Revised Comprehensive Conservation Plan and Environmental Impact Statement Alaska Peninsula and Becharof National Wildlife Refuges

              U.S. Fish & Wildlife Service
Revised Comprehensive
Conservation Plan and
Environmental Impact Statement
Alaska Peninsula and Becharof
National Wildlife Refuges
U.S. Fish and Wildlife Service Mission Statement
The mission of the U.S. Fish and Wildlife Service is working
with others to conserve, protect, and enhance fish, wildlife,
plants, and their habitats for the continuing benefit of the
American people.
Refuge Mission Statement
The mission of the National Wildlife Refuge System is to
administer a national network of lands and waters for the
conservation, management, and, where appropriate,
restoration of the fish, wildlife, and plant resources and their
habitats within the United States for the benefit of present
and future generations of Americans.
—National Wildlife Refuge System Improvement Act of 1997
The comprehensive conservation plan details program planning levels
that are substantially greater than current budget allocations and, as
such, is for strategic planning and program prioritization purposes only.
This plan does not constitute a commitment for staffing increases or
funding for future refuge-specific land acquisitions, construction
projects, or operational and maintenance increases.
Revised Comprehensive
Conservation Plan and
Environmental Impact Statement
Alaska Peninsula
and
Becharof
National Wildlife Refuges
October 2005
Prepared by
U.S. Fish & Wildlife Service
Region 7
Anchorage, Alaska
Alaska Peninsula and Becharof U.S. Fish & Wildlife Service
National Wildlife Refuges Region 7
P.O. Box 277 1011 East Tudor Road
King Salmon, AK 99613 Anchorage, AK 99503
United States Department of the Interior
FISH AND WILDLIFE SERVICE
1011 East Tudor Rd.
Anchorage, Alaska 99503-6199
Dear Reader:
This Revised Comprehensive Conservation Plan (Plan) and Environmental Impact Statement
(EIS) will guide management of the Alaska Peninsula and Becharof National Wildlife
Refuges for the next 15 years. This Plan outlines four management alternatives, including the
U.S. Fish & Wildlife Service’s preferred alternative, and presents the Service’s evaluation of
the environmental consequences of each of those alternatives.
To develop this Plan, we analyzed and considered the almost 11,600 comments received on the
Draft Plan, which was released in February 2004.
The Plan provides management direction for activities and uses of the Refuges, goals and
objectives for the Refuges programs, and compatibility determinations for the current uses of
the Refuges. The major change between the Draft Plan and this final Plan is that we
developed a fourth alternative (3a) as the new preferred alternative. This alternative differs
from the Draft plan preferred alternative in that it would require the refuge manager to
consider applications for helicopter access on a case-by-case basis.
We will publish a Record of Decision 30 days after release of this final Plan. The Record of
Decision will present the rational for selecting the course of action that will be followed by the
Refuges.
You may also view the plan online at http://www.r7.fws.gov/nwr/planning/plans.htm.
Comments and requests for additional CD-ROMs or further information should be directed to
Peter Wikoff, Planning Team Leader
U.S. Fish & Wildlife Service
1011 East Tudor Rd, MS-231
Anchorage, AK 99503
fw7_APB_planning@fws.gov
(907) 786-3837
We thank everyone who participated in the planning and public involvement process.
Your comments helped us prepare a better plan for the future of this refuge.
Alaska Peninsula and Becharof NWR Draft Conservation Plan i
Contents
Executive Summary.............................................................................................................. S-1
Lists of Tables and Figures ..................................................................................................xiii
Abbreviations and Acronyms............................................................................................... xvii
Glossary .................................................................................................................................. xix
1. Introduction ...................................................................................................................1-1
1.1 Purpose and Need for Action .............................................................................1-2
1.2 Planning Context..................................................................................................1-3
1.2.1 The U.S. Fish & Wildlife Service and the
National Wildlife Refuge System ...............................................................................1-3
1.3 Legal and Policy Guidance and State Coordination .......................................1-7
1.3.1 Legal Guidance.........................................................................................1-7
1.3.2 Policy Guidance........................................................................................1-7
1.3.3 State of Alaska Coordination .................................................................1-8
1.4 Refuge Purposes, Vision, and Goals..................................................................1-9
1.4.1 Refuge Purposes ......................................................................................1-9
1.4.2 Vision Statement....................................................................................1-10
1.4.3 Refuge Goals...........................................................................................1-11
1.5 Refuge Overview ................................................................................................1-12
1.5.1 Physical Environment...........................................................................1-12
1.5.2 Biological Resources..............................................................................1-14
1.5.3 Human Uses ...........................................................................................1-14
1.6 Special Values.....................................................................................................1-15
1.6.1 Refuge Characteristics Valued by the Public....................................1-15
1.6.2 Becharof Refuge ....................................................................................1-16
Becharof Wilderness Area .............................................................1-16
1.6.3 Alaska Peninsula Refuge ......................................................................1-19
1.6.4 Alaska Maritime Refuge.......................................................................1-24
1.7 The Planning Process........................................................................................1-24
1.7.1 Design the Planning Process ...............................................................1-24
1.7.2 Initiate Public Involvement and Scoping ...........................................1-25
1.7.3 Determine Significant Issues...............................................................1-26
1.7.4 Develop and Analyze Alternatives ......................................................1-27
1.7.5 Prepare Draft Plan and Environmental Impact Statement............1-27
Comments Received on the Draft Plan ........................................1-27
Public Meetings................................................................................1-28
Synopsis of Comments and Concerns from
Public Meetings ............................................................................1-28
Written Comments: .........................................................................1-28
1.7.6 Prepare and Adopt a Final Plan and Environmental
Impact Statement ..................................................................................1-29
Contents
ii Alaska Peninsula and Becharof NWR Draft Conservation Plan
1.7.7 Implement Plan, Monitor, and Evaluate ............................................1-29
1.7.8 Review and Revise Plan........................................................................1-30
1.8 Issues ...................................................................................................................1-30
1.9 Significant Planning Issues ..............................................................................1-34
1.9.1 Issue 1. How should we address recreation access to
remote and sensitive areas? .................................................................1-34
1.9.2 Issue 2. How can conflicts between refuge user groups
be minimized? .........................................................................................1-36
1.10 References Cited ................................................................................................1-38
2 Refuge Management Direction and Alternatives.....................................................2-1
2.1 Introduction ..........................................................................................................2-1
2.2 Refuge Goals and Objectives ..............................................................................2-1
2.3 Management Direction......................................................................................2-13
2.4 Management Policies and Guidelines..............................................................2-13
2.5 Management Emergencies ...............................................................................2-14
2.6 Land Exchanges and Acquisitions...................................................................2-15
2.7 Land Protection Planning.................................................................................2-15
2.8 Compatibility Determinations..........................................................................2-15
2.9 Mitigation ............................................................................................................2-16
2.10 Coastal Zone Consistency.................................................................................2-17
2.11 Cooperation and Coordination with Others ...................................................2-18
2.11.1 Federal, State and Local Governments..............................................2-18
2.11.2 Tribes and Native American Organizations.......................................2-20
2.11.3 Owners of Refuge Inholdings and Adjacent Lands..........................2-20
2.11.4 Service Jurisdiction Over Waters Within the Refuges ....................2-20
2.11.5 Other Constituencies.............................................................................2-21
2.12 Ecosystem and Landscape Management .......................................................2-21
2.12.1 Air Quality...............................................................................................2-22
2.12.2 Water Resources (Hydrology) Management.....................................2-22
2.12.3 Visual Resource Management .............................................................2-23
2.12.4 Cultural, Historical, and Paleontological Resources ........................2-24
2.13 Fish and Wildlife Habitat Management .........................................................2-25
2.13.1 Habitat Management ............................................................................2-25
2.13.2 Fire Management ..................................................................................2-27
Wildland Fire Suppression.............................................................2-27
Wildland Fire Use ...........................................................................2-27
Prescribed Fire ................................................................................2-27
2.13.3 Weed Control (Pest and Nonnative Plant Management) ................2-28
2.14 Fish and Wildlife Population Management....................................................2-28
2.14.1 Wildlife Inventory and Monitoring Plan ............................................2-28
2.14.2 Scientific Peer Review...........................................................................2-29
2.14.3 Compliance with the Animal Welfare Act ..........................................2-29
2.14.4 Marking and Banding............................................................................2-29
2.14.5 Threatened or Endangered Species....................................................2-29
Contents
Alaska Peninsula and Becharof NWR Draft Conservation Plan iii
2.14.6 Introductions and Reintroductions .....................................................2-30
2.14.7 Fish and Wildlife Control .....................................................................2-30
2.14.8 Nonnative Species Management .........................................................2-31
2.14.9 Fish and Wildlife Pest Management and Disease
Prevention and Control.........................................................................2-31
2.14.10 Fishery Restoration ..............................................................................2-32
2.14.11 Fishery Enhancement...........................................................................2-32
2.14.12 Fish Management Planning .................................................................2-33
2.15 Subsistence Use Management .........................................................................2-33
2.15.1 Access for Subsistence Purposes.........................................................2-34
2.15.2 Section 810 Evaluations ........................................................................2-34
2.16 Public Access and Transportation Management...........................................2-35
2.16.1 Snowmachines, Motorboats, Airplanes, and Nonmotorized
Surface Transportation.........................................................................2-35
2.16.2 Helicopters and Off-Road Vehicles .....................................................2-35
Off-Road Vehicles ............................................................................2-35
Helicopters........................................................................................2-35
2.16.3 Access to Inholdings..............................................................................2-36
2.16.4 Temporary Access .................................................................................2-36
2.16.5 Subsistence Access ................................................................................2-36
2.16.6 Transportation and Utility Systems ...................................................2-36
2.16.7 State Transportation Planning ............................................................2-37
2.16.8 RS 2477 Rights-of-Way.........................................................................2-38
2.16.9 Section 17(b) Easements.......................................................................2-38
2.16.10 Navigation Aids and Other Facilities..................................................2-38
2.17 Recreation and Other Public Use....................................................................2-39
2.18 Outreach ..............................................................................................................2-40
2.18.1 Other Outreach Activities.....................................................................2-40
2.19 Recreation Facilities..........................................................................................2-40
2.19.1 Cabins ......................................................................................................2-41
2.19.2 Temporary Facilities .............................................................................2-41
2.20 Commercial-Use Management ........................................................................2-42
2.20.1 Mineral Exploration and Development ..............................................2-43
Oil and Gas Assessment..................................................................2-43
Oil and Gas Leasing.........................................................................2-43
Sand, Gravel, and Other Common Variety (Saleable) Minerals2-43
Other Mineral Leasing....................................................................2-44
Alaska Mineral Resource Assessment Program.........................2-44
2.20.2 Commercial Recreation Services.........................................................2-44
2.20.3 Commercial Fishing and Related Facilities.......................................2-45
2.20.4 Commercial Harvest of Timber and Firewood .................................2-45
2.20.5 Commercial Gathering of Other Resources.......................................2-45
2.20.6 Commercial Filming and Recording Activities .................................2-45
2.20.7 Other Commercial Uses........................................................................2-46
Contents
iv Alaska Peninsula and Becharof NWR Draft Conservation Plan
2.21 Environmental Contaminants Identification and Cleanup..........................2-46
2.22 Management of Areas with Special Designation...............................2-47
2.22.1 Management of Designated Wilderness.............................................2-47
2.22.2 Mount Veniaminof National Natural Landmark ..............................2-48
2.23 Administration of Alaska Peninsula and
Becharof National Wildlife Refuges................................................................2-49
2.23.1 Administrative Sites and Visitor Facilities ........................................2-49
Applicability of Refuge Regulations to Off-Refuge
Administrative and Visitor Facility Sites..................................2-50
2.23.2 Refuge Management Plans ..................................................................2-50
2.24 Management Categories ...................................................................................2-50
2.24.1 Moderate Management.........................................................................2-51
2.24.2 Minimal Management ...........................................................................2-51
2.24.3 Wilderness ..............................................................................................2-52
2.24.4 Special Management .............................................................................2-55
Management of Selected Lands ....................................................2-56
Alaska Native Claims Settlement Act Section 22(g) ..................2-56
2.24.5 Management Categories Table............................................................2-56
Explanatory Notes ..........................................................................2-56
Key for Management Categories Table .......................................2-56
2.25 Process Employed to Develop Alternatives...................................................2-69
2.26 Elements Common to All Alternatives ...........................................................2-70
2.27 Alternatives Considered, But Eliminated from Detailed Study .................2-71
2.27.1 Access Restrictions................................................................................2-71
2.27.2 Activity Restrictions..............................................................................2-71
2.27.3 Special Area Designations....................................................................2-72
2.28 Alternative 1—Continue Current Management............................................2-72
2.28.1 Management Direction..........................................................................2-72
General Refuge Management ........................................................2-85
Fish and Wildlife Management......................................................2-85
Subsistence Management...............................................................2-86
2.28.2 Public Use Management Plan..............................................................2-86
Wildlife ..............................................................................................2-87
Access ................................................................................................2-88
Pack Animals..............................................................................2-88
Motorboats..................................................................................2-88
Aircraft ........................................................................................2-88
Off-Road Vehicles ......................................................................2-88
Guided and Unguided Public Use .................................................2-89
Big-Game Guiding/Outfitting...................................................2-90
Hunting .......................................................................................2-90
Recreational Fishing and Guided Recreational Fishing......2-91
Facility Development and Use.......................................................2-91
Trails and Campsites.................................................................2-91
Contents
Alaska Peninsula and Becharof NWR Draft Conservation Plan v
Easements ..................................................................................2-91
Cabins..........................................................................................2-92
Temporary Facilities.................................................................2-92
Information and Education ............................................................2-93
Commercial Services.......................................................................2-93
2.28.3 Refuge Infrastructure and Administration .......................................2-94
2.28.4 Funding and Personnel Requirements...............................................2-94
2.29 Elements Common to Action Alternatives.....................................................2-95
2.29.1 Wildlife ....................................................................................................2-96
Wildlife Habitat ...........................................................................................................2-96
Fish ....................................................................................................2-96
2.29.2 Public Use and Access...........................................................................2-97
2.30 Alternative 2 .......................................................................................................2-97
2.30.1 Management Direction .........................................................................2-97
General Refuge Management........................................................2-98
Fish and Wildlife Management ...................................................2-101
Subsistence Management.............................................................2-101
Public Use Management Plan......................................................2-101
Commercial Services.....................................................................2-101
Refuge Infrastructure/Administration.......................................2-102
2.30.2 Funding and Personnel Requirements.............................................2-102
2.31 Alternative 3 .....................................................................................................2-103
2.31.1 Management Direction .......................................................................2-103
General Refuge Management......................................................2-104
Fish and Wildlife Management ...................................................2-104
Subsistence Management.............................................................2-104
Public Use and Access Management ..........................................2-108
Commercial Services.....................................................................2-108
Refuge Infrastructure and Administration ...............................2-108
2.31.2 Funding and Personnel Requirements.............................................2-108
2.32 Alternative 3a Preferred Alternative............................................................2-109
2.32.1 Management Direction .......................................................................2-109
General Refuge Management......................................................2-110
Fish and Wildlife Management ...................................................2-113
Subsistence Management.............................................................2-113
Public Use and Access Management ..........................................2-113
Commercial Services.....................................................................2-113
Refuge Infrastructure and Administration ...............................2-113
2.32.2 Funding and Personnel Requirements.............................................2-113
2.33 Summary Comparison of Alternatives..........................................................2-114
2.34 References Cited..............................................................................................2-117
Contents
vi Alaska Peninsula and Becharof NWR Draft Conservation Plan
3. Affected Environment ..................................................................................................3-1
3.1 Geographic and Ecosystem Setting ..................................................................3-1
3.1.1 Land Status...............................................................................................3-1
Existing ...............................................................................................3-1
Acquisitions or Exchanges ...............................................................3-9
Environmental Contaminants........................................................3-10
3.1.2 Physical Environment...........................................................................3-10
Area of Influence..............................................................................3-10
Water Quantity.................................................................................3-17
Water Quality ...................................................................................3-19
Unique Water Resources................................................................3-21
3.2 Biological Environment.....................................................................................3-23
3.2.1 Ecosystems .............................................................................................3-23
Alaska Ecosystems..........................................................................3-23
Concerns............................................................................................3-27
3.2.2 Vegetation ...............................................................................................3-30
Threatened and Endangered Plant Species ................................3-31
Vascular Plant Species....................................................................3-31
Cover Types......................................................................................3-31
Nonvascular Plants..........................................................................3-35
3.2.3 Fish and Wildlife ....................................................................................3-35
Threatened and Endangered Animal Species .............................3-35
Fish ....................................................................................................3-36
Birds ..................................................................................................3-42
Land Mammals ................................................................................3-46
Marine Mammals .............................................................................3-52
3.3 Human Environment.........................................................................................3-53
3.3.1 Local Population and Economy ...........................................................3-53
History...............................................................................................3-53
Local Government and Institutions ..............................................3-54
Population .........................................................................................3-55
Economy............................................................................................3-58
Subsistence in the Mixed-Market Economy..........................3-62
Refuge Contributions to the Economy...................................3-63
Regional Economic Outlook .....................................................3-64
3.3.2 Subsistence .............................................................................................3-67
Caribou Harvest and Uses .............................................................3-71
Moose Harvest and Uses ................................................................3-77
Brown Bear Harvest and Uses ......................................................3-78
3.3.3 Cultural Resources ................................................................................3-79
Cultural Resource Management....................................................3-80
Cultural Resources on the Refuges ..............................................3-81
Contents
Alaska Peninsula and Becharof NWR Draft Conservation Plan vii
3.3.4 Recreation Uses .....................................................................................3-81
Recreational Fishing .......................................................................3-82
Recreational Hunting......................................................................3-87
Interpretation and Education........................................................3-92
Conflicts and Crowding ..................................................................3-93
3.4 Wilderness Values..............................................................................................3-96
3.4.1 Becharof National Wildlife Refuge .....................................................3-97
Becharof Wilderness Area .............................................................3-97
Island Arm and Mount Peulik .......................................................3-97
Becharof Lowlands Area ..............................................................3-101
Big Creek and Katmai Uplands...................................................3-101
3.4.2 Alaska Peninsula Refuge ....................................................................3-102
Ugashik Unit ..................................................................................3-102
Chignik Unit ...................................................................................3-103
3.4.3 Alaska Maritime Refuge.....................................................................3-104
Seal Cape ........................................................................................3-104
3.4.4 Existing Wilderness Recommendation ............................................3-104
3.5 River Values......................................................................................................3-107
3.5.1 Exceptional Rivers on Becharof Refuge ..........................................3-107
King Salmon River ........................................................................3-107
Ruth River and Lake.....................................................................3-108
3.5.2 Exceptional Rivers on Alaska Peninsula
Refuge—Ugashik Unit .......................................................................3-108
Ugashik Narrows...........................................................................3-108
Dog Salmon River..........................................................................3-111
King Salmon River ........................................................................3-113
Port Wrangell River......................................................................3-114
Agripina River................................................................................3-114
3.5.3 Exceptional Rivers on Alaska Peninsula
Refuge—Chignik Unit ........................................................................3-115
Upper Sandy River........................................................................3-115
Black Lake–Chignik River Tributary Complex (West):
West Fork Chignik River and Bearskin Creek......................3-115
Black Lake–Chignik River Tributary Complex (East):
Chiaktuak (Red Salmon) Creek, Fan Creek,
and Alec River.............................................................................3-116
3.6 Refuge Infrastructure and Administration..................................................3-117
3.6.1 Facilities ................................................................................................3-117
3.6.2 Staffing ..................................................................................................3-118
3.7 References Cited..............................................................................................3-122
4. Environmental Consequences.....................................................................................4-1
4.1 Introduction ..........................................................................................................4-1
4.2 Alternative 1—Current Management...............................................................4-3
4.2.1 Effects on Biological Resources ............................................................4-3
Contents
viii Alaska Peninsula and Becharof NWR Draft Conservation Plan
Introduction........................................................................................4-3
Caribou and Moose............................................................................4-4
Bears and Wolves ..............................................................................4-4
Seabirds and Other Avian Species ..................................................4-5
Fisheries..............................................................................................4-5
Fish and Wildlife Habitat .................................................................4-6
4.2.2 Effects on Human Environment ...........................................................4-7
Local Population and Economy .......................................................4-7
Subsistence Resources and Use ....................................................4-10
Recreation Uses...............................................................................4-13
4.2.3 Effects on Wilderness Values and Character of the Becharof
Wilderness Area.....................................................................................4-18
4.2.4 Cumulative Effects ................................................................................4-18
4.3 Alternative 2........................................................................................................4-19
4.3.1 Effects on Biological Resources...........................................................4-20
Introduction......................................................................................4-20
Caribou and Moose..........................................................................4-20
Bears and Wolves ............................................................................4-21
Seabirds and Other Avian Species ................................................4-21
Fisheries............................................................................................4-22
Fish and Wildlife Habitat ...............................................................4-23
4.3.2 Effects on Human Environment .........................................................4-24
Local Population and Economy .....................................................4-25
Effects on Subsistence Uses ..........................................................4-26
Effects on Recreation Uses............................................................4-27
4.3.3 Effects on Wilderness Values and Character of the
Becharof Wilderness Area....................................................................4-29
4.3.4 Cumulative Effects ................................................................................4-29
4.4 Alternative 3........................................................................................................4-30
4.4.1 Effects on Biological Resources...........................................................4-30
Introduction......................................................................................4-30
Caribou and Moose..........................................................................4-31
Bears and Wolves ............................................................................4-31
Seabirds and Other Avian Species ................................................4-31
Fisheries............................................................................................4-32
Fish and Wildlife Habitat ...............................................................4-32
4.4.2 Effects on Human Environment .........................................................4-33
Local Population and Economy .....................................................4-33
Subsistence Uses .............................................................................4-35
Recreation Uses...............................................................................4-36
4.4.3 Effects on Wilderness Values and Character of the
Becharof Wilderness Area....................................................................4-38
4.4.4 Cumulative Effects ................................................................................4-38
Contents
Alaska Peninsula and Becharof NWR Draft Conservation Plan ix
4.5 Alternative 3a—Preferred Alternative...........................................................4-39
4.5.1 Effects on Biological Resources ..........................................................4-39
Introduction......................................................................................4-39
Caribou and Moose..........................................................................4-40
Bears and Wolves ............................................................................4-41
Seabirds and Other Avian Species ................................................4-41
Fisheries............................................................................................4-42
Fish and Wildlife Habitat ...............................................................4-43
4.5.2 Effects on Human Environment .........................................................4-45
Local Population and Economy.....................................................4-45
Subsistence Uses .............................................................................4-47
Recreation Uses...............................................................................4-48
4.5.3 Effects on Wilderness Values and Character of the
Becharof Wilderness Area....................................................................4-50
4.5.4 Cumulative Effects ................................................................................4-50
4.6 Relationship Between Short-Term Uses of the Environment and
Long-Term Productivity...................................................................................4-51
4.7 Irreversible and Irretrievable Commitment of Resources..........................4-51
4.8 Environmental Justice ......................................................................................4-52
4.9 Section 810 Evaluation ......................................................................................4-53
4.10 Summary Comparison of Environmental Effects.........................................4-54
4.10.1 Definition of Terms................................................................................4-54
4.11 References Cited................................................................................................4-60
5. Evaluation of the Alternatives ....................................................................................5-1
5.1 Evaluation Criteria ..............................................................................................5-1
5.2 Response to Refuge Purposes............................................................................5-1
5.3 Response to National Wildlife Refuge System Mission.................................5-2
5.4 Response to Refuge Goals ..................................................................................5-2
5.5 Response to Issues...............................................................................................5-2
5.5.1 Access to Remote or Sensitive Areas....................................................5-2
5.5.2 User Conflicts...........................................................................................5-3
5.6 Biological Integrity and Ecosystem Management..........................................5-3
5.7 Agreement with ADF&G Management Plans.................................................5-4
5.8 References Cited..................................................................................................5-4
6. Implementation and Monitoring.................................................................................6-1
6.1 Step-Down Plans..................................................................................................6-1
6.1.1 Cultural Resource Guide ........................................................................6-1
6.1.2 Environmental Education Plan .............................................................6-1
6.1.3 Facilities Management Plan...................................................................6-2
6.1.4 Fire Management Plan ...........................................................................6-2
6.1.5 Fisheries Management Plan ..................................................................6-2
6.1.6 Habitat Inventory Plan...........................................................................6-2
6.1.7 Land-Protection Plan..............................................................................6-3
Contents
x Alaska Peninsula and Becharof NWR Draft Conservation Plan
6.1.8 Public-Use Management Plan or Visitor Services Plan.....................6-3
6.1.9 Safety Plan................................................................................................6-3
6.1.10 Water Resources Plan.............................................................................6-3
6.1.11 Wildlife Inventory Plan...........................................................................6-4
6.1.12 Wilderness Stewardship Plan ................................................................6-4
6.2 Partnership Opportunities..................................................................................6-4
6.3 Monitoring and Evaluation .................................................................................6-6
6.4 Plan Amendment and Revision........................................................................6-12
7. Consultation and Coordination with Others..............................................................7-1
7.1 Consistency with the Alaska Coastal Management Program.......................7-1
7.1.1 Alaska Coastal Management Program Policies ..................................7-2
7.1.2 Lake and Peninsula Borough Coastal Management Plan .................7-3
7.1.3 Aleutians East Borough Coastal Management Program ..................7-4
7.1.4 Kodiak Island Borough Coastal Management Program....................7-5
7.2 Section 7 Compliance...........................................................................................7-6
Appendix A: Legal and Policy Guidance; Coordination with the State of Alaska .......A-1
1.1 Legal Guidance....................................................................................................A-1
1.1.1 International Treaties ............................................................................A-1
1.1.2 National Guidance...................................................................................A-1
1.2 Policy Guidance ...................................................................................................A-4
1.2.1 Ecosystem Approach to Management.................................................A-5
1.2.2 National Management Plans.................................................................A-5
1.2.3 Regional Management Plans.................................................................A-7
1.3 Coordination with Other Governments..........................................................A-10
1.4 References Cited ...............................................................................................A-13
Appendix B: Master Memorandum of Agreement...........................................................B-1
Appendix C: Easements, Withdrawals, and Rights of Way............................................C-1
Appendix D: Species Lists ...................................................................................................D-1
Appendix E: Preparers.........................................................................................................E-1
Appendix F: Mailing List .....................................................................................................F-1
Appendix G: SOA Perspective on TUS, etc. ......................................................................G-1
Appendix H: Compatibility Determinations..................................................................... H-1
Recreational Fishing (wildlife-dependent recreation) ........................................... H-1
Recreational Hunting (wildlife-dependent recreation).......................................... H-9
Wildlife Viewing, Photography, Environmental Education, and
Environmental Interpretation (wildlife-dependent recreation)................ H-17
Commercially Guided Recreational Fishing Services ......................................... H-25
Commercially Guided Big-Game Hunting Services............................................. H-35
Commercial Transporter Services.......................................................................... H-45
Subsistence Activities ............................................................................................... H-53
Contents
Alaska Peninsula and Becharof NWR Draft Conservation Plan xi
Reburial of Archaeological Human Remains per State and
Federal Guidelines........................................................................................... H-61
Scientific Research.................................................................................................... H-67
State of Alaska Management Activities ................................................................. H-73
Appendix I: Response to Comments ................................................................................... I-1
Tables and Figures
Alaska Peninsula and Becharof NWR Draft Conservation Plan xiii
Tables
Table 1-1 Location and dates of public meetings in 1998a ......................................1-26
Table 1-2 Locations and dates of public meetings held in March and
April 1999 ......................................................................................................1-26
Table 1-3 Locations and dates of public meetings held during winter 2000.........1-27
Table 1-4 Locations and dates of public meetings....................................................1-28
Table 1-5 Most common comments received on draft Plan.....................................1-29
Table 2 1 Activities, public uses, commercial uses, and facilities
by management category............................................................................2-58
Table 2-2 Comparison of activities and uses of current management with
management proposed in the revised Conservation Plan......................2-77
Table 2-3 Management category designations in Alternative 1 .............................2-85
Table 2-4 Budget and staffing needs for Alternative 1............................................2-95
Table 2-5 Management category designations in Alternative 2 ...........................2-101
Table 2-6 Budget and staffing needs for Alternative 2..........................................2-103
Table 2-7 Management category designations in Alternative 3 ...........................2-104
Table 2-8 Budget and staffing needs for Alternative 3..........................................2-109
Table 2-9 Management category designations in Alternative 3a .........................2-113
Table 2-10 Budget and staffing needs for Alternative 3a........................................2-114
Table 2-11 Comparison of acreages in the various management categories
by alternative..............................................................................................2-115
Table 2-12 Comparison of alternatives.......................................................................2-115
Table 2-13 Summary of budget staffing needs..........................................................2-117
Table 3-1 Land status (in acres) within the Refugesa ...............................................3-2
Table 3-2 ANCSA village corporations with acreage selections or
conveyances within the Refuges ..................................................................3-5
Table 3-3 Acreages of ecoregions found on the Refuges and other
conservation system units...........................................................................3-25
Table 3-4 Descriptions of cover types on or near the Refuges ...............................3-33
Table 3-5 Major land cover types on or near the Alaska Peninsula and
Becharof National Wildlife Refugesa .......................................................3-34
Table 3-6 Summary of furbearer harvests in all of GMUs 9C and 9E
from the winter of 1985–1986 through the winter of 2002–2003 ...........3-47
Table 3-7 Characteristics of communities associated with the Refuges ...............3-57
Table 3-8 Employment and income attributable to activity on
Alaska Peninsula and Becharof Refuges.................................................3-64
Table 3-9 Annual per capita subsistence harvest, in pounds, of edible food.........3-69
Tables and Figures
xiv Alaska Peninsula and Becharof NWR Draft Conservation Plan
Table 3-10 Number of birds and eggs used by Alaska Peninsula residents...........3-70
Table 3-11 Harvest and use of caribou in Alaska Peninsula communities..............3-72
Table 3-12 Harvest and use of moose in Alaska Peninsula communities................3-77
Table 3-13 Recreational fishing use levels, Becharof and Ugashik systems ..........3-83
Table 3-14 Average recreational fishing catch and harvest by species,
1990–1996, Becharof and Ugashik systems..............................................3-84
Table 3-15 Existing administrative facilitiesa ...........................................................3-119
Table 3-16 Additional facilities needed to support current
Refuges programs......................................................................................3-121
Table 4-1 Summary of environmental consequences by alternative......................4-56
Table 6-1 Increased inventory and monitoring projects associated with
the action alternatives ...................................................................................6-7
Table 6-2 Monitoring indicators for public use, standards, and
possible actions...............................................................................................6-8
Table C–1 Mileage of proposed FS-2477 routes within the Refuges .......................C-3
Figures
Figure 1-1 Location of Alaska Peninsula and Becharof
National Wildlife Refuges.............................................................................1-1
Figure 1-2 The 16 national wildlife refuges in Alaska..................................................1-4
Figure 1-3 State of Alaska game management units ...................................................1-9
Figure 1-4 Becharof National Wildlife Refuge ...........................................................1-18
Figure 1-5 Ugashik Unit, Alaska Peninsula National Wildlife Refuge ...................1-21
Figure 1-6 Chignik and Seal Cape Units, Alaska Peninsula
National Wildlife Refuge ............................................................................1-22
Figure 2-1 Current management categories ...............................................................2-53
Figure 2-2 Alternative 1 .................................................................................................2-75
Figure 2-3 Alternative 2 .................................................................................................2-99
Figure 2-4 Alternative 3 ...............................................................................................2-105
Figure 2-5 Yantarni Bay Moderate Management Area...........................................2-107
Figure 2-6 Alternative 3a (Preferred Alternative) ...................................................2-111
Figure 3-1 Generalized land status .................................................................................3-3
Figure 3-2 Native corporation lands...............................................................................3-7
Figure 3-3 Ecoregion designations (Nowacki et al. 2001) .........................................3-24
Figure 3-4 Map of conservation units in the region of Alaska Peninsula
and Becharof Refuges .................................................................................3-26
Figure 3-5 Map of the World Wildlife Fund ecoregion designations.......................3-27
Tables and Figures
Alaska Peninsula and Becharof NWR Draft Conservation Plan xv
Figure 3-6 Percentage of local residents using and hunting caribou, moose,
and brown bear.............................................................................................3-72
Figure 3-7 Estimated community harvest of caribou by game management unit3-73
Figure 3-8 Percentage of households reporting their caribou needs
were not met in 1996–1997..........................................................................3-74
Figure 3-9 Percentage of households reporting their moose needs were not met in
1996–1997 ......................................................................................................3-78
Figure 3-10 Trends in the number of guided sport fishing trips,
highest-use locations....................................................................................3-85
Figure 3-11 Trends in air-taxi business .........................................................................3-86
Figure 3-12 Trends in air-taxi trips ................................................................................3-86
Figure 3-13 Guided recreational hunt harvest ..............................................................3-89
Figure 3-14 Guided recreational hunting use................................................................3-89
Figure 3-15 Types of hunt (air taxi), 1988–1997............................................................3-92
Figure 3-16 Areas with wilderness values .....................................................................3-99
Figure 3-17 Existing Wilderness recommendation....................................................3-105
Figure 3-18 Exceptional rivers on the Refuges ..........................................................3-109
Figure 4-1 Percentage of households reporting their caribou needs
were not met in 1996–1997..........................................................................4-11
Figure 4-2 Percentage of households reporting their moose needs
were not met in 1996–1997..........................................................................4-12
Figure 7-1 U.S. Fish & Wildlife Service letter regarding threatened and
endangered species........................................................................................7-7
Figure 7-2 NOAA’s letter regarding Steller sea lions .................................................7-8
Figure C–1. ANCSA 17(b) easements .............................................................................C-4
Figure C–2. Asserted RS 2477 routes..............................................................................C-5
Figure G–1. Identified TUS and road corridors on the Alaska Peninsula .................G-2
Figure G–2. Southwest Alaska Area Transportation Plan:
Alaska Peninsula Corridor ..........................................................................G-3
Abbreviations and Acronyms
Alaska Peninsula and Becharof NWR Draft Conservation Plan xvii
Abbreviations and Acronyms
AAC Alaska Administrative Code
ACMP Alaska Coastal Management Program
ADF&G Alaska Department of Fish and Game
AHRS Alaska Heritage Resource Survey
ANCSA Alaska Native Claims Settlement Act
ANHA Alaska Natural History Association
ANILCA Alaska National Interest Lands Conservation Act
ANSI American National Standards Institute
ATV all-terrain vehicle
BIA Bureau of Indian Affairs
BLM U.S. Bureau of Land Management
CE categorical exclusion
CFR Code of Federal Regulations
cfs cubic feet per second
cfs/mi2 cubic feet per second per square mile
CRSA coastal resources service area
DLP defense of life or property
DNR Alaska Department of Natural Resources
EA environmental assessment
EIS environmental impact statement
EPA Environmental Protection Agency
FAA Federal Aviation Administration
fps feet per second
FRWR Federal Reserved Water Rights
GIS geographic information systems
GMU game management unit
I&M inventory and monitoring
IACUC Institutional Animal Care and Use Committee
KSVC King Salmon Visitor Center
LCP land conservation plan
LPP land protection plan
MAPS Monitoring Avian Productivity and Survivorship
mg/L milligrams per liter
NAPCH Northern Alaska Peninsula caribou herd
NEPA National Environmental Policy Act
NWR national wildlife refuge
ORV off-road vehicle
PUMP public-use management plan
RAWS Remote Area Weather Stations
RONS Refuge Operational Needs System
Glossary
xviii Alaska Peninsula and Becharof NWR Draft Conservation Plan
Service U.S. Fish & Wildlife Service
System National Wildlife Refuge System
TEA-21 Transportation Equity Act for the 21st Century
TUS transportation and utility system
USGS U.S. Geological Survey
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xix
Glossary
air transporter An air taxi operator licensed by the Federal Aviation
Administration who flies people to/from and/or within the
Refuges. Transporters must have special-use permits to operate
on the refuge.
allowed Activity, use, or facility is allowed under existing National
Environmental Policy Act (NEPA) analysis, a specific
compatibility determination, and compliance with all applicable
laws and regulations of the Service, other Federal agencies, and
the State of Alaska.
not allowed Activity, use, or facility is not allowed.
alternatives Different ways to resolve issues, achieve refuge purposes, meet
refuge goals, and contribute to the National Wildlife Refuge
System mission. Alternatives provide different options to
respond to major issues identified during the planning process.
“No Action Alternative” The current management direction. With this alternative, no
change from the current comprehensive conservation plan
would be implemented.
“Preferred Alternative” A proposed action in the NEPA document for the
comprehensive conservation plan identifying the alternative
that the Service believes best achieves planning unit purposes,
vision, and goals; helps fulfill the Refuge System mission;
maintains and, where appropriate, restores the ecological
integrity of each refuge and the Refuge System; addresses the
significant issues and mandates; and is consistent with
principles of sound fish and wildlife management.
angler hour One person fishing for one hour with recreational fishing gear
(e.g., rod and reel).
archaeological resource Any material remains of past human life or activities that are of
archaeological interest. Materials that are capable of providing
understanding of past human behavior, cultural adaptation, and
related topics through the application of scholarly or scientific
techniques.
authorized Activity, use, or facility allowed upon issuance of a special-use
permit or other authorization.
Glossary
xx Alaska Peninsula and Becharof NWR Draft Conservation Plan
big-game guide outfit Means to provide, for compensation or with the intent or with an
agreement to receive compensation, big-game commercial
hunting services in the field; a guide outfit includes
accompanying or being present with a big-game hunter in the
field, either personally or through an assistant; guide-outfit
does not include the provision of transportation to, from, or in
the field if the person providing the transportation and the
person being transported do not stalk, pursue, track, kill or
attempt to kill big game during the provision of transportation.
big-game guide A big-game guide-outfitter is a person who has special-use
permit to guide on a refuge and is licensed by the State of
Alaska to provide services, equipment, or facilities to a big-game
hunter in the field. A big-game guide accompanies or is present
with, personally or through an assistant, the hunter in the field.
big-game outfitter A big-game outfitter is a person who has special-use permit to
provide services on the refuge and who provides services,
supplies, or facilities to a big-game hunter in the field but does
not accompany nor is present with the hunter in the field.
biological diversity The variety of life, including the variety of living organisms, the
genetic differences among them, and the communities in which
they occur (USFWS, 602 FW 1.6).
biological integrity Biotic composition, structure, and functioning at the genetic,
organism, and community levels consistent with natural
conditions, including the natural biological processes that shape
genomes, organisms, and communities (USFWS, 602 FW 1.6).
campsite hardening Actions undertaken to increase the durability of a campsite
through manipulation such as placing gravel on a place to pitch
a tent or trails within the campsite. Does not include facilities
such as outhouses, picnic tables, etc., normally associated with
campgrounds.
categorical exclusion
(CE, CX, CATEX, CATX) A category of actions that do not individually or cumulatively
have a significant effect on the human environment and have
been found to have no such effect in procedures adopted by a
Federal agency pursuant to the National Environmental Policy
Act (40 CFR 1508.4).
commercial recreational use Recreational use of lands, waters, and resources for business or
financial gain; includes guided recreational fishing, guided
recreational hunting, other guided recreation, and air-taxi
services.
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xxi
compatible use A proposed or existing wildlife-dependent recreational use or
any other use of a refuge that, based on sound professional
judgment, will not materially interfere with or detract from the
fulfillment of the mission of the System or the purposes of the
refuge (USFWS, 603 FW 2 2.6).
compatibility determination A written determination signed and dated by the refuge
manager and the Service regional chief signifying that a
proposed or existing use of a national wildlife refuge is a
compatible use or is not a compatible use. The director of the
Service makes this delegation through the regional director
(USFWS, 603 FW 2 2.6).
comprehensive
conservation plan A document that describes the desired future conditions of a
refuge or planning unit and provides long-range guidance and
management direction to achieve the purposes of the refuge; to
help fulfill the mission of the Refuge System; to maintain and,
where appropriate, restore the ecological integrity of each
refuge and the Refuge System; to help achieve the goals of the
National Wilderness Preservation System; and to meet other
mandates. (USFWS, 602 FW 1.6).
cultural resources Fragile nonrenewable properties, including any district, site,
building, structure, or object significant in American history,
architecture, archaeology, engineering, or culture. These
resources are significant for information they contain or the
associations they have with past people, events, or life ways
(USFWS 1992).
ecological integrity The integration of biological integrity, natural biological
diversity, and environmental health; the replication of natural
conditions (USFWS, 602 FW 1.6).
ecosystem A biological community functioning together with its
environment as a unit.
effects (wildlife and habitat)
long-term effects Effects occurring after or lasting longer than 5 years after
implementation of the action.
major effects Affecting a regional or local population of a species, or its
habitat, sufficiently to cause a change in abundance or a change
in distribution beyond which natural recruitment is not likely to
return the population to its former abundance within several
generations.
minor effects Affecting the survival, reproduction, distribution, or behavior of
a specific group of individuals of a population in a localized area
for one generation or less without affecting the regional
population. Habitat composition and structure remain
Glossary
xxii Alaska Peninsula and Becharof NWR Draft Conservation Plan
unchanged; habitat quality, however, may be affected by
indirect actions (e.g., disturbance or displacement affecting a
specific group of individuals that may result in altered use of an
area).
moderate effects Affecting a local population, or habitat quality and composition
in a localized area, sufficiently to cause a change in abundance
or distribution for more than one generation, but unlikely to
affect the integrity of the regional population over the long
term.
negligible effects Temporary effects that do not result in a change in the survival,
reproduction, distribution, or behavior of individuals. The ability
of the habitat to support populations would remain unchanged
(e.g., temporary disturbance of a specific group of individuals
that does not result in a change in use of an area).
short-term effects Effects that are anticipated to occur within five years from
implementation of the action.
environmental assessment A concise public document that provides a sufficient analysis for
determining whether to prepare an environmental impact
statement (EIS) or a finding of no significant impact. It also aids
an agency’s compliance with NEPA when no EIS is necessary
(40 CFR 1508.9).
environmental health Abiotic composition, structure, and functioning of the
environment consistent with natural conditions, including the
natural abiotic processes that shape the environment (USFWS,
602 FW 1.6).
environmental impact
statement A detailed written statement, required by section 102(2)(C) of
the National Environmental Policy Act (NEPA), analyzing the
environmental impacts of a proposed action, adverse effects of
the project that cannot be avoided, alternative courses of action,
short-term uses of the environment versus the maintenance and
enhancement of long-term productivity, and any irreversible
and irretrievable commitment of resources (40 CFR 1508.11).
floating facilities Floathomes, floatcamps, floating lodges, floating caretaker
facilities (including mariculture), floating recreational facilities,
and other floating residential or commercial facilities located on
shorelands, tidelands, or submerged lands.
goal A descriptive, open-ended, and often broad statement of desired
future conditions that conveys purposes but does not define
measurable units (USFWS, 620 FW 1.6).
haul-out A beach or other terrestrial coastal location used by marine
mammals on a regular basis.
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xxiii
helicopter use for
recreational access Use of helicopters for other than official government
management activities, search and rescue, or other authorized
activities.
human food-conditioning A behavior learned when an animal receives food, fish, or
garbage from people.
human habituation Decrease in natural responsiveness upon repeated exposure to a
nonthreathening, human stimulus.
issue Any unsettled matter that requires a management decision
(e.g., a Service initiative, opportunity, resource management
problem, a threat to the resources of the unit, conflict in uses,
public concern, or the presence of an undesirable resource
condition) (USFWS, 602 FW 1.6).
land use permit An authorization issued by the State of Alaska for use of state
land. Permits are issued by the Alaska Department of Natural
Resources, Division of Mining, Land, and Water.
likelihood
low Effects are typically not expected, but could occur under
unusual conditions.
medium Effects are not expected to occur in the majority of instances.
high Effects are anticipated to occur as a result of implementing the
action.
marine transporter A vessel operator, licensed by the U.S. Coast Guard, who
provides water transportation services for people.
minimum-impact camping Camping leaving little or no trace of human occupation.
Techniques vary widely but include the following: selecting
durable sites (such as gravel bars), proper disposal of human
waste, packing out all litter not completely burned, having small
fires or no fires (using stoves for cooking), leaving vegetation
intact, removing evidence of campfires, using equipment and
clothing that blend in with the setting, and being quiet.
national wildlife refuge A designated area of land, water, or an interest in land or water
within the National Wildlife Refuge System; does not include
coordination areas. Find a complete listing of all units of the
Refuge System in the current Annual Report of Lands Under
Control of the U.S. Fish and Wildlife Service (USFWS 2003).
Glossary
xxiv Alaska Peninsula and Becharof NWR Draft Conservation Plan
native species A species, subspecies, or distinct population that occurs within
its natural range or natural zone of potential dispersal (i.e., the
geographic area the species occupies naturally or would occupy
in the absence of direct or indirect human activity or an
environmental catastrophe). This definition recognizes that
ecosystems and natural ranges are not static; they can and do
evolve over time. Thus a species may naturally extend its range
onto (or within) a refuge and still be considered native.
navigable waters Under Federal law, for the purpose of determining ownership of
submerged lands beneath inland water bodies not reserved at
the date of statehood, navigable waters are waters used or
susceptible to being used in their ordinary condition as
highways of commerce over which trade and travel are or may
be conducted in the customary modes of trade and travel on
water. In situations where navigability and the ownership of
submerged lands are disputed, the final authority for
determining navigability rests with the Federal courts.
National Environmental
Policy Act (NEPA) This act, promulgated in 1969, requires all Federal agencies to
disclose the environmental effects of their actions, incorporate
environmental information, and use public participation in the
planning and implementation of all actions. Federal agencies
must integrate NEPA with other planning requirements and
must prepare appropriate NEPA documents to facilitate better
environmental decision-making (from 40 CFR 1500). The law
also established the Council on Environmental Quality to
implement the law and to monitor compliance with the law.
nonconsumptive uses Recreational activities (e.g., hiking, photography, and wildlife
observation) that do not involve the taking or catching of fish,
wildlife, or other natural resources.
noncommercial
recreational uses Recreational uses of lands, waters, and resources not for
business or financial gain—including recreational fishing and
hunting, floating, camping, hiking, photography, and
sightseeing.
nonnative species A species, subspecies, or distinct population that has been
introduced by humans (intentionally or unintentionally) outside
its natural range or natural zone of potential dispersal.
objective A concise statement of what we want to achieve, how much we
want to achieve, when and where we want to achieve it, and who
is responsible for the work. Objectives derive from goals and
provide the basis for determining strategies, monitoring refuge
accomplishments, and evaluating the success of strategies.
Objectives should be attainable, time-specific, and measurable
(USFWS, 602 FW 1.6).
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xxv
ordinary high water mark The line on the shore established by the fluctuations of water
and indicated by physical characteristics such as a clear, natural
line impressed on the bank, shelving, changes in the character
of soil, destruction of terrestrial vegetation, the presence of
litter and debris, or other appropriate means that consider the
characteristics of the surrounding area (33 CFR 328.3[e]).
permanent base camp A camp with permanent or semipermanent structures that
serves as a base of operations for recreational fishing, hunting,
research, or other uses. In general, permanent base camps are
larger and provide more comfort and amenities than do
temporary base camps. The facilities cannot be readily
dismantled or moved and normally remain in place from year to
year.
primitive tent camps Portable camps, normally consisting of small tents, used by
nonguided and guided visitors. They usually remain in place
when in use and then are disassembled and removed.
public Individuals, organizations, and groups; officials of Federal,
state, and local government agencies; Indian tribes; Native
organizations; and foreign nations. Public may include anyone
outside the core planning team. It includes those who may or
may not have indicated an interest in Service issues and those
who do or do not realize that Service decisions may affect them.
public involvement A process that offers affected and interested individuals and
organizations opportunities to become informed about, and to
express their opinions on, Service actions and policies. In the
process, these public views are studied thoroughly and are
thoughtfully considered in shaping decisions for refuge
management.
public-use sites Sites identified that are important for public access (including
important floatplane and wheeled plane landing areas),
camping, hunting, fishing, or other recreational or public uses.
public-use management
plan (PUMP) A public-use management plan (also known as a visitor service
plan) guides the management of public use on a refuge. Public
use encompasses both recreational and subsistence uses and
includes hunting, trapping, fishing, guiding, camping,
photography, sightseeing, hiking, and wildlife viewing. A PUMP
summarizes how the public is involved in developing issues and
alternatives and describes the alternatives developed to manage
public use.
purposes of the refuge The purposes specified in or derived from the law, proclamation,
executive order, agreement, public land order, donation
document, or administrative memorandum establishing,
authorizing, or expanding a refuge, refuge unit, or refuge
subunit (USFWS, 602 FW 1.6).
Glossary
xxvi Alaska Peninsula and Becharof NWR Draft Conservation Plan
quality (recreation
opportunities and
experiences) Quality is defined as the degree to which recreational
opportunities and related experiences meet the objectives for
which they are planned and managed. The Service develops
visitor services programs in consultation with state fish and
wildlife agencies and stakeholder input based on the following
criteria:
􀂂􈉐 Promotes safety of participants, other visitors, and
facilities
􀂂􈉐 Promotes compliance with applicable laws and regulations
and responsible behavior
􀂂􈉍 Minimizes or eliminates conflict with fish and wildlife
population or habitat goals or objectives in a plan
approved after 1997
􀂂􈉍 Minimizes or eliminates conflicts with other priority
general public-use participants
􀂂􈉍 Minimizes conflicts with neighboring landowners
􀂂􈉐 Promotes accessibility and availability to a broad
spectrum of American people
􀂂􈉐 Promotes stewardship and conservation
􀂂􈉐 Promotes public understanding and increases public
appreciation of America’s natural resources and our role
in managing and protecting those resources
􀂂􈉐 Provides reliable/reasonable opportunity to experience
wildlife
􀂂􈉕 Uses facilities that are accessible and that blend into the
natural setting
􀂂􈉕 Uses visitor satisfaction to help define and evaluate
programs
record of decision (ROD) A concise public record of a decision prepared by the Federal
agency, pursuant to NEPA, that contains a statement of the
decision, identification of all alternatives considered,
identification of the environmentally preferable alternative, a
statement whether all practical means to avoid or minimize
environmental harm from the alternative selected have been
adopted (and if not, why they were not), and a summary of
monitoring and enforcement where applicable for any
mitigation (40 CFR 1505.2).
recreational fishing Taking or attempting to take for personal use, not for sale or
barter, any fish by hook and line held in the hand or attached to
a pole or rod that is held in the hand or is closely attended.
recreation guide A commercial operator who accompanies clients on the refuge
for photography, sightseeing, or other activities not related to
hunting or fishing, for either day or overnight trips.
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xxvii
recreational hunting Taking or attempting to take for personal use, not for sale or
barter, a game animal (as defined by the regulatory agency) by
any means allowed by the regulatory agency.
recreational fishing or
hunting guide A commercial operator who accompanies recreational fishing or
hunting clients on the refuge for day or overnight trips.
Refuge Operating Needs
System The Refuge Operating Needs System (RONS) is a national
database that contains a listing of the unfunded operational
needs of each refuge. We include projects required to
implement approved plans and to meet goals, objectives, and
legal mandates.
river classifications
wild rivers Those rivers or sections of rivers that are free of impoundments
and generally inaccessible except by trail, with watersheds or
shorelines essentially primitive and waters unpolluted. These
represent vestiges of primitive America.
scenic rivers Those rivers or sections of rivers that are free of
impoundments, with shorelines or watersheds still largely
primitive and shorelines largely undeveloped, but accessible in
places by roads.
recreational rivers Those rivers or sections of rivers that are readily accessible by
road or railroad, that may have some development along their
shorelines, and that may have undergone some impoundment or
diversion in the past.
special use permit A U.S. Fish and Wildlife Service authorization required for all
commercial uses of refuge lands and waters. Permits for Alaska
Peninsula and Becharof National Wildlife Refuges are issued by
the Refuges office in King Salmon.
spike camp A temporary camp set up by a guide or outfitter to provide
overnight accommodations away from base camp (see primitive
tent camp).
sport fishing or hunting See “recreational fishing” or “recreational hunting.”
step-down management plan A plan that provides specific guidance on management subjects
(e.g., habitat, public use, fire, safety) or groups of related
subjects. It describes strategies and implementation schedules
for meeting comprehensive conservation plan goals and
objectives.
Glossary
xxviii Alaska Peninsula and Becharof NWR Draft Conservation Plan
subsistence uses The customary and traditional uses by rural Alaska residents of
wild, renewable resources for direct personal or family
consumption as food, shelter, fuel, clothing, tools, or
transportation; for the making and selling of handicraft articles
out of nonedible byproducts of fish and wildlife resources taken
for personal or family consumption; for barter or sharing for
personal or family consumption; and for customary trade (from
Section 803 of the Alaska National Interest Lands Conservation
Act).
temporary base camp Serves as a center of operations and overnight accommodations
for guests and guides. A temporary base camp usually remains
in place for the full season of use (90 to 120 days) but may be
removed within 48 hours. It generally consists of larger tents
than do primitive camps and often has tent platforms or other
rigid floors. A typical camp would include several large guest
tents, a cook tent, and a few smaller tents for staff use, showers,
waste disposal, storage, etc. In some cases, smaller camps that
include only four or five tents and related facilities are used by
clients for overnight visits of two to four days. The primary
distinction between temporary base camps and primitive camps
is the period of occupancy. The specific details of a temporary
base camp located on refuge lands would be spelled out in the
state land-use permit or refuge special-use permit.
use day A period of one calendar day (24 hours), or portion thereof, for
each entity using a resource. When employed as a measure of
human us, it is called a visitor or visitor-use day.
visitor contact station A staffed or unstaffed facility where the public can learn about
the refuge and its resources.
vision statement A concise statement of the desired future condition of the
planning unit, based primarily on the System mission, specific
refuge purposes, and other relevant mandates (USFWS, 602
FW 1.6).
visitor day See “use day.”
wilderness An area essentially undisturbed by human activity, together
with its naturally developed life community.
Glossary
Alaska Peninsula and Becharof NWR Draft Conservation Plan xxix
Wilderness A designated Wilderness, in contrast with those areas where
man and his own works dominate the landscape, is hereby
recognized as an area where the earth and its community of life
are untrammeled by man, where man himself is a visitor who
does not remain. A Wilderness area is further defined to mean,
in this plan, an area of undeveloped federal land retaining its
primeval character and influence, without permanent
improvements or human habitation, which is protected and
managed to preserve its natural conditions and which (1)
generally appears to have been affected primarily by the forces
of nature, with the imprint of man’s work substantially
unnoticeable; (2) has outstanding opportunities for solitude or a
primitive and unconfined type of recreation; (3) has at least
5,000 acres of land or is of sufficient size as to make practicable
its preservation and use in an unimpaired conditions; and (4)
may also contain ecological, geological, or other features of
scientific, educational, scenic, or historical value (Wilderness
Act 1964).
Wilderness Area An area designated by the United States Congress to be
managed as part of the National Wilderness Preservation
System (USFWS, 602 FW 1.6).
wilderness review The process we use to determine if we should recommend
Refuge System lands and waters to Congress for Wilderness
designation.
wildlife-dependent
recreation A use of a refuge involving hunting, fishing, wildlife observation
and photography, or environmental education and
interpretation. These are the six priority public uses of the
Refuge System, as established in the National Wildlife Refuge
System Administration Act, as amended. Wildlife-dependent
recreational uses, other than the six priority public uses, are
those that depend on the presence of wildlife.
References Cited
USFWS. “Service Manual.” Accessed June 4, 2003. At
http://policy.fws.gov/manual.html on the World Wide Web,
produced by U.S. Fish and Wildlife Service.
USFWS. 1992. “Cultural Resources Handbook.” Accessed June
4, 2003, 2003. At http://www.policy.fws.gov/614fw1.html on the
World Wide Web, produced by U.S. Fish & Wildlife
Service.
Glossary
xxx Alaska Peninsula and Becharof NWR Draft Conservation Plan
USFWS. 2003. “Annual Report of Lands Under Control of the
U.S. Fish and Wildlife Service (as of September 30,
2002).” Accessed June 20, 2003. At
http://realty.fws.gov/PDF_Files/AROL2003.pdf on the World
Wide Web, produced by U.S. Fish and Wildlife Service,
Division of Realty. (PDF file)