossibility – the ability even to vote for a President that sends us to war.”13
Governor Calvo asked, “When will [the people of Guam] be held as equals, and given the same
Following Governor Calvo’s address, the United States – for the first time in 20
years – voted against a United Nations resolution calling for structural changes in the
relationship between the United States and Guam that would allow it to be removed from the list
are defined in the United Nations Charter as “territories whose peoples have not yet attained a
full measure of self-government.”15 For Guam to be removed from the list of NSGTs while
continuing its relationship with the United States, the United States must ensure that the people
of Guam enjoy “equal rights and opportunities for representation and effective participation at all
levels in the executive, legislative and judicial organs of government.”16 The current
relationship, with only a non-voting Delegate to Congress, falls far short of this standard. Guam
is proud to be part of the United States, and its nearly 170,000 residents are proud to be U.S.
citizens. But when it comes to democratic participation in laws and policies that affect the
13
Eddie Calvo, Governor Calvo Addresses United Nations Fourth Committee - October 3, 2017, YouTube,
(Oct. 10, 2017), https://www.youtube.com/watch?v=ivZ1zigcPJ4.
14
John Borja, U.S. votes against U.N. resolution for Guam self-determination, Pacific Daily News, , available
at http://www.guampdn.com/story/news/2017/11/09/u-s-votes-against-u-n-resolution-guam-self-
determination/847082001/ (last updated Nov. 9, 2017, 5:10 PM). The U.S. Virgin Islands and American Samoa are
also listed as NSGTs; Puerto Rico and the Northern Mariana Islands are not.
15
UN Charter art. 73.
16
G.A. Res. 1541 (XV), at 30 (Dec. 15, 1960). Alternatives to equality under the U.S. flag include
Independence and Free Association.
5
people of Guam, the United States both fails to live up to its own democratic and constitutional
principles and falls short of the commitments it has made under international law.
Guam is located in the western Pacific, roughly east of Manila and south of
Tokyo. It is the largest island in Micronesia, although it is only about three times the size of
Washington, D.C., which is 8,000 miles and 14 time zones away. Guam became a part of the
United States in 1898 following the Spanish-American War. The 1898 Treaty of Paris, which
transferred sovereignty over Guam from Spain to the United States, provided that “[t]he civil
rights and political status of the native inhabitants of the territories hereby ceded to the United
Between 1898 and 1950, the people of Guam were administered by the U.S.
Navy, with political participation limited to an advisory body known as the Guam Congress. 18 In
1950, Congress passed an Organic Act, which recognized the people of Guam as U.S. citizens
and transferred authority from the Navy to the U.S. Department of the Interior, establishing for
the first time a civilian government. This also began the slow expansion of political participation
at the local level for the people of Guam, first with an elected legislature in 1950, followed by an
elected Governor in 1968, and then a non-voting Delegate to Congress in 1972. But even today,
Congress continues to reserve the power to annul any laws enacted by the Guam legislature.19
Moreover, changes to Guam’s Organic Act can only be enacted by Congress, where residents of
17
Treaty of Paris, Spain-U.S., art. IX, Dec. 10, 1898, available at
http://avalon.law.yale.edu/19th_century/sp1898.asp.
18
Arnold H. Leibowitz, Defining Status: A Comprehensive Analysis of United States Territorial Relations,
318-323 (2014).
19
48 U.S.C. § 1423i (2012).
6
Guam’s strategic location on the doorstep of Asia has long made it a critical
element of the United States’ national security; indeed, Guam has been described as the “tip of
the spear” of U.S. military power.20 This status has had both benefits and drawbacks for the
people of Guam. For example, North Korea’s recent nuclear threats against Guam are closely
related to Guam’s strategic military importance.21 Guam is also the only United States
jurisdiction to be invaded and occupied by a foreign power – the bombing of Pearl Harbor,
coordinated with a concurrent attack of Guam, in 1941 marked the beginning of a brutal three-
year occupation of Guam by the Imperial Japanese Army, the consequences of which are still felt
today.22 The U.S. military has also made many important contributions to the development of
Despite the denial of voting rights, Guam’s sons and daughters have a proud
history of military service and sacrifice defending the Constitution and its democratic principles.
This service has not come without cost – the casualty rate of Guam service members in Iraq and
Afghanistan is more than four times the national average. In Guam’s close-knit community the
sacrifice of military service has affected nearly every family, yet military recruitment rates
continue to exceed that of any state.23 Reflecting on all of this, Governor Calvo recently
observed in his annual State of the Island address that “Many of our sons and daughters serve,
20
‘At the Tip of the Spear’: Guam Residents on U.S.-North Korea Tensions, N.Y. Times, Aug. 10, 2017,
available at https://www.nytimes.com/2017/08/10/us/guam-residents-north-korea.html.
21
Richard Parker, The Real Reason North Korea Is Threatening Guam, Politico, Aug. 15, 2017, available at
https://www.politico.com/magazine/story/2017/08/15/north-korea-guam-nuclear-weapons-215493.
22
Katherine Aguan & Tony Palomo, WWII: From Occupation to Liberation, Guampedia, available at
http://www.guampedia.com/wwii-from-occupation-to-liberation/ (last visited Mar. 6, 2018).
23
Blaine Harden, Guam’s Young, Steeped in History, Line Up to Enlist, Wash. Post, Jan. 27, 2008, available
at http://www.washingtonpost.com/wp-dyn/content/article/2008/01/26/AR2008012602050.html.
7
knowing that they, as American citizens who wear the uniform, cannot vote for a president who
Decisions made by the federal government have an impact on almost every aspect
of daily life on Guam, even as Guam’s residents have no say in the federal laws and policies they
must follow. The military buildup on Guam offers the promise of transforming Guam’s
economy, but also presents risks related to cultural and environmental preservation. Federal
activities have helped bring Guam to where it is today, but unequal treatment often places unique
More than any other aspect of Guam’s relationship with the United States, the role
of the U.S. military has had the greatest impact on life on Guam, with both positive and negative
results. Guam’s structural disenfranchisement means it lacks the political tools that provide
other communities greater influence over military decisions that affect their lives. In Guam’s
early history, naval administration greatly expanded Guam’s infrastructure, public health, and
public education. But it also took control of vast expanses of land and ruled by fiat, with limited
responsiveness to local concerns and customs, even prohibiting local children from speaking
Chamorro, the indigenous language of Guam, in school.25 In the aftermath of the destruction of
World War II, U.S. military transports inadvertently introduced the Brown Tree Snake to Guam,
24
Governor Calvo delivers his final State of the Island Address, Kuam News, available at
http://www.kuam.com/story/37491190/2018/02/Tuesday/governor-calvo-delivers-his-final-state-of-the-island-
address (last updated Feb. 20, 2018, 4:40 AM).
25
Pedro Sanchez, Guahan/Guam: The History of Our Island, 95-159 (1998).
26
U.S. Dep’t. of State, Case Study: Brown Tree Snake, available at https://2001-
2009.state.gov/g/oes/ocns/inv/cs/2309.htm (last visited Mar. 13, 2018).
8
pollution at Guam’s Anderson Airforce Base during and after the Vietnam War led the U.S.
Environmental Protection Agency to list it as a superfund site in 1992, with cleanup efforts still
not complete despite potential risks to Guam’s only fresh-water aquifer.27 At the same time, the
U.S. Navy controls Guam’s largest fresh-water reservoir, charging the civilian community for
The U.S. military presence has created significant economic opportunities for
Guam, although the unpredictable nature of military activity also creates challenging economic
uncertainties. Today, Guam is in the midst of an extensive military buildup as the United States
responds to new global threats.29 The buildup creates important economic benefits for Guam,
but also raises environmental, social, and cultural concerns.30 The scope of the military buildup
has also made it difficult for civilian construction projects to compete within a limited labor pool,
and federal legislation to bring in foreign workers for military projects has not resolved this
concern.31 Guam is not entirely without a voice in the buildup process – Guam residents actively
27
John I. Borja, 25 Years Later, Andersen Air Force Base Still Cleaning Up Contamination, EPA Says,
Pacific Daily News, Oct. 15, 2017, available at http://www.guampdn.com/story/news/2017/10/15/25-years-later-
andersen-air-force-base-still-cleaning-up-contamination-epa-says/764211001/; see also U.S. Environmental
Protection Agency, Superfund Site: Andersen Air Force Base,
https://cumulis.epa.gov/supercpad/SiteProfiles/index.cfm?fuseaction=second.topics&id=090282.
28
Shawn Raymundo, Navy, GWA Water Deal Could Be Closer Step to Fena, Pacific Daily News, Aug. 24,
2016, available at http://www.guampdn.com/story/news/2016/08/24/navy-gwa-water-deal-could-closer-step-
fena/88441702/.
29
Steve Limtiaco, Key Events in the Guam Military Buildup, Pacific Daily News, Aug. 18, 2017, available at
http://www.guampdn.com/story/news/2017/08/18/key-events-in-guam-military-buildup/578993001/.
30
Catherine Norton, Military Buildup Seen as Boom, Test for Tiny Island of Guam, PBS News Hour, June 9,
2008, available at https://www.pbs.org/newshour/world/military-buildup-seen-boom-test-tiny-island-guam.
31
Steve Limtiaco, Calvo tells industry buildup forum he doesn’t support the buildup, Pacific Daily News,
available at http://www.guampdn.com/story/news/2018/03/07/calvo-tells-industry-buildup-forum-he-doesnt-
support-buildup/402177002/ (last updated Mar. 8, 2018, 10:49 AM); Haidee V. Eugenio, Guam Contractors: H-2B
Visa Denials Forced Congress to Act, Pacific Daily News, available at
http://www.guampdn.com/story/news/2018/01/01/guam-contractors-defense-law-response-uscis-h-2-b-visa-denials-
has-forced-unprecedented-congress-act/991986001/ (last updated Jan. 1, 2018, 4:00 PM).
9
Bordallo serves as the Ranking Member on the House Armed Services Subcommittee on
Readiness. But a lack of voting rights means Guam’s voice does not have the same force as
Guam’s proud tradition of military service means Guam has one of the highest
concentrations of veterans, with up to one in eight adults having served in the U.S. Armed
Forces.32 This creates a substantial demand for veteran healthcare services. But despite this
large need Guam ranks last when it comes to per capita medical spending by the Department of
Veterans Affairs.33 Veterans suffering from Post-Traumatic Stress Disorder must travel more
than 3,000 miles to Hawaii to receive intensive care. Responding to these issues, Governor
Calvo explained on a 2014 broadcast that “[t]he federal government has not done their part to
assist the very patriotic group of American citizens fighting in so many distant lands, in areas
that have never tasted democracy,” highlighting that “these American citizens of Guam really
A range of other federal decisions also affect Guam’s fiscal stability, from federal
tax policy, to federal benefits, to federal mandates, to international agreements that allow
significant migration to Guam from neighboring island nations. Sometimes federal policies are
specifically designed to benefit Guam. Other times Guam suffers negative consequences when
broad national policies fail to account for the impact they will have on Guam. This is yet another
32
Josh Hicks, Guam: A High Concentration of Veterans, But Rock-Bottom VA Funding, Wash. Post, Oct. 29,
2014, available at https://www.washingtonpost.com/news/federal-eye/wp/2014/10/29/guam-a-high-concentration-
of-veterans-with-little-va-funding/?utm_term=.8ccdc3a21d4e.
33
Id.
34
Id.
10
Guam is treated unequally in many critical federal benefits programs. Medicaid
payments to Guam are capped, and reimbursement rates are lower than for comparable states,
resulting in significantly less federal support for healthcare on Guam.35 According to Governor
Calvo, over the last seven years this disparity has resulted in approximately $120 million less in
Medicaid spending, contributing to large structural deficits at Guam’s only public hospital that
Guam local tax rules mirror federal tax law. Thus, recent federal legislation
reforming federal tax laws will result in an approximately $67 million shortfall in local revenue
for Guam this year alone.37 The federally-mandated Earned Income Tax Credit, which is
generally paid for by the federal government, is paid for on Guam using local funds at a cost of
Federal treaties like the Compacts of Free Association (COFA) with neighboring
island nations, which allow for unrestrained immigration to Guam and other parts of the United
States, also have an outsized impact on Guam’s finances. Between 2005 and 2015 the estimated
annual costs of COFA migrants rose from $33 million to $148 million, even as the federal
35
U.S. Gov’t Accountability Office, GAO-16-324, Medicaid and CHIP – Increased Funding in U.S.
Territories Merits Improved Program Integrity Efforts, (2016), available at
https://www.gao.gov/assets/680/676438.pdf.
36
Calvo, supra note 24.
37
Clynt Ridgell, GovGuam Shortfall Estimated at $67M; $20M More than Original Estimate, Pacific News
Center, Feb. 13, 2018, available at https://pacificnewscenter.com/govguam-shortfall-estimated-at-67m-20m-more-
than-original-estimate/.
38
Calvo, supra note 24.
39
Jasmine Stole, Compact-Impact Costs for Guam Climb to Estimated $148M, Guam Daily Post, Feb. 6,
2016, available at https://www.postguam.com/news/local/compact-impact-costs-for-guam-climb-to-estimated-
m/article_37374b9c-cbf1-11e5-abe8-af215387168e.html.
11
Guam’s economy is also affected by federal laws like the Jones Act and cabotage
rules, which restrict foreign carriers from engaging in commerce between two U.S. locations.
For Guam, which has most of its goods either shipped or flown to the island, these restrictions
contribute to the high cost of consumer items. Discussions are ongoing regarding possible
exemptions to the Jones Act and airline cabotage rules.40 These requirements have also
“[r]evolutionary idealists such as Alexander Hamilton, who learned his system of banking and
accounting in the merchant house on the island of St. Croix, and the island’s planter, Abraham
Markoe, who was an American Revolutionary financier and designer of the 13 stripes in the
Yet, despite these gifts and many others to the United States, Virgin Islanders,
who are citizens of the United States, lack the right to vote for their Commander in Chief and are
denied voting representation in Congress. While the Virgin Islands has now been part of the
United States for a century – since 1917 – the lack of political participation means the people of
40
Louella Losinio, Business, Political Leaders Push for Lifting of Jones Act, Guam Daily Post, Oct. 16, 2017,
available at https://www.postguam.com/news/local/business-political-leaders-push-for-lifting-of-jones-
act/article_fa0b3be2-aff7-11e7-97bd-2f7281249fcc.html.
41
Ben Mutzabaugh, Delta Air Lines will pull out of Guam, ending flights by Jan. 8, USA Today, Sept. 20,
2017, available at https://www.usatoday.com/story/travel/flights/todayinthesky/2017/09/20/delta-air-lines-pull-out-
guam-ending-flights-jan-8/684409001/.
42
Tiphanie Yanique, Americans in a Battered Paradise, N.Y. Times, Sept. 12, 2017, available at
https://www.nytimes.com/2017/09/12/opinion/irma-virgin-islands-damage.html.
43
Congresswoman Plaskett’s Transfer Day Centennial Ceremony Remarks (Mar. 31, 2017), available at
https://plaskett.house.gov/news/documentsingle.aspx?DocumentID=182.
12
the Virgin Islands enjoy a type of second-class citizenship, even as the federal government is
responsible for making the decisions that govern their daily lives.
In her 2017 Transfer Day Centennial Ceremonial Remarks, the Virgin Islands’
non-voting Delegate to Congress, Congresswoman Stacey Plaskett, marked the 100 years that the
Virgin Islands has been part of the United States, noting the “mixed feelings” of Virgin Islanders
at the centennial given their treatment by the United States and asking the following: “What
document will give us full inclusion as U.S. citizens no matter where we reside? When will the
benefits of full citizenship extend to meet our now century-old willingness to take on the
responsibility of that citizenship?”44 As Congresswomen Plaskett said, “We must all do our part
Finding answers to these questions has become all the more critical following the
destruction brought by Hurricanes Irma and Maria last year. The stakes are extraordinarily high
as the Virgin Islands faces the daunting challenge of recovering and rebuilding from the
homes and 400 boats were destroyed. St. Thomas and St. Croix took harsh blows, but it was St.
John that suffered the most infrastructure damage overall; nearly every home on the island
suffered damage and for more than six weeks there was no power at all.”46
This vast devastation only underscores the degree to which the federal
government’s decisions affect the daily lives of Virgin Islanders. As the Washington Post has
reported, “[i]f Congress and the White House fail to deliver a massive infusion of cash to the
islands, analysts warn, this Caribbean paradise could quickly unravel into a permanent decline
44
Id.
45
Id.
46
U.S. Virgin Islands, Bloomberg Philanthropies, available at https://www.bloomberg.org/program/founders-
projects/bringing-assistance-u-s-virgin-islands-hurricanes-irma-maria/ (last visited Mar. 13, 2018) (emphasis added).
13
that would send thousands of economic refugees to the mainland.”47 In short, although the U.S.
citizens who live in the Virgin Islands lack voting representation in Congress and cannot vote for
president, they must depend on Congress and the President for their very livelihood.
In 1917, the United States purchased the Virgin Islands, which were known as the
Danish West Indies, from Denmark for $25 million dollars.48 The Virgin Islands are the start of
the Lesser Antilles island chain in the Caribbean and are located about 50 miles east of Puerto
Rico. The purchase consisted of three main islands, St. Croix, St. Thomas, and St. John, and
approximately 50 islets, and was motivated primarily by strategic concerns in order to “assure
tranquility in the Caribbean Ocean.”49 In particular, the Virgin Islands were intended to serve as
a naval base for submarine warfare against Germany in World War I and to help protect the
At the outset, Congress established a temporary government for the Virgin Islands
in 1917, with a Naval Governor appointed by the President with the advice and consent of the
Senate.51 Residents of the Virgin Islands were not recognized as citizens until ten years later, in
47
Tim Craig, Shredded roofs, shattered lives, Wash. Post, Feb. 6, 2018, available at
https://www.washingtonpost.com/news/national/wp/2018/02/06/feature/as-tourism-returns-hurricane-recovery-in-
the-virgin-islands-is-leaving-some-residents-behind/?utm_term=.f318c42d2ac4.
48
See Convention Between the United States and Denmark (Cession of the Danish West Indies), Denmark-
U.S., Aug. 14, 1916, T.S. No. 629, available at
https://www.doi.gov/sites/doi.gov/files/migrated/oia/about/upload/vitreaty.pdf; Pub. L. No. 380, 39 Stat. 1132
(1917), available at http://www.legisworks.org/congress/64/publaw-389.pdf.
49
U.S. Virgin Island Quarter, United States Mint, available at https://www.usmint.gov/coins/coin-medal-
programs/dc-and-us-territories/us-virgin-islands (last visited Mar. 13, 2018); U.S. Virgin Islands, U.S. Dep’t of the
Interior, Office of Insular Affairs, available at https://www.doi.gov/oia/islands/virgin-islands (last visited Mar. 13,
2018).
50
Congresswoman Plaskett’s Remarks, supra note 43.
51
Pub. L. No. 380, supra note 48.
14
1927. It took until 1931 for federal authority over the Virgin Islands to be transferred from the
U.S. Navy to civilian control under the U.S. Department of the Interior.52
Five years later, the Organic Act of 1936 established the government of the Virgin
Islands, dividing the Virgin Islands into municipalities and setting forth the legislative,
executive, and judicial branches.53 Nearly twenty years after that, the 1954 Revised Organic Act
set forth a “more elaborate governmental structure,” setting forth a Bill of Rights, and
establishing a “Legislature of the Virgin Islands.”54 Federal law did not permit an elected
Today, the total population of the Virgin Islands is estimated at 107,268.56 While
Virgin Islanders continue to make many contributions to the United States, they remain excluded
from full citizenship through their lack of voting representation in the federal government. This
disenfranchisement is particularly stark when one considers the Virgin Islands’ proud tradition of
military service. Congresswoman Plaskett explained last year that “Virgin Islanders giv[e] the
ultimate sacrifice in military conflicts at three times the national average,” yet “[t]hese brave
service members fight for a commander in chief they do not elect and protect the ideals of a
nation that are not fully extended to them and their families.”57
52
U.S. Dep’t of the Interior, supra note 49.
53
1936 Organic Act of the United States, Pub. L. No. 749, 49 Stat. 1807 (1936), available at
http://www.legisworks.org/congress/74/publaw-749.pdf.
54
U.S. Dep’t of the Interior, supra note 49; see also Revised Organic Act of the Virgin Islands, Pub. L. No.
517, 68 Stat. 497 (1954), available at https://www.gpo.gov/fdsys/pkg/STATUTE-68/pdf/STATUTE-68-
Pg497.pdf#page=1.
55
48 U.S.C. § 1591 (2012).
56
CIA, World Factbook: U.S. Virgin Islands, available at https://www.cia.gov/library/publications/the-world-
factbook/geos/vq.html (expand “People and Society” sub-heading) (last updated Feb. 22, 2018).
57
Stacey Plaskett, The Ironic State of Freedom Without Democracy, The Hill, July 11, 2017, available at
http://thehill.com/blogs/congress-blog/politics/341403-the-ironic-state-of-freedom-without-democracy.
15
The Virgin Islands has now been a part of the United States for more than a
century. As Governor Mapp explained in his 2018 State of the Territory Address, “American
citizens living in the Virgin Islands must be treated as American citizens living anywhere.”58
B. Federal Decisions Impact the Daily Life of U.S. Virgin Islands’ Residents
Given the expansive powers the federal government has over U.S. territories,
Virgin Islanders acutely feel the impact that federal decisions have on their daily lives, even as
they lack voting representation in Congress and cannot vote for President. This has been
particularly true following the devastation of Hurricanes Irma and Maria. Federal decisions
related to tax policy, federal benefits, and other federal spending programs have also had a
profound impact on life in the Virgin Islands. While the federal government has often been a
force for good in the Virgin Islands, too often the Virgin Islands face unequal treatment
The devastation of the recent hurricanes in the Virgin Islands has underscored the
importance of the federal government to the daily lives of the Virgin Islanders. Virgin Islanders
are facing numerous serious challenges, including federal aid limits, job loss, and a health care
and education system in crisis.59 The federal government has played a critical role in assisting
with disaster recovery and rebuilding in the Virgin Islands. But at times Virgin Islanders are left
58
Kenneth E. Mapp, Governor U.S. Virgin Islands, 2018 State of the Territory Address, (Jan. 22, 2018),
available at https://drive.google.com/file/d/1_-zu9pWaWkKVTjPoSNcMGn85x6n0JRlJ/view.
59
Craig, supra note 47; Greg Allen, In the U.S. Virgin Islands, Health Care Remains in a Critical State, NPR
News, Feb. 4, 2018, available at https://www.npr.org/2018/02/04/582256476/in-the-u-s-virgin-islands-health-care-
remains-in-a-critical-state; Emergency Response and Recovery: Central Takeaways from the Unprecedented 2017
Hurricane Season: Hearing Before the H. Transp. & Infrastructure Comm., 115th Cong. (2017) (testimony of
Stacey Plaskett, Congresswoman, U.S. Virgin Islands), available at
https://plaskett.house.gov/news/documentsingle.aspx?DocumentID=243 (last updated Nov. 2, 2017).
16
feeling that they are not being treated the same as other countrymen recovering from similar
disasters.
With respect to health care, the Virgin Islands’ two hospitals have been severely
damaged by the recent hurricanes. As a Virgin Islands doctor explained shortly after the storms,
“I have two essentially condemned hospitals . . . . Right now we don’t have operating rooms I
feel safe operating in and doctors are trying to find other places to see their patients because their
buildings still don’t have power.”60 The healthcare crisis is so severe that many people are still
Congresswoman Plaskett explained at a recent congressional hearing, “[o]ur needs are great, and
it’s partly a result of issues that have been long standing. Our hospitals have been chronically
underfunded for decades, and our Medicaid is block granted at an amount that has no
relationship to local needs. Our match has been limited to an arbitrarily low 55% by Congress,
that of the wealthiest states.”62 Governor Mapp explained at another congressional hearing that
“[t]hese shortfalls in federal healthcare funding have adversely affected the quality of healthcare
in the Islands and have required our Government to borrow money to cover a significant portion
of the gaps.”63
60
Brianna Sacks, This is What it is Like For People Trying to Get Health Care on the Devastated US Virgin
Islands, BuzzFeed News, Sept. 28, 2017, available at https://www.buzzfeed.com/briannasacks/us-virgin-islands-
hospitals?utm_term=.fjoPG82zo#.kaKErR5w6.
61
Id; see also Allen, supra note 59.
62
Plaskett Testimony, supra note 59.
63
Hearing on the Need for Transparent Financial Accountability in Territories’ Disaster Recovery Efforts
Before the H. Comm. on Natural Resources, 115th Cong. (2017) (testimony of Kenneth E. Mapp, Governor, U.S.
Virgin Islands) (Nov. 14, 2017), available at http://docs.house.gov/meetings/II/II00/20171114/106587/HHRG-115-
II00-Wstate-MappK-20171114.pdf.
17
Schools, too, have been devastated by the hurricanes, with eight schools destroyed
in a system that was already suffering “woefully deficient” facilities.64 This is tied directly to
federal decisions where “Congress has not been willing to grant the Dept. of Interior requested
funding to support maintenance levels for one school.”65 Even the reliability of mail service to
the Virgin Islands remains in flux nearly six months after the hurricanes hit.66
These setbacks invite closer scrutiny of the continuing denial of the rights of
Virgin Islanders to fully participate in the national democratic process. As of November 2017,
more than 33,000 individuals and families had applied for assistance from the Federal
Emergency Agency (FEMA).67 And, it will take a staggering $7.5 billion of federal support in
order to rebuild.68 Thus, more than ever there is a sense of the importance of federal-decision
policy plays a critical role in creating the investment climate to generate sustainable economic
growth in the Virgin Islands and help the Territory create jobs and improve its long-term fiscal
health.”69 Governor Mapp exhorted Congress to “consider the unique status and circumstances
64
Plaskett Testimony, supra note 59.
65
Id.
66
Letter from Members of Congress to Postmaster General, Feb. 12, 2018, available at
https://plaskett.house.gov/uploadedfiles/02.12.18_letter_to_postmaster_general.pdf.
67
Richard Pérez-Peña, After Irma and Maria: How 3 Spots on the U.S. Virgin Islands Are Faring, N.Y.
Times, Nov. 10, 2017, available at https://www.nytimes.com/2017/11/10/us/virgin-islands-hurricanes.html.
68
Craig, supra note 47.
69
Mapp Testimony, supra note 63.
70
Id.
18
As is too often the case, the federal tax legislation that ended up passing last year
failed to adequately consider or address its impact on the Virgin Islands and other U.S.
territories. Congresswoman Plaskett recently explained that “the new tax laws are likely to have
Islands due to the foreign tax treatment of the USVI.”71 In addition, because federal law
provides that the Virgin Island local tax code mirrors the federal tax code, “there will be lost
revenue to the [Virgin Islands’] General Fund due to reduction [of] individual and corporate tax
brackets,” with “tax revenue losses ranging from a hundred million to hundreds of millions of
More broadly, federal mandates like the Earned Income Tax Credit cost the
Virgin Islands approximately $21 million a year, with bi-partisan proposals for the federal
government to reimburse these expenditures going nowhere.73 The outsized impact federal tax
policy has on economic development and government revenue in the Virgin Islands highlights
Like their brethren in the other territories, the citizens of the Northern Mariana
Islands are passionate, loyal U.S. citizens. Since World War II, the islands have hewn ever
closer to the United States, serving in its military, political parties, and every aspect of national
life – save one. Citizens of the Northern Mariana Islands are also citizens of the United States,
71
Stacey Plaskett, The Virgin Islands Must Be Sober-Minded As We Execute Our Rebuilding, V.I.
Consortium, Feb. 20, 2018, available at http://viconsortium.com/opinion/the-virgin-islands-must-be-sober-minded-
as-we-execute-our-rebuilding/.
72
Id.
73
Mapp Address, supra note 58
19
but they cannot vote in presidential elections, they do not have a vote in matters of federal
policy, and they are subject to the whims of officials thousands of miles from home.
A. History of the Northern Mariana Islands Relationship with the United States
The close relationship between the United States and the Northern Mariana
Islands dates to the close of World War II, when it was first administered by the United States as
part of the United Nations Trust Territory of the Pacific Islands. The Northern Mariana Islands
consists of three main islands, Saipan, Tinian, and Rota, along with many smaller islands that are
In 1975, the Northern Mariana Islands was officially created as its own separate
political jurisdiction and bound to the United States under the Covenant to Establish a
Commonwealth of the Northern Mariana Islands in Political Union with the United States of
America (the “Covenant”). The Covenant granted the United States “complete responsibility for
and authority with respect to matters relating to foreign affairs and defense affecting the
Northern Mariana Islands,” and gave the United States the power to enact legislation governing
daily life in the Northern Mariana Islands.74 In exchange, the Covenant conveyed U.S.
citizenship upon all persons thereafter born in the Northern Mariana Islands (along with most
But the rights of citizens living in the Northern Mariana Islands are not the same
as other U.S. citizens. And when it comes to voting rights, not even every resident of the
Northern Mariana Islands is treated the same. Most citizens residing in the Northern Mariana
Islands are unable to vote in presidential elections and lack voting representation in Congress.
However, under federal overseas voting laws, former residents of states living in Northern
74
Pub L. No. 94-241, § 1, 90 Stat. 263 (1976), Covenant to Establish a Commonwealth of the Northern
Mariana Islands in Political Union with the United States of America, art. I, available at
https://www.law.cornell.edu/uscode/pdf/uscode48/lii_usc_TI_48_CH_17_SC_I_SE_1801.pdf.
20
Mariana Islands are able to maintain absentee voting rights in their former state of residence,
permitting them to continue to vote for President and for federal representatives in their former
state.75 Thus, most residents of the Northern Mariana Islands continue to be subject to federal
laws and regulations while their participation in making those laws is limited to a non-voting
Delegate to Congress.
As U.S. citizens, the people of the Northern Mariana Islands have demonstrated
steadfast loyalty and dedication to the United States. Islanders are well aware of the strategic
importance the Northern Mariana Islands possesses. Sitting on the far western edge of the
United States, the Northern Mariana Islands occupies a critical position for the country’s military
and economic interests in the Pacific. Islanders embrace this responsibility – the Northern
Mariana Islands has one of the highest rates of military service in the United States, with a
casualty rate in Iraq and Afghanistan more than three times the national average.76 The Northern
Mariana Islands regularly hosts more than 500,000 international visitors, both for business and
pleasure.77
Yet despite all this, residents of the Northern Mariana Islands lack a vote in
The Northern Mariana Islands location in the Pacific on the doorstep to Asia gives
it particular relevance in trans-Pacific relations. This strategic consideration has recently gained
75
Uniformed and Overseas Citizens Absentee Voting Act, 52 U.S.C §§ 20301-20311 (2012). Recent actions
by the US Department of Justice have proposed curtailing even this meager access to the ballot. Erwin Encinares,
Every Citizen Has Right to Vote, Saipan Tribune, Oct. 10, 2017, available at
https://www.saipantribune.com/index.php/every-citizen-right-vote.
76
Joel D. Pinaroc, CNMI Remembers its Fallen Heroes, Saipan Tribune, May 26, 2015, available at
https://www.saipantribune.com/index.php/cnmi-remembers-its-fallen-heroes/.
77
Bea Cabrera, TripAdvisor: NMI Tourism Growth ‘Dramatic’, Saipan Tribune, Oct. 25, 2017, available at
https://www.saipantribune.com/index.php/tripadvisor-nmi-tourism-growth-dramatic/.
21
increased significance, as rising tensions between the United States and North Korea have
highlighted the critical position the Northern Mariana Islands and other Pacific territories
occupy. As a consequence, there has been increased activity by the United States military.
and war games on the Northern Mariana Islands of Pagan and Tinian, as well as creating
permanent facilities on the islands. These activities would inflict significant costs –
environmental, economic, and social – on the Northern Mariana Islands’ citizens. Former
governor Eloy Inos described the proposed plan as “an existential threat to our tourism-driven
economy, our fragile ecosystem, our cultural resources and, indeed, our way of life.”78
influx of military personnel and activity, including a military airfield and up to 45 weeks per year
of live-fire military action.79 These plans would have a dramatic impact on the island’s
population. The U.S. Environmental Protection Agency (“EPA”) has warned that expanding
operations on the island could pollute Tinian’s only source of water.80 The expansion could also
result in the permanent loss of 15% of the island’s prime farmland soils and restrict access to a
number of important cultural and tourist sites.81 This includes damage to more than 20 acres of
coral reef.82
78
Dennis B. Chan, Navy Directs Second EIS Review, Saipan Tribune, Oct. 5, 2015, available at
http://www.saipantribune.com/index.php/navy-directs-second-eis-review/.
79
Anita Hofschneider, Tinian: ‘We Believed in America’, Honolulu Civil Beat, Dec. 14, 2016, available at
http://www.civilbeat.org/2016/12/tinian-we-believed-in-america/.
80
Id.
81
Associated Press, Pacific Natives Sue U.S. Navy Over Live Fire Training Plans, CBS News, July 27, 2016,
available at https://www.cbsnews.com/news/pacific-natives-northern-mariana-islands-sue-us-navy-live-fire/.
82
Anita Hofschneider, Can These Islands Survive America’s Military Pivot to Asia?, Honolulu Civil Beat,
Dec. 12, 2016, available at http://www.civilbeat.org/2016/12/can-these-islands-survive-americas-military-pivot-to-
asia/.
22
Under the military’s proposal, Pagan’s northern half would be converted to an
active bombing range.83 Originally settled in the 1300s, Pagan is an ancient home of the
Chamorro people, indigenous inhabitants of the Northern Mariana Islands.84 Although volcanic
activity forced an evacuation of the island in 1982, many families still consider it home and hope
to return.85 Local political leaders, including Mayor Jerome Aldan and Governor Ralph Torres
support their efforts and have grave concerns over the proposed military expansion.86 Beyond
the human cost, the EPA estimates the bombing and other training could destroy 121 acres of
marine habitat.87
Not surprisingly, these plans have been fiercely debated and contested at a local
level. But the Northern Mariana Islands’ lack of political representation in Washington limits
the capacity of the people of the Northern Mariana Islands to shape the fate of their islands.
While no one disputes the need to adequately provide for national defense, citizens of the
Northern Mariana Islands have a diminished voice in the role their own islands will play. First,
they have no say in who is elected President – who, as Commander in Chief, has direct control
over military decisions. Second, while Congress also plays a critical role in directing military
spending and decisions to go to war, the Northern Mariana Islands’ non-voting Delegate has
83
The military has no current property on Pagan, unlike Tinian. However, under the Covenant, Congress
could vote to claim the land via eminent domain – a vote in which the NMI citizens would have no voice.
Covenant, supra note 69, art. 8.
84
James Cave, The Pentagon Wants to Bomb the Hell Out of This Tiny Pacific Island, Huffington Post, May
29, 2015, available at https://www.huffingtonpost.com/2015/05/29/pagan-island-marines-military_n_7342168.html.
85
Associated Press, supra note 81.
86
Cherrie Anne E. Villahermosa, DPL Identifies 74 Lots for Agricultural Homesteading on Pagan, Marianas
Variety, Sept. 13, 2016, available at http://www.mvariety.com/cnmi/cnmi-news/local/89144-dpl-identifies-74-lots-
for-agricultural-homesteading-on-pagan.
87
Letter from the U.S. Environmental Protection Agency to Craig B. Whelden, Executive Director, U.S.
Marine Corps Forces Pacific, (Sept. 29, 2015), available at https://www.documentcloud.org/documents/3235232-
EPA-Comments-on-CJMT-DEIS.html.
23
limited participation in Congress, even though his constituents are greatly affected by whatever
Citizens living in the Northern Mariana Islands have no control over their own tax
code. Federal law controls all the territories’ authority to impose local taxes. The Northern
Mariana Islands, along with Guam and the U.S. Virgin Islands, may not implement its own tax
regime – rather it is required to “mirror” the U.S. Internal Revenue Code (“IRC”) for local
purposes. This means any changes to the IRC requires duplicate changes in the Northern
Mariana Islands’ local tax code, regardless of what effects that would have on the Northern
Mariana Islands’ economy or local revenue. Despite the dramatic changes such decisions can
make, the Northern Mariana Islands has no seat at the table when it comes to voting on the final
The Northern Mariana Islands also suffers from chronic underfunding of federal
healthcare and social welfare funding. As an example, consider Medicaid, the primary federal
program that delivers healthcare to U.S. citizens living in or near poverty. The 50 states and the
District of Columbia receive open-ended funding from the federal government with no caps on
total allotments.88 By contrast, the Northern Mariana Islands, like the other territories, receives a
capped amount every year.89 Once that cap is reached, which can often happen before October
of each year, the federal government no longer covers any of the costs.90 Additionally, the
federal government customizes each state’s reimbursement rate for each state based on the
state’s per capita income – states with lower income levels receive greater subsidies, ranging
88
Center on Budget and Policy Priorities, Introduction to Medicaid, available at
https://www.cbpp.org/sites/default/files/atoms/files/policybasics-medicaid_0.pdf (last updated Aug. 16, 2016).
89
U.S. Gov’t Accountability Office, supra note 35.
90
Id.
24
from 50% to almost 75% in 2017.91 In the territories, which are generally less wealthy than the
vast majority of the states, the rate is set at 55%.92 This disparity results in significantly lower
The Northern Mariana Islands’ economy already faces instability due to federal
mandates and other decisions impacting island residents. The denial of federal funding that is
received in other parts of the United States only contributes to the economic issues facing
V. Conclusion
In light of the continued democratic deficit facing the nearly 4 million residents of
U.S. territories, amici request that the Commission rule in favor of Petitioners in Rosselló v.
United States.
91
Kaiser Family Foundation, Federal Medical Assistance Percentage (FMAP) for Medicaid and Multiplier,
available at https://www.kff.org/medicaid/state-indicator/federal-matching-rate-and-
multiplier/?currentTimeframe=1&sortModel=%7B%22colId%22:%22FMAP%20Percentage%22,%22sort%22:%22
desc%22%7D (last visited Mar. 13, 2018).
92
Gov’t Accountability Off., supra note 35.
93
Id.
25
Appendix A
List of Amicus Curiae
The Hon. Madeleine Z. Bordallo, Member of Congress representing Guam
The Hon. Stacey Plaskett, Member of Congress representing U.S. Virgin Islands
The Hon. Gregorio Kilili Sablan, Member of Congress representing the Northern Mariana
Islands
The Hon. Eddie Baza Calvo, Governor of Guam
The Hon. Carl T.C. Gutierrez, former Governor of Guam
The Hon. John de Jongh, Jr., former Governor of the U.S. Virgin Islands
The Hon. Charles W. Turnbull, former Governor of the U.S. Virgin Islands
The Hon. Donna M. Christian-Christensen, former Congresswoman representing the U.S. Virgin
Islands
A-1