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Critics are skeptical of new agreement to limit cruise passengers in Alaska's Capital

A new agreement between Alaska’s capital city and major cruise lines seeks to cap the daily number of cruise ship passengers arriving in Juneau starting in 2026, though a prominent critic of the cruise industry said Tuesday the planned limits do not do enough.

The agreement, finalized late last week, seeks a daily limit of 16,000 cruise passengers Sundays through Fridays and 12,000 on Saturdays. However, officials said that doesn't necessarily mean there will be that many people every day.

Cruise passengers numbers ramped up rapidly after two pandemic-stunted years, hitting a record of more than 1.6 million passengers in Juneau last year. That's caused tension between businesses that rely on tourism and residents who are fed up with increased traffic, busy trails and the hum of helicopters ferrying visitors to glaciers.

Cruise seasons also have gotten longer, with the first boat this year arriving in Juneau in early April and the last set to arrive in late October. On peak days in the past, passenger numbers have totaled about two-thirds of Juneau's population of roughly 32,000 people.

A daily limit of five large ships took effect with the current season, as part of a separate agreement signed last year.

Alexandra Pierce, Juneau’s visitor industry director, said Tuesday that the aim with the current agreement is to hold cruise passenger numbers roughly steady, in the 1.6 million range.

“The idea is that the agreement buys everybody time not only to see if it is sustainable but also to build the infrastructure that will help it feel more sustainable,” she said.

Pierce said she expects a number of projects will be completed in the next five years “that will help our current numbers feel less impactful." She cited plans for a gondola at the city-owned ski area, updates to the downtown sea walk and increased visitor capacity at the popular Mendenhall Glacier Recreation Area .

The agreement, which was signed by the city manager and major cruise line executives, also calls for yearly meetings to “review lessons learned, to review and optimize the subsequent season’s operations, and align on community and industry parameters, goals, and opportunities.”

Pierce said city leaders are “trying to balance the needs of our residents, the needs of our economy, the needs of future opportunities for people to stay in our community.”

Karla Hart, a longtime critic of the industry, is skeptical of the new agreement, saying it doesn't do enough to address concerns many residents have that current tourism levels are unsustainable.

“It feels like we’re just getting led along again, and expansion will continue and more time will pass" and impacts will continue, she said.

Hart is helping push a proposed local ballot initiative that would institute “ship free Saturdays,” with no cruise ships with a capacity of at least 250 passengers allowed to stop in Juneau on Saturdays or on July 4. The signature-review process for the proposed measure is underway. If the measure is certified, it could appear on the October ballot.

Renée Limoge Reeve, vice president of government and community relations for Cruise Lines International Association Alaska, a trade group, said initiatives “remove the opportunity for collaboration and discussion, and I think that that leaves a lot to be desired."

She said the agreements with Juneau are the first such agreements the industry has signed in Alaska and underscore the cruise lines' commitment “to being good partners in the communities that we visit.” Juneau and other southeast Alaska communities are popular stops on cruises that leave from Seattle or Vancouver. The much-smaller community of Sitka also has been grappling with the debate over tourism numbers.

Reeve and Pierce also participated Tuesday in a Greater Juneau Chamber of Commerce news conference to discuss the agreement.

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The Very Slow Restart of G.M.’s Cruise Driverless Car Business

An incident that seriously injured a pedestrian in San Francisco led Cruise to take all of its cars off the road. The question now is when they will return.

By Yiwen Lu

Reporting from Warren, Mich., and Mountain View, Calif.

At a sprawling complex in Warren, Mich., General Motors’ hopes for its driverless car future play out in a virtual reality headset offered to visitors.

In a video, the electric and autonomous car drives itself. Wirelessly connected to traffic lights and the surrounding streets, the car avoids collisions and reduces congestion, part of what G.M. calls its “0-0-0” vision — “zero crashes, zero emission, zero congestion.”

At least, that’s the plan. G.M.’s driverless future looks a lot further away today than it did a year ago, when Cruise, G.M.’s driverless car subsidiary, was deep into an aggressive expansion of its robot taxi services, testing in 15 cities across 10 states.

On Oct. 2, a Cruise driverless car hit and dragged a pedestrian for 20 feet on a San Francisco street, causing severe injuries. Weeks later, the California Department of Motor Vehicles accused Cruise of omitting the dragging from a video of the incident that was initially provided to the agency and suspended the company’s license in the state.

In November, Cruise voluntarily paused all operations across the country after facing widespread criticism that it was neglecting safety as it expanded its driverless taxi service. Cruise also pushed out nine executives, its chief executive stepped down , and the company laid off a quarter of its work force.

Now comes the hard part: Rebuilding a ruined reputation. In recent interviews with The New York Times, the three executives now running Cruise say they are in no rush to get back on the road. After learning the hard way about the risks of moving too fast with a cutting-edge technology, Cruise has slowed its breakneck development to a crawl to avoid another major mishap.

“For a long time before, Cruise was really moving fast and other competitors were not,” said Craig Glidden, who became president and chief administrative officer of Cruise in November. Now, he said, safety is Cruise’s “North Star.”

But going slow means the company risks falling far behind its top rivals. Waymo, a subsidiary of Google’s parent company, Alphabet, has had driverless taxis operating in the Phoenix area since 2020 and San Francisco since late 2022 without serious incidents, and it recently expanded to Los Angeles . Zoox , an Amazon subsidiary, has been testing a steering-wheel-free robot taxi in Las Vegas since last June.

“Catching up with Waymo technologically is going to take three to five years at best,” said Alex Roy, a consultant and former executive in the autonomous car industry. He added that it was even harder for Cruise to catch up commercially because Waymo was “generating revenues with trust that Cruise never earned.”

Some industry observers were surprised G.M. didn’t shut down Cruise after its public meltdown late last year. Since acquiring the company in 2016, G.M. has spent over $8 billion on its driverless subsidiary. Cruise lost $3.48 billion last year, and another $519 million over the first three months of 2024.

“I was thinking in the late part of 2023 and into early 2024 that the most likely outcome was that they were going to completely turn off Cruise,” said Reilly Brennan, a partner at Trucks Venture Capital, which invests in the future of transportation.

But after slashing $1 billion from Cruise’s 2024 budget, Mary T. Barra, G.M.’s chief executive, reiterated her commitment to the company during earnings calls. In April, she told investors that Cruise had made “tangible progress,” although G.M. is exploring different options to fund the business, including taking outside investments.

After Cruise’s former chief executive and co-founder Kyle Vogt resigned in November, G.M. appointed two presidents who report to its board: Mo Elshenawy, previously the company’s executive vice president of engineering, and Mr. Glidden, who also serves as G.M.’s general counsel. In February, Cruise hired Steve Kenner, a veteran product safety executive, as chief safety officer.

The three executives all decide on safety decisions, such as when to take the next step in deployment. Those calls, Mr. Kenner said, have to be unanimous.

So far, Cruise has taken baby steps back to the road. In April, it picked Phoenix, the home to its operations center, to be the first city to restart testing with human drivers. On May 13, after a month of driving a handful of vehicles in order to understand local road features, Cruise transitioned into supervised autonomous testing , with two safety drivers per vehicle.

Cruise used to say its robot taxis were, on average, safer than a human driver. But so-called edge cases — incidents like road construction or erratic cyclists that humans can intuitively react to — bedeviled the robot taxis. Mr. Elshenawy said the cars had improved their navigation of construction zones and how they deal with emergency vehicles.

Cruise hopes to offer driverless ride-hailing service in one city by the end of 2024, while operating with safety drivers in fewer than five cities, Mr. Glidden said. That is, if the edge case issue can be improved.

While Mr. Elshenawy’s engineering team works to improve the technology, Mr. Glidden and Mr. Kenner have been traveling across the country to meet with regulators. Cruise has met with local officials and state regulators in Arizona, Texas and California, as well as with the National Highway Traffic Safety Administration. It has also spoken with several cities in the Southeast where it previously tested its fleet.

In California, Cruise has answered questions from state regulators about driverless testing, but it is unclear if or when it could regain a permit. The talent pool in Silicon Valley is essential to Cruise’s business, so executives say they are committed to staying in the state.

Whether Cruise’s cautious approach restores faith in the company among regulators is an open question. Dave Cortese, a California state senator representing Silicon Valley, said the autonomous vehicle industry’s aggressive testing on public roads in the past had “created tension and distrust.”

For the company to win over regulators, it needs a “profound demonstration of transparency” to demonstrate that an incident like Oct. 2 will not happen again, said Mr. Roy, the consultant.

“We may not agree, but I think there are lots of places where we do agree,” said Tilly Chang, executive director of San Francisco County Transportation Authority. “But it is also unclear to us what it would take for them to get reinstated.”

Yiwen Lu reports on technology for The Times. More about Yiwen Lu

Driverless Cars and the Future of Transportation

A Very Slow Restart: An incident that seriously injured a pedestrian in San Francisco led Cruise, G.M.’s driverless car subsidiary, to take all of its cars off the road. The question now is when they will return .

An Appetite for Destruction: A wave of lawsuits argue that Tesla’s Autopilot software is dangerously overhyped. What can its blind spots teach us about Elon Musk, the company’s erratic chief executive ?

Along for the Ride: Here’s what New York Times reporters experienced during test rides in driverless cars operated by Tesla , Waymo  and Cruise .

The Future of Transportation?: Driverless cars, once a Silicon Valley fantasy, have become a 24-hour-a-day reality in San Francisco . “The Daily” looked at the unique challenges of coexisting with cars that drive themselves .

Stressing Cities: In San Francisco and Austin, Texas, where passengers can hail autonomous taxis, the vehicles are starting to take a toll on city services , even slowing down emergency response times.

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Awash in tourists, Juneau prepares to turn some cruise ships away

A voluntary agreement is set to begin in 2026, but some residents are seeking a tougher restriction, by: james brooks - june 5, 2024 10:38 am.

Cruise ships line the Juneau waterfront on Wednesday, June 8, 2022. (Photo by James Brooks/Alaska Beacon)

Alaska’s state capital is set to become the first city in Alaska and one of only a handful in the United States to limit the number of daily cruise ship tourists.

Under the terms of a voluntary agreement announced Monday and effective in 2026, the nation’s four largest cruise lines will schedule ships containing no more than 16,000 standard beds in Juneau per day, what the industry calls “lower berths,” with the limit dropping to 12,000 on Saturdays.

The agreement comes after growing complaints by locals about overcrowding, housing shortages, noise pollution and air pollution. 

“The goal and the message here is that Juneau is hitting pause on growth,” said Alexandra Pierce, the city’s tourism manager , of the agreement.

Because some ships sail above their listed capacity, the number of tourists allowed by the agreement may exceed 16,000 on some days, and that figure also doesn’t include visiting crew.

Some city residents say the agreement doesn’t go far enough to answer residents’ complaints, and they’re gathering petition signatures for a ballot measure that would ban cruise ships altogether on Saturdays.

One of the organizers of that measure, Karla Hart, said that even if the city’s agreement were for 12,000 or 5,000 people per day, it doesn’t give people a break from the cruise tourism season, which stretches from April through October.

“I’m still going to have helicopters flying over … there will still be whale-watching boats in numbers big enough that people can’t avoid those; all of the impacts of the industry will still be going even if there are some reductions in numbers of cruise passengers,” she said. 

A counter-campaign, urging locals to not sign the petition, is already underway. 

Juneau, a city of 32,000 residents, welcomes more than 1.6 million visitors annually , and on peak days, more than 21,000 tourists may visit by cruise ship. 

By number of ships and number of visitors, Juneau is the most popular whale-watching destination in the world, the city claims. The Mendenhall Glacier Recreation Area, located within city bounds and operated by the U.S. Forest Service, is the most-visited tourist attraction in Alaska. 

“The full-on cruise season in Juneau now is about 22 weeks long, which spans all of our summer plus our spring and our fall,” Hart said. 

Travelers frequently spread out across the city, climbing aboard helicopters, boarding whale-watching boats and riding buses.

Hart described listening to strings of eight or more helicopters flying over her home.

“It’s every day that people who are in their own homes are interrupted and disturbed by helicopter noise,” she said. “Their enjoyment of their yard, of the trails around their home is disturbed by helicopter noise. And people who want to go out boating are disturbed or displaced or disrupted or endangered by a fleet of over 70 whale-watching boats … which creates horribly confused wakes and noise and disruption.”

Some businesses are already taking steps to mitigate the problems.

Wings Airways, which flies tourists via floatplane to a remote lodge, imposed its own limits on its operation, said Holly Johnson, a company vice president. It hasn’t grown its fleet of five airplanes.

“It’s something we’ve sort of always done behind the scenes, because it was the right thing to do for our business,” she said.

Wings is an exception: After the end of the COVID-19 pandemic emergency, the number of cruise tourists visiting Juneau grew by 40% from 2022 to 2023.

“That was shocking for people, and we had a lot of community reaction,” Pierce said.

She said the busiest days “have felt a bit suffocating for a lot of people and we’re trying to eliminate that and create some balance for the community.”

For the city, the difficulty has been balancing the interests of workers employed in the tourism industry with the needs of local residents who feel the consequences. 

As far back as 2019 , Juneau had convened a task force to consider a cap on the number of visitors, and current discussions began in March, she said. 

Pierce said the new limit is designed to effectively hold tourist numbers steady, allowing businesses and the city to develop more infrastructure that spreads out the number of visitors, whether through new attractions like a summertime gondola planned for the city’s ski area, another cruise ship dock to spread out the crowd of arriving visitors, or changes to the Mendenhall Glacier site, planned by the Forest Service.

“Our goal is to make a million and a half people feel like a million people through infrastructure development,” she said.

By not having the cap take effect until 2026, cruise lines have time to reschedule their ships, said Renée Limoge Reeve, vice president of government and community Relations for Cruise Lines International Association Alaska. 

Other ports in Southeast Alaska will also have time to anticipate the arrival of ships that otherwise might visit Juneau.

Juneau’s approach is a voluntary agreement, which differs from some approaches taken elsewhere. The city of Key West, Florida, passed several voter-approved ordinances putting hard limits on cruise ships, but those were vetoed by the state legislature and Gov. Ron DeSantis.

In Bar Harbor, Maine, locals installed a hard cap of 1,000 cruise ship passengers per day. A U.S. District Court judge upheld that limit after a legal challenge, but the case has been appealed.

In Alaska, the city attorney in Sitka rejected a Bar Harbor-like limit last year as unconstitutional under the language of the Alaska Constitution.  

Juneau itself had an extended legal battle with the cruise industry over the use of head taxes paid by passengers. The city lost that case, which now limits how the city can spend passenger taxes.

That case, and the experience of other cities, encouraged Juneau to pursue negotiations and a voluntary cap. Pierce said that doesn’t mean the city will surrender to the industry if cruise lines decide to break the agreement.

Three of the four docks used by cruise ships in Juneau are city-owned, and in the worst-case scenario, “we’d say great, we’re closing our city docks,” Pierce said. “We do have a hammer. We just don’t want to use it.”

Meanwhile, Hart said she’s prepared to give Juneau residents the chance to vote on a tougher restriction. If the petition turns into a ballot vote this fall, she expects the resulting campaign could get “really ugly.”

Already, banners on some Juneau businesses are urging residents not to sign the petition.

“Our story is pretty clear,” she said. “It’s the lived experience of people. So we’ll just put in the work to give the community the chance to decide. And then it’s up to the community to decide. And we’ll see how it goes.”

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Our stories may be republished online or in print under Creative Commons license CC BY-NC-ND 4.0. We ask that you edit only for style or to shorten, provide proper attribution and link to our website. AP and Getty images may not be republished. Please see our republishing guidelines for use of any other photos and graphics.

James Brooks

James Brooks is a longtime Alaska reporter, having previously worked at the Anchorage Daily News, Juneau Empire, Kodiak Mirror and Fairbanks Daily News-Miner. A graduate of Virginia Tech, he is married to Caitlyn Ellis, owns a house in Juneau and has a small sled dog named Barley. He can be contacted at [email protected] .

Alaska Beacon is part of States Newsroom , the nation’s largest state-focused nonprofit news organization.

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Canada's jobless rate ticks up in May, wage growth accelerates too

Canada's jobless rate edged up to a more than two-year high in May and wage growth accelerated, data showed on Friday, giving two diverging signals on how the Bank of Canada will digest the reading for its next rate decision in July.

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