Revised Comprehensive Conservation Plan Alaska Peninsula and Becharof National Wildlife Refuges

              U.S. Fish & Wildlife Service
Revised Comprehensive
Conservation Plan
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
Alaska Peninsula
And
Becharof
National Wildlife Refuges
May 2006
Prepared by:
U.S. Fish and Wildlife Service
Region 7
Anchorage, Alaska
Alaska Peninsula and Becharof
National Wildlife Refuges
P.O. Box 277
King Salmon, AK 99613
U.S. Fish and Wildlife Service
Region 7
1011 East Tudor Rd.
Anchorage, AK 99503
Dear Reader,
This Revised Comprehensive Conservation Plan (Conservation Plan) presents
management direction for the Alaska Peninsula and Becharof National Wildlife Refuges.
It represents the preferred alternative, 3a, in the “Revised Comprehensive Conservation
Plan and Environmental Impact Statement: Alaska Peninsula and Becharof National
Wildlife Refuges” of October 2005. That Plan combined and updated the 1985 and 1987
Plans and incorporated a revision of the 1994 Public Use Management Plan.
This Conservation Plan covers the Becharof National Wildlife Refuge, the Ugashik and
Chignik units of the Alaska Peninsula National Wildlife Refuge, and the Seal Cape area
of Alaska Maritime National Wildlife Refuge. These units, all managed by the U.S. Fish
& Wildlife Service office in King Salmon, will be referred to as the Alaska Peninsula and
Becharof Refuges or simply as “the Refuges.”
The “Revised Comprehensive Conservation Plan and Environmental Impact Statement:
Alaska Peninsula and Becharof National Wildlife Refuges” of October 2005 contains
background information, alternatives, and the environmental effects of implementing the
plan. That information is not included in this document.
Comments or requests for further information may be addressed to:
Refuge Manager or Chief
Alaska Peninsula and Becharof
National Wildlife Refuges
P.O. Box 277
King Salmon, AK 99613
Division of Conservation
Planning and Policy
U.S. Fish and Wildlife Service
1011 East Tudor Rd.
Anchorage, AK 99503
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
1
Table of Contents
Acronyms 4
1. Introduction 5
1.1 Refuge Establishment..........................................................................................................6
1.2 Refuge Purposes ..................................................................................................................6
2. Refuge Management 7
2.1 Vision Statement .................................................................................................................7
2.2 Refuge Goals and Objectives ..............................................................................................8
2.3 Management Policies and Guidelines ...............................................................................16
2.3.1 General .................................................................................................................16
2.3.2 Management Emergencies ...................................................................................17
2.3.3 Land Exchanges and Acquisitions .......................................................................17
2.3.4 Land Protection Planning .....................................................................................17
2.3.5 Compatibility Determinations ..............................................................................18
2.3.6 Mitigation .............................................................................................................19
2.3.7 Coastal Zone Consistency ....................................................................................20
2.3.8 Cooperation and Coordination with Others..........................................................20
2.3.9 Ecosystem and Landscape Management ..............................................................23
2.3.10 Fish and Wildlife Habitat Management ...............................................................26
2.3.11 Fish and Wildlife Population Management..........................................................28
2.3.12 Subsistence Use Management ..............................................................................33
2.3.13 Public Access and Transportation Management ..................................................34
2.3.14 Recreation and Other Public Use .........................................................................38
2.3.15 Outreach ...............................................................................................................39
2.3.16 Recreation Facilities .............................................................................................39
2.3.17 Commercial-Use Management.............................................................................41
2.3.18 Environmental Contaminants Identification and Cleanup....................................44
2.3.19 Management of Areas with Special Designations................................................45
2.3.20 Refuge Administration .........................................................................................47
2.3.21 Management Categories .......................................................................................48
2.4 Implementation and Monitoring........................................................................................67
2.5 Step-Down Plans ...............................................................................................................67
2.5.1 Cultural Resource Guide ......................................................................................67
2.5.2 Environmental Education Plan.............................................................................67
2.5.3 Facilities Management Plan .................................................................................68
2.5.4 Fire Management Plan..........................................................................................68
2.5.5 Fisheries Management Plan..................................................................................69
2.5.6 Habitat Inventory Plan..........................................................................................69
2.5.7 Land-Protection Plan............................................................................................69
2.5.8 Public-Use Management Plan or Visitor Services Plan .......................................69
2.5.9 Safety Plan............................................................................................................69
2.5.10 Water Resources Plan...........................................................................................70
2.5.11 Wildlife Inventory Plan ........................................................................................70
2.5.12 Wilderness Stewardship Plan ...............................................................................70
2.6 Public Use Management Plan............................................................................................71
2.6.1 Wildlife.................................................................................................................71
2.6.2 Access...................................................................................................................72
2.6.3 Guided and Unguided Public Use ........................................................................73
2.6.4 Big-Game Guiding/Outfitting ..............................................................................74
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
2
2.6.5 Hunting.................................................................................................................74
2.6.6 Recreational Fishing and Guided Recreational Fishing .......................................75
2.6.7 Facility Development and Use .............................................................................75
2.6.8 Information and Education...................................................................................76
2.6.9 Commercial Services............................................................................................77
2.7 Partnership Opportunities..................................................................................................77
2.7.1 Desired Partnerships.............................................................................................78
2.7.2 Existing, past, and potential partnerships.............................................................78
2.8 Monitoring and Evaluation................................................................................................79
2.9 Plan Amendment and Revision .........................................................................................86
3. References 87
4. Appendix A: Special Values 89
4.1.1 Refuge Characteristics Valued by the Public .......................................................89
4.1.2 Becharof Refuge...................................................................................................89
4.1.3 Alaska Peninsula Refuge......................................................................................91
4.1.4 Alaska Maritime Refuge ......................................................................................93
5. Appendix B: Easements, Withdrawals, and Asserted Rights of Way 94
5.1 Easements reserved by the Service over private lands under Sec. 17(b) of ANCSA........94
5.1.1 Ugashik Unit ........................................................................................................94
5.1.2 Chignik Unit.........................................................................................................94
5.2 Asserted RS-2477 Rights-of-Way.....................................................................................95
6. Appendix C: Species Lists 97
7. Appendix D: Maps 117
Figure 1: Refuge Locations ..............................................................................................................5
Figure 2: Becharof National Wildlife Refuge .............................................................................119
Figure 3: Ugashik Unit, Alaska Peninsula National Wildlife Refuge .........................................121
Figure 4: Chignik Unit, Alaska Peninsula National Wildlife Refuge and
Seal Cape Unit, Alaska Maritime National Wildlife Refuge ........................................123
Figure 5: Yantarni Bay Moderate Management Area .................................................................125
Figure 6: Current Management Categories .................................................................................127
Figure 7: Generalized Land Status ..............................................................................................129
Figure 8: Native Corporation Lands............................................................................................131
Figure 9: ANCSA Section 17(b) Easements ...............................................................................133
Figure 10: Asserted RS-2477 Routes ..........................................................................................135
Table 1: Acreages..........................................................................................................................49
Table 2: Activities, Uses, and Facilities by Management Category...............................................54
Table 3: Inventory and Monitoring Projects Associated with the Management Direction ............80
Table 4: Monitoring Indicators for Public Use, Standards, and Possible Actions .........................81
Table 5: Mileage of proposed RS 2477 routes within the Refuges. ...............................................96
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
3
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
4
Acronyms
ADF&G Alaska Department of Fish & Game
ANCSA Alaska Native Claims Settlement Act
ANHA Alaska Natural History Association
ANILCA Alaska National Interest Lands Conservation Act
DLP defense of life or property
DNR Alaska Department of Natural Resources
EIS environmental impact statement
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
LPP land protection plan
MAPS Monitoring Avian Productivity and Survivorship
NEPA National Environmental Policy Act
ORV off-road vehicle
PUMP public-use management plan
RAWS Remote Area Weather Stations
RONS Refuge Operational Needs System
Service U.S. Fish & Wildlife Service
System National Wildlife Refuge System
USGS U.S. Geological Survey
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
5
1. Introduction
The Refuges comprise approximately 4.2 million acres on the Alaska
Peninsula (Figure 1). The northern boundary of the Becharof Refuge lies
approximately 10 miles south of King Salmon. The refuge extends south
past Becharof Lake, where it meets the northern boundary of the Ugashik
Unit of the Alaska Peninsula Refuge. The Alaska Peninsula Refuge
stretches for nearly 340 miles along the peninsula and is divided into four
management units. The Ugashik and Chignik units are separated by the
Aniakchak National Monument and Preserve. The Seal Cape area is part
of the Alaska Maritime Refuge. The most southern portions of the
Alaska Peninsula National Wildlife Refuge—the Pavlof and North Creek
units—are managed by the Izembek National Wildlife Refuge; and they
are not covered by this plan.
Figure 1: Refuge Locations
This Comprehensive Conservation Plan contains management direction
from the 2005 “Revised Comprehensive Conservation Plan and
Environmental Impact Statement: Alaska Peninsula and Becharof
National Wildlife Refuges”. It replaces the previous management
direction for these refuges which was described in the Comprehensive
Conservation Plans adopted in 1985 for the Becharof Refuge (USFWS
1985) and in 1987 for the Alaska Peninsula Refuge (USFWS 1987). This
plan also replaces the 1994 Public Use Management Plan for the
Refuges.
The “Revised Comprehensive Conservation Plan and Environmental
Impact Statement: Alaska Peninsula and Becharof National Wildlife
Refuges” (October 2005) contains background information and the full
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
6
National Environmental Policy Act (NEPA) analysis which was
conducted during its development.
1.1 Refuge Establishment
In 1978, President Jimmy Carter established the 1,157,000-acre Becharof
National Wildlife Monument with Presidential Proclamation 4613. The
monument was established to protect the area, notably the unique brown
bear denning islands in the Island Arm of Becharof Lake. (Figure 2:
Becharof National Wildlife Refuge
In 1980, Section 302 of ANILCA established the Alaska Peninsula
National Wildlife Refuge and changed the Becharof National Wildlife
Monument into a national wildlife refuge. Section 303(1) of ANILCA
created the Alaska Maritime National Wildlife Refuge by redesignating
11 pre-existing refuges as units of the new refuge and adding other
public lands on island, islets, rocks, reefs, spires, and designated capes
and headlands in the coastal areas and adjacent seas of Alaska.
In 1983, the Service decided to manage the Ugashik and Chignik units
(figures 3 pg 125 and 4 pg 127) of the Alaska Peninsula Refuge, the
9,900-acre Seal Cape area of the Alaska Maritime Refuge, and the
Becharof Refuge as a “complex” because they shared resources and
resource issues. Distance and weather create barriers to managing the
Pavlof and North Creek units of the Alaska Peninsula Refuge from the
King Salmon office; so management of these units was shifted to the
Izembek Refuge headquartered in Cold Bay.
1.2 Refuge Purposes
The primary purposes of the Alaska Peninsula and Becharof Refuges are
described in Section 302(1)B) and Section 302(2)(B) of ANILCA.
Purposes for the Alaska Maritime National Wildlife Refuge are
described in Section 303(1)(B).
These purposes include the following (unless otherwise noted, the
purposes apply to all units of the Refuges):
• [Alaska Maritime] to conserve fish and wildlife
populations and habitats in their natural diversity,
including marine mammals, marine birds, and other
migratory birds, the marine resources upon which they
rely, bears, caribou, and other mammals
• [Alaska Peninsula] to conserve fish and wildlife
populations and habitats in their natural diversity,
including brown bears, the Alaska Peninsula caribou
herd, moose, sea otters and other marine mammals,
shorebirds and other migratory birds, raptors including
bald eagles and peregrine falcons, and salmonids and
other fish
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
7
• [Becharof] to conserve fish and wildlife populations and
habitats in their natural diversity, including brown bears,
salmon, migratory birds, the Alaska Peninsula caribou
herd, and marine mammals and birds
• to fulfill the international treaty obligations of the United
States with respect to fish and wildlife and their habitats
• to provide, in a manner consistent with the purposes set
forth in preceding paragraphs, the opportunity for
continued subsistence uses by local residents
• [Alaska Maritime] to provide, in a manner consistent with
preceding paragraphs, a program of national and
international scientific research on marine resources
• to ensure to the maximum extent practicable and in a
manner consistent with the purposes set forth in
preceding text, water quality and necessary water quantity
within the refuge
• [Becharof Wilderness Area] to secure an enduring
resource of wilderness, to protect and preserve the
wilderness character of areas within the National
Wilderness Resource Preservation System, and to
administer this wilderness for the use and enjoyment of
the American people in a way that will leave it
unimpaired for future use and enjoyment as wilderness.
2. Refuge Management
Goals and objectives focus management of the Refuges. These, when
combined with refuge management direction, provide management
direction for the Refuges. The primary sources of this management
direction are the various laws governing the National Wildlife Refuge
System and the regulations, policies, and other guidance—both national
and regional—developed to implement these laws.
2.1 Vision Statement
The Alaska Peninsula and Becharof Refuges will remain as they are
today with healthy, natural populations of fish and wildlife living in
primarily unaltered habitats. The Refuges will continue to provide local
residents opportunities for subsistence use. The Refuges will be open to
all people to engage in a variety of wildlife-dependent activities and to
enjoy the spectacular setting and resources. Refuge management and
outreach will be a model of effective collaboration among diverse public
interests and public and private landowners and managers.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
8
2.2 Refuge Goals and
Objectives
The refuge vision statement and purposes provide the framework for
developing goals and objectives for managing the Refuges.
The objectives listed beneath each goal are often applicable to more than
one goal. In order to avoid unnecessary duplication, we have listed each
objective only once, under the goal that represents the clearest
connection. The ordering of the objectives is not intended to imply
prioritization; in fact, the many objectives listed beneath Goal 2 have
been clustered into rough categories of wildlife, habitat, and fish.
Following each objective, we list those other goals the objectives are also
designed to address.
Many of the objectives that are important for managing subsistence
activities and public use of the Refuges require monitoring or improving
our knowledge of the natural resources linked to the subsistence or
public-use activities. For this reason, most of the objectives for
subsistence or public use are listed beneath Goal 1 or Goal 2, the two of
which are focused on improving our knowledge of the Refuges’
biological resources and on conserving habitat for those resources.
Goal 1: Ensure quantity and optimal quality of naturally functioning
habitats available on the Refuges for fish and wildlife
populations in perpetuity, especially for salmonids, migratory
birds, the Northern Alaska Peninsula caribou herd, moose, and
brown bear
The Refuge vision statement and purposes emphasize conserving
populations and habitats in their natural diversity. Although fish and
wildlife populations may fluctuate for a variety of reasons, if the habitats
on which they depend are functioning naturally and available in their
natural abundance and diversity, the opportunity exists for populations to
thrive. As with many of the other refuges in Alaska, the size, remoteness,
weather, and complexity of the Alaska Peninsula and Becharof Refuges
make it challenging to collect data on species and habitats. Fulfilling this
goal requires information about fish, wildlife, and plant populations and
their relationship to the habitat. Almost all of the objectives stated under
Goal 2 and Goal 4 are objectives that would also provide necessary
information for achieving Goal 1.
1. Delineate marbled godwit nesting habitat and range in the
Ugashik and Cinder drainages and vicinity by 2008 (also
Goal 2).
2. Cooperate with the State of Alaska in developing an interagency
study of traditional subsistence access prior to the Alaska
National Interest Lands Conservation Act (ANILCA) and
develop and implement methodology to formally monitor
existing off-road vehicle impacts on refuge lands by 2010.
Monitoring off-road impacts would be conducted to document
damage to vegetative cover and soils in areas of significant use,
including Big Creek, King Salmon River (near Egegik),
Becharof Lake outlet, Yantarni Bay airstrip, and Port Heiden
(also Goals 2, 3, and 7).
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
9
3. Monitor development of inholdings and uses of adjacent parcels
to identify activities that could adversely affect refuge users and
resources. Work with Service’s Regional Office realty specialists
to identify opportunities to acquire lands or interests in lands
from willing sellers to further the goals of the refuge and the
mission of the National Wildlife Refuge System. Additional
assistance may be provided by working with other federal
agencies, the state, Native corporations, and nongovernmental
organizations.
Goal 2: Improve knowledge of fish and wildlife populations and their
habitats in order to conserve species in their natural diversity,
especially those that are identified in the refuge purposes, that
have restricted populations, or that have been identified as
species or populations of ecological interest
The Refuges’ objectives for wildlife under Goal 2 are directed toward
monitoring a diverse group of species, including moose, caribou, wolves,
bears, waterfowl, bald eagles, seabirds, shorebirds, and songbirds. This
monitoring will provide valuable information for the ongoing
management of wildlife populations on the Refuges as well as for
responding to catastrophic events. These inventory and monitoring
objectives will be incorporated in the wildlife inventory plan and may be
revised when the Refuges staff completes a formal review of the
biological program. Successful completion of many objectives will
require close cooperation or consultation with the Alaska Department of
Fish & Game (ADF&G), other agencies, the academic community,
residents with local knowledge, and/or others.
4. Complete the Refuges’ wildlife inventory plan—which includes
goals and objectives, priorities, and methods for wildlife
monitoring and inventory—by October 2007 (also Goal 1).
5. Estimate moose density in the Refuges and vicinity, using
professionally accepted methods, by 2008 (also Goals 1 and 3).
6. Contribute to international efforts to establish trends in migratory
bird populations by inventorying and monitoring landbird
populations (as scheduled in the wildlife inventory plan) for
measures of abundance, reproduction, and habitat using methods
such as Monitoring Avian Productivity and Survivorship
(MAPS) program, point counts, Christmas bird counts, and fall
migration monitoring (also Goal 1).
7. Evaluate the Mother Goose Lake MAPS sites, in coordination
with Boreal Partners in Flight and the Institute for Bird
Populations, to determine if MAPS monitoring should be
continued periodically, reinitiated in the future, or initiated at a
new location. Implement schedule as recommended (also Goal
1).
8. Cooperate with other land managers to inventory and monitor
shorebirds in the Bristol Bay lowlands.
9. Cooperate with other land managers to monitor population trends
of productivity of swans in the Bristol Bay lowlands.
10. Continue monitoring (as scheduled in the wildlife inventory
plan) waterfowl staging in upper Bristol Bay drainages during
spring to document the range and annual variation of species
composition, abundance, and phenology (timing) for use as a
baseline for long-term impacts from local development and for
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
10
the transition into spring waterfowl hunting (also Goal 3).
11. Conduct year-round monitoring of waterfowl harvested by local
villagers (also Goal 3).
12. Continue cooperation with ADF&G on inventory, monitoring,
and research studies to maximize information available for the
management of species such as moose, caribou, brown bear, and
others (also Goals 1 and 3).
13. In cooperation with ADF&G, by 2010, develop methodology
and begin gathering information on trapping effort, harvest, and
areas within the Refuges (also Goals 3 and 6).
14. Survey caribou (as scheduled in the wildlife inventory plan) in
Pacific drainages of the Chignik Unit to determine post-calving
count and calf composition (also Goal 3).
15. Monitor Pacific coast murre colonies of Becharof Refuge for
peak colony count and productivity in three of every 10 years in
order to document recovery from the Exxon Valdez oil spill (also
Goal 1).
16. Monitor bald eagle populations and productivity along the
Pacific coast of the Refuges every five years and initiate
inventory of eagles in Bristol Bay drainages and of other raptors
throughout the Refuges by 2008.
17. Develop methodology and monitor wolf numbers and predation
on caribou and moose in the Refuges and vicinity by 2008 (also
Goal 3).
18. Monitor seabird colony numbers along the Pacific coast of the
Refuges, in cooperation with the Alaska Maritime Refuge, every
10 years (also Goal 1).
19. Continue inventory and monitoring of rodent and insectivore
distributions and trends on the Refuges.
Knowledge of wildlife habitat characteristics such as distribution,
quality, function, and availability is an important first step in
understanding changes in wildlife populations. The following objectives
were established to develop the necessary information and tools for a
basic understanding of wildlife habitat on the Refuges.
20. Complete development, by 2008, of a refuge-based geographic
information system (GIS); hardware, software, and data layers)
that provides managers and biologists with a basic capability for
mapping available data (also Goal 1).
21. Assist the Service’s Alaska regional botanist in completing the
vegetation community classification for the Refuges (also Goal
1).
22. Determine range condition for the Northern Alaska Peninsula
caribou herd by 2010 (also Goal 1).
23. Complete a habitat inventory plan that includes goals, objectives,
priorities, and methods for habitat inventory and monitoring by
December 2007 (also Goal 1).
24. Develop a map of major vegetation types and mosaics—
incorporating soils, surficial geology, and water—for the
Refuges and vicinity by 2010 (also Goal 1)
25. Develop habitat models and maps for caribou and moose on the
Refuges and vicinity by 2012 (also Goal 1).
26. Develop habitat models and maps for additional species
(following the completion of habitat maps for caribou and
moose) using priorities established in the wildlife and habitat
inventory plans at a rate of one habitat map per year (also Goals
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
11
1 and 3).
27. Complete reconnaissance of invasive plant and animal species
near communities, ports, and other access points by 2010 (also
Goal 1).
28. Determine, by 2006, whether caribou summering in Pacific
drainages of the Ugashik Unit constitute a distinct subpopulation
of the Northern Alaska Peninsula caribou herd (also Goals 1 and
3).
29. In cooperation with ADF&G and the National Park Service,
conduct wildlife inventories, monitoring, and research on
species—including caribou, moose, and brown bear—to increase
information available for management (also Goal 3).
30. Continue working cooperatively with partners to complete
ongoing studies and projects and initiate other high-priority
projects identified during the Becharof Ecosystem Partnership
Workshop (March 1997). Some of the highest-priority projects
concern learning more about the population dynamics of the
Northern Alaska Peninsula caribou herd; expanding resident and
anadromous fisheries baseline data; completing vegetative cover
and habitat mapping; monitoring water quality; and quantifying
public uses (also Goals 1, 3, 6, and 7).
31. Work with partners to contribute to understanding of climatic
changes and their effects on refuge resources.
32. Continue to operate Remote Area Weather Stations (RAWS) at
Mother Goose Lake and Yantarni for collection of weather
information.
The following objectives are designed to increase understanding of, and
the ability to manage, important fish populations on the Refuges. The
objectives address species and drainages that are important not only for
subsistence, commercial, and recreation uses, but also for their
contribution to the ecological integrity of the Refuges.
33. Evaluate Arctic grayling, lake trout, and Dolly Varden
population structure and abundance in the Ugashik and Egegik
drainages by 2006.
34. Evaluate coho salmon population structure and abundance in the
Pacific coast and Bering Sea drainages by 2010 (also Goal 3).
35. Evaluate Chinook salmon population structure and abundance in
the Bering Sea drainages by 2010 (also Goal 3).
36. Reevaluate rainbow trout population structure and abundance in
the King Salmon River by 2008 (also Goal 3).
37. Conduct creel surveys of the winter fishery in the lower King
Salmon River, Egegik drainage, by 2015 (also Goal 3).
38. Conduct creel surveys of the summer open-water fishery at the
Ugashik Lakes by 2006 (also Goals 6 and 7).
39. Continue implementation of the Fisheries Management Plan of
1994 and update the plan by 2008 (also Goals 1 and 3).
Goal 3: Provide opportunities for local residents to continue their
subsistence use of the Refuges, consistent with the subsistence
priority and other refuge purposes
The opportunity for continued subsistence use by local residents is one of
the purposes for which the Refuges were established by ANILCA.
Objectives for this goal are directed at working with local residents and
others to understand subsistence uses and potential conflicts and to
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
12
monitor subsistence resources for better management. Most of the
objectives related to subsistence resources are listed under Goal 2.
40. Continue the Refuge Information Technician program to
enhance information exchange with local communities on
subsistence issues (also Goal 8).
41. Continue monitoring hunter activity in areas of potential conflict
between local and outside hunters and investigate allegations of
interference (also Goal 7).
42. Continue to participate in the fish and game regulation process
through local fish and game advisory committees, the Alaska
Boards of Fisheries and Game, the Subsistence Regional
Advisory Council, the Alaska Migratory Bird Co-management
Council, and the Federal Subsistence Board to facilitate
information exchange and rule-making (also Goal 6).
43. Cooperate with the Federal Subsistence Board in making
customary and traditional use determinations for refuge-area
communities, including for finfish and beaver.
44. Expand law-enforcement activities to increase education and
outreach, field patrols, and investigation of cases associated with
the implementation of spring waterfowl hunting regulations (also
Goal 8).
Goal 4: Improve baseline understanding of water resources on the
Refuges to acquire and maintain the water quality and quantity
necessary to conserve fish and wildlife populations and habitats
in their natural diversity.
Objectives for water quality and quantity are directed at supporting Goals
1 and 4 and completing baseline studies and acquiring the necessary
rights to protect water quality and quantity, as directed by the purposes
of the Refuges, as established in ANILCA.
45. Complete or update an inventory and assessment of refuge water
resources—including quantity, quality, use, and protection
status—by 2008. (also Goal 1).
46. Based on the inventory and assessment (objective 45), complete,
by 2010, a study plan to investigate the water resources of the
Refuges to maintain the quality and quantity to protect the fish,
wildlife, and habitats of the refuges in their natural diversity.
47. Analyze and determine water-rights needs on the Egegik
drainage by 2007 and formally apply for them by 2009 (also
Goal 1).
48. Complete water resource investigations and acquire water rights
for waters identified in the water resource investigation plan
(also Goal 1).
49. Continue limnological studies of Becharof and Ugashik lakes in
cooperation with King Salmon Fisheries Research Office (also
Goal 1).
50. Complete baseline water-quality studies of Refuges lakes and
streams following the schedule identified in the water resources
investigation plan (also Goal 1).
Goal 5: Preserve and enhance, in perpetuity, wilderness values of
designated Wilderness, consistent with the establishing purposes
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
13
Objectives directed at the Becharof Wilderness Area are designed to
manage and understand the wilderness values.
51. Distribute information about Leave-No-Trace principles
whenever information is requested about the Becharof
Wilderness Area, and work with commercial guides to apply
these principles when operating within designated Wilderness.
52. By applying the Leave-No-Trace principles, manage recreation
settings within designated Wilderness to provide opportunities
for solitude, self-reliance, and other characteristics that depend
on a wilderness environment while not impairing other uses and
values associated with wilderness.
53. Promote consistency, through interagency coordination, in
wilderness management of the Becharof Wilderness and the
adjacent designated Wilderness of Katmai National Park and
Preserve.
54. Ensure appropriate uses (including administrative uses) of the
Becharof Wilderness on an ongoing basis by expanding law
enforcement within designated Wilderness and conducting the
minimum-requirement analysis to all management activities.
55. Prepare a wilderness stewardship step-down plan within one year
of release of national wilderness guidelines.
Goal 6: Provide opportunities for quality1 wildlife-dependent
recreation, emphasizing short-term, low-density uses that
require minimal facility development or habitat alteration
The National Wildlife Refuge System Administration Act of 1966, as
amended by the National Wildlife Refuge System Improvement Act,
states that compatible wildlife-dependent recreation is a legitimate and
appropriate general public use of the System and directs the Service to
facilitate hunting, fishing, wildlife viewing and photography, and
environmental education and interpretation on refuges, subject to
restrictions or regulations as needed. Objectives that are designed to
address the resources necessary to support wildlife-dependent recreation
are listed under Goal 2. Other objectives that help to provide high-quality
experiences are described along with Goals 7 and 8. General
management direction of public use on the Refuges, including
commercial uses, is described in Section 4.
56. By continuing to implement and strengthen the Refuges special-use
permit program—including improvement of permittee
recording requirements—and increasing enforcement of and
compliance with permit stipulations through increased field
inspections, provide commercial visitor service opportunities for
the public who would not or could not experience a safe, quality
visit to the Refuges on their own (also Goal 8).
1 Quality is defined as the degree to which recreation opportunities and related experiences meet the objectives for
which they are planned and managed. For further definition of “quality” in relation to recreation, see the glossary in
the Revised Comprehensive Conservation Plan and Environmental Impact Statement (October 2005).
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
14
Goal 7: Provide opportunities for subsistence, recreational, and
commercial users to enjoy and benefit from compatible activities
on the Refuges in ways that minimize conflicts among user
groups
Section 804 of ANILCA states that subsistence will be the priority
consumptive use of public lands in Alaska, consistent with the purposes
for each unit. Fish and Wildlife Service policy describes quality
recreation opportunities, in part, as creating minimal conflict with other
wildlife-dependent recreation uses or refuge operations. The Refuges
need to be aware of and address conflicts among refuge users. Many of
the objectives in Goal 2 that consider harvest levels or monitor
populations of fish and wildlife also provide important information for
accomplishing this goal.
57. Expand the public-use monitoring program for all users of the
Refuges. A special emphasis will be placed on annually
monitoring all commercial-use activities and on establishing
and/or expanding public-use monitoring camps on a scheduled
basis at locations where potential exists for user conflicts,
impacts, or declines in quality. A full-time, permanent pilot–
resource manager position with collateral law enforcement
duties, along with one or more seasonal positions, would be
required to implement this objective (also Goals 6 and 8).
58. Field-check and update database of Alaska Native Claims
Settlement Act (ANCSA) 17(b) easements, develop GIS maps of
easements, establish signs onsite, and publish easement
information as appropriate in coordination with realty specialists
and local Native corporations (also Goal 6).
59. Expand profile of refuge law-enforcement activities. Law
enforcement activities concerning protection of fish and wildlife
resources will shift from patrols being conducted seasonally by
collateral-duty refuge officers (typically incidental to other
missions) to dedicated law-enforcement patrols being conducted
year-round by a full-time refuge law-enforcement officer (also
Goals 3 and 6).
Goal 8: Conduct interpretive and environmental education programs
that increase understanding and support for the System;
development of a sense of stewardship for wildlife, cultural
resources, and the environment; and enhanced visitor
experiences
60. Use the Refuge Information Technician program to conduct
educational programs for local rural residents on resource
conservation and protection, subsistence harvest developments,
and recreational harvest management. Conduct at least one
program per year in each of the 13 communities associated with
the Refuges (also Goal 3).
61. Interpret Refuges resources and programs, provide educational
material, and increase the quality of recreation experiences by
fully implementing the interagency cooperative agreement to
operate the King Salmon Visitor Center (KSVC), including
maintaining responsibility for personnel and developing,
upgrading, and maintaining permanent exhibits annually (also
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
15
Goal 6).
62. Increase local children’s awareness of the Refuges, wildlife, and
conservation by utilizing the Refuge Information Technician
program to visit, at least once a semester during the school year,
the 10 village schools in the Bristol Bay and Lake and the
Peninsula boroughs that are within or near the Refuges’
boundaries; provide the other seven schools in the Lake and
Peninsula Borough with educational materials and programs at
least three times a year (during National Wildlife Refuge Week
and for the Goose Calendar contest). Continue to develop
programs for National Fishing Week celebration, International
Migratory Bird Day, and other special events.
63. Conduct the cooperatively sponsored Spirit of Becharof Lake
Ecosystem Science Camp for 10–15 refuge-area high school
students annually, with assistance from Refuge Information
Technician program personnel.
64. Inform people about natural, cultural, and recreational resources
and opportunities on the Refuges and their responsible use by
developing and publishing at least one new or revised refuge-specific
brochure annually and by maintaining a refuge Web site
within one year of Plan approval (also Goals 6 and 7).
Goal 9: Conserve the special geological and cultural values of the
Refuges
65. Conduct a paleontological inventory with emphasis on Jurassic
sediments within Becharof Lake drainage, Ugashik Lakes
drainage, and Black Lake drainage by 2010.
66. Continue cultural resources management in partnership with
Native corporations, universities, museums, and others in
accordance with the Cultural Resource Guide.
67. Continue to work with the Alaska Volcano Observatory to
further our knowledge of the volcanic resources of the Refuges.
68. Administer and protect cultural resources so that the sites,
buildings, structures, and objects of aesthetic and cultural value
are preserved and maintained for scientific study and/or public
appreciation (also Goal 8).
Goal 10:Provide and maintain the facilities and equipment necessary to
ensure a safe and secure environment for the visiting public and
Service personnel
Objectives for facilities management are directed at providing necessary
buildings and other structures for administration of the Refuges in a safe
manner.
69. Continue implementation of the administrative facility plan.
70. Continue an aggressive safety program.
71. Meet legal requirements for the administrative facilities of the
Refuges (e.g., hazardous materials handling).
72. Establish a subheadquarters for the Chignik Unit by 2020.
73. Construct an administrative facility at the Yantarni Bay airstrip.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
16
2.3 Management Policies
and Guidelines
Some activities discussed here are not currently being conducted on the
Refuges. For example, the discussion on threatened and endangered
species would apply only if and when a listed species is known or
thought to occur in the Refuges.
Although five management categories, ranging from Intensive
Management to designated Wilderness, are used to describe management
levels on National Wildlife Refuges in Alaska, only three management
categories; Moderate Management, Minimal Management, and
Wilderness are used to describe management levels on the Alaska
Peninsula and Becharof Refuges. A management category is used to
define the level of human activity appropriate to a specific area on a
refuge. It is a set of refuge management directions applied to an area, in
light of its resources and existing and potential uses, to facilitate
management and the accomplishment of refuge purposes and goals. The
Service could, in the future, designate refuge lands as Intensive
Management through a plan amendment or revision. The Wilderness and
Wild (and Scenic) River management categories are reserved for
congressionally designated lands. The management activities table
(Table 2) shows management activities for the three categories on these
refuges.
Not all of the practices described in the following sections will apply to
these refuges. See Table 2 for clarification; those activities that have gray
backgrounds are not anticipated to apply to these refuges during the life
of this Plan. Text pertaining to those activities is included for reference.
2.3.1 General
Management of the Refuges is governed by federal laws such as the
National Wildlife Refuge System Administration Act of 1966 (Refuge
Administration Act; 16 U.S.C. 668dd), as amended by the National
Wildlife Refuge System Improvement Act of 1997 (Refuge Improvement
Act; P.L. 105-57), and ANILCA; by regulations implementing these
laws; by treaties; by Service policy; and by principles of sound resource
management—which establish standards for resource management or
limit the range of potential activities that may be allowed on the Refuges.
ANILCA authorizes traditional activities such as subsistence, the
exercise of valid commercial fishing rights, hunting, fishing, and
trapping in accordance with state and federal laws. Under Service
regulations implementing this direction, all refuge lands in Alaska are
open to public recreation activities “as long as such activities are
conducted in a manner compatible with the purposes for which the
refuge was established. Such recreation activities include sightseeing,
nature observations and photography, sport hunting, sport fishing,
boating, camping, hiking, picnicking and other related activities” (50
CFR 36.31[a]). The Refuge Administration Act, as amended by the
National Wildlife Refuge System Improvement Act of 1997, defines
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
17
“wildlife-dependent recreation” and “wildlife-dependent recreational
use” as “hunting, fishing, wildlife observation and photography, or
environmental education and interpretation” (16 U.S.C. § 668ee[2]).
These uses are encouraged and will receive emphasis in management of
the public’s use of the Refuges.
2.3.2 Management Emergencies
It may be necessary, when emergencies occur on the refuge, to deviate
from policies and guidelines discussed herein. Activities not allowed on
the Refuges or under a specific management category, (as shown in
Table 2), may occur during or as a result of emergencies. For example, if
naturally occurring or human-caused actions (e.g., landslides, floods,
fires, droughts) adversely affect refuge resources, it may be necessary to
undertake rehabilitation, restoration, habitat improvement, water
management, fisheries enhancement, or other actions that would not
otherwise be allowed to the same extent on the refuge. Threats to human
health and safety may also result during emergencies. In emergencies,
the refuge manager is authorized to take prudent and reasonable actions
to protect human life and to address immediate health, safety, or critical
resource-protection needs.
2.3.3 Land Exchanges and Acquisitions
Under Section 1302 of ANILCA, and subject to certain restrictions, the
Service may acquire by purchase, donation, or exchange any lands within
the boundaries of Alaska refuges. Proposed land exchanges or
acquisitions must benefit fish and wildlife resources, satisfy other
purposes for which the refuge was established, or be necessary to satisfy
other national interests. The Service can also purchase conservation
easements or enter into cooperative management agreements to meet
these objectives.
2.3.4 Land Protection Planning
Department of the Interior and Service policies require development of a
step-down plan, a land protection plan, addressing priorities for habitat
conservation within refuge boundaries. Land protection plans inform
private landowners what land within refuge boundaries the Service
would like to see conserved for fish and wildlife habitat. The plans do the
following:
Identify the private lands within the refuge boundary that the
Service believes should be conserved
Display the relative protection priority for each parcel
Discuss alternative means of land and resource conservation
Analyze the impacts, on local residents, of acquisition
In Alaska, the Service only acquires land from willing landowners. It is
Service policy to acquire land only when other methods of achieving
goals are not appropriate, available, or effective. Sometimes resource
conservation goals can be met through cooperative management
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
18
agreements with landowners or by similar means. The Refuges would
work with all landowners to ensure that overall fish and wildlife and
habitat values within the refuge are conserved.
A pre-acquisition environmental site assessment is required for all real
property proposed for acquisition by the Service or for public domain
lands returning to Service jurisdiction (USFWS, Part 341 FW 3).
The land protection plan for the Refuges was completed in 2002.
See also section 2.4 for discussion of stepdown plans.
2.3.5 Compatibility Determinations
The Refuge Administration Act states that “the Secretary is authorized,
under such regulations as he [or she] may prescribe, to . . . permit the use
of any area within the System for any purpose, including but not limited
to hunting, fishing, public recreation and accommodations, and access
whenever he [or she] determines that such uses are compatible . . . .”
A compatible use is a proposed or existing wildlife-dependent recreation
use or any other use of a national wildlife refuge that, based on sound
professional judgment, will not materially interfere with nor detract from
the fulfillment of the National Wildlife Refuge System mission or the
purposes for which the refuge was established. Economic uses must
contribute to achieving refuge purposes and the System mission.
Compatibility determinations are not required for refuge management
activities, except economic activities.
If a use is found to be incompatible, the refuge would follow normal
administrative procedures for stopping the action. If the use in question is
a new use requiring a special use permit, the refuge manager would not
issue a permit. If the use is an existing use already under permit, the
refuge manager will work with the permittee to modify the use to make it
compatible or would terminate the permit.
Ending incompatible uses that do not require special use permits or other
formal authorizations, or that cannot be addressed by other federal or
state agencies, would require that the refuge go through the normal rule-making
process. This would include publishing in the Federal Register
the proposed regulations and providing opportunity for public comment.
Compatibility determinations for uses on these Refuges are found in
Appendix H of the Revised Comprehensive Conservation Plan and
Environmental Impact Statement.
Compatibility determinations for existing hunting, fishing, wildlife
observation and photography, and environmental education and
interpretation must be re-evaluated with the preparation or revision of a
Comprehensive Conservation Plan or at least every 15 years, whichever
is earlier. Compatibility determinations for all other uses must be re-evaluated
every 10 years or earlier if conditions change or significant
new information relative to the use and its effects becomes available.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
19
Additional details on applying compatibility standards and completing
compatibility determinations are found in the compatibility regulations at
50 CFR Parts 25, 26, and 29 and Part 603 FW 2 of the Service Manual
(USFWS).
2.3.6 Mitigation
In the interest of serving the public, it is the policy of the Service,
throughout the nation, to seek to prevent, reduce, or compensate for
losses of fish, wildlife, and their habitats, and uses thereof, from land and
water development. To that end, the Service developed a “Mitigation
Policy” in 1981 that includes measures ranging from avoiding an activity
that results in loss of such resources to seeking compensation by
replacement of or substitution for resource loss.
The Service will promulgate regulations, develop stipulations, and issue
permits to reduce or eliminate potential adverse impacts resulting from
compatible activities that may be authorized under this plan. These
regulations, stipulations, and permits would mitigate impacts in a variety
of means, as stipulated in the Mitigation Policy guidelines (USFWS, Part
501 FW 2.1). The means, in order of application, are as follows:
Avoiding the impact altogether by not taking a certain action or
parts of an action
Minimizing impacts by limiting the degree or magnitude of the
action and its implementation
Rectifying the impact by repairing, rehabilitating, or restoring
the affected environment
Reducing or eliminating the impact over time by preservation
and maintenance operations during the life of the action
Compensating for the impact by replacing or providing substitute
resources or environments
When determining the compatibility of activities or uses, consideration
should be given to ways which the projects/activities/uses could be
designed to avoid adverse impacts. The Service generally would not
allow compensatory mitigation on System lands, and only in limited and
exceptional circumstances could compensatory mitigation be used to find
an activity compatible. (Service Manual, Part 501 FW 2 and 603 FW 2).
Mitigation may consist of standard stipulations such as those attached to
right-of-way permits; special stipulations that may be attached to leases
or permits on a site-specific basis; and site-specific, project-specific
mitigation identified through detailed step-down management plans or
the environmental assessment process. In all instances, mitigation must
support the mission of the National Wildlife Refuge System and must be
compatible with the purposes of the refuge. The degree, type, and extent
of mitigation undertaken would depend on the site-specific conditions
present and the management goals and objectives of the action being
implemented.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
20
2.3.7 Coastal Zone Consistency
Although federal lands, including lands in the National Wildlife Refuge
System, are excluded from the coastal zone (16 U.S.C., Section 1453[1]),
the Coastal Zone Management Act of 1972, as amended (PL 92-583),
directs federal agencies conducting activities within the coastal zone or
that may affect any land or water use or natural resources of the coastal
zone to conduct these activities in a manner that is consistent “to the
maximum extent practicable” 2 with approved state management
programs.
The Alaska Coastal Zone Management Act of 1977, as amended, and the
subsequent Alaska Coastal Management Program, as amended, and Final
Environmental Impact Statement (1979) establish policy guidance and
standards for the review of projects within or potentially affecting
Alaska’s coastal zone. In addition, specific policies have been developed
for activities and uses of coastal lands and water resources within
regional coastal resource districts. Most incorporated cities,
municipalities, and boroughs as well as unincorporated areas (coastal
resource service areas) within the coastal zone now have state-approved
coastal management programs.
Although state and coastal district program policies are to guide
consistency determinations, more restrictive federal agency standards
may be applied. Federal regulations state that “(w)hen Federal agency
standards are more restrictive than standards or requirements contained
in the State’s management program, the Federal agency may continue to
apply its stricter standards . . .” (15 CFR, Section 930.39[d]).
Certain federal actions may require a Federal Coastal Consistency
Determination. The Refuges will contact the Department of Natural
Resources’ Alaska Coastal Management Program with the Service’s
determination of consistency before beginning a project that may affect
the coastal zone.
Section 7-1 of the Revised Comprehensive Conservation Plan and
Environmental Impact Statement contains a consistency determination
covering management of the Refuges.
2.3.8 Cooperation and Coordination with Others
2.3.8.1 Federal, State and Local Governments
The Refuges will continue to work closely with those federal, state,
Native and local governments and agencies whose programs affect, or
are affected by, the Refuges. State, local, and Native government inputs
will be sought during development of regulatory policies addressing
management of the Refuge System (Executive Order 13083—
Federalism). When possible, the Service will participate in interagency
activities (such as joint fish and wildlife surveys and co-funded
2 “To the maximum extent practicable” means, “to the fullest degree permitted by existing law (15 CFR, Section
930.32).”
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
21
research), cooperative agreements, sharing data, and sharing equipment
and/or aircraft costs to meet mutual management goals and objectives.
When the Refuges are aware of issues involving management
jurisdiction or authority over submerged lands or other areas, they will,
under appropriate situations, coordinate with the State of Alaska.
Coordination may involve formal and informal management agreements
between the Service and the state, but the assertion of management
authority will not be contingent on completing any agreements or any
other action not required by federal law. Questions regarding the
ownership of specific submerged lands may be addressed to the Refuges
headquarters.
The Refuges and the State of Alaska will cooperatively manage the fish
and wildlife resources of the Refuges. The Master Memorandum of
Understanding between the Service and the Alaska Department of Fish &
Game (dated March 13, 1982) defines the cooperative management roles
of each agency (Appendix B of the Revised Comprehensive
Conservation Plan and Environmental Impact Statement). In this
agreement, the Alaska Department of Fish and Game agreed to
“recognize the Service as the agency with the responsibility to manage
migratory birds, endangered species, and other species mandated by
Federal law, and on Service lands in Alaska to conserve fish and wildlife
and their habitats and regulate human use.” Correspondingly, the Service
agreed to “recognize the right of the Alaska Department of Fish and
Game as the agency with the primary responsibility to manage fish and
resident wildlife within the State of Alaska.” Further discussion of
intergovernmental cooperation regarding the preservation, use, and
management of fish and wildlife resources is found in Title 43 CFR, Part
24 (Department of the Interior Fish & Wildlife Policy: State and Federal
Relationships).
We do not require compatibility determinations for state wildlife
management activities on a national wildlife refuge pursuant to a
cooperative agreement between the state and the Fish & Wildlife Service
where the refuge manager has made a written determination that such
activities support fulfilling the refuge purposes or the System mission.
When the activity proposed by the state is not part of a cooperative
agreement or it is not acting as the Service’s agent, a special use permit
may be required, and a compatibility determination will need to be
completed before the activity may be allowed. Separate compatibility
determinations addressing specific proposals will be required for state
management activities that propose predator management, fish and
wildlife control (with the exception of emergency removal of individual
rogue animals), reintroduction of species, nonnative species
management, pest management, disease prevention and control, fishery
restoration, fishery enhancement, native fish introductions, nonnative
species introductions, construction of facilities, helicopter access, or any
other unpermitted activity that could alter refuge ecosystems.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
22
2.3.8.2 Tribes and Native American
Organizations
The Service’s Native American Policy (USFWS 1994b) identifies
general principles that guide the Service’s government-to-government
relationships with tribal governments in the conservation of fish and
wildlife resources. Additional guidance has been provided by Executive
Order 13084, “Consultation and Coordination with Indian Tribal
Governments,” issued May 14, 1998, and the Department of the Interior–
Alaska Policy on Government-to-Government Relations with Alaska
Native Tribes issued January 18, 2001 (USDI 2001). The Refuges will
maintain government-to-government relationships with tribal
governments. The Refuges will also work directly with regional and
village corporations and respect Native American cultural values when
planning and implementing programs on the refuges.
2.3.8.3 Owners of Refuge Inholdings and
Adjacent Lands
The Refuges will work cooperatively with inholders and adjacent
landowners, providing information on refuge management activities and
policies. The Refuges will consult periodically with them regarding
topics of mutual interest; will respond promptly to concerns over refuge
programs; and will participate in cooperative projects (e.g., water-quality
monitoring and fish and wildlife management).
2.3.8.4 Service Jurisdiction Over Waters
Within the Refuges
Where the United States holds title to submerged lands beneath waters
within the Alaska Peninsula National Wildlife Refuge and the Becharof
National Wildlife Refuge, the Service has jurisdiction over activities on
the water. The Service’s statutory authority to manage these lands and
waters comes from the National Wildlife Refuge System Administration
Act of 1966, as amended, and the Alaska National Interest Conservation
Act (ANILCA). Under provisions of ANILCA, the Service manages the
federal subsistence program on all waters within and adjacent to the
external boundaries of the Refuges.
In 1980, under ANILCA, the U.S. Congress established the Alaska
Peninsula and Becharof National Wildlife Refuges. These areas of land
and water may contain both navigable and nonnavigable waters. Where
waterbodies are nonnavigable within the Refuges, the Service has
management authority over activities on water where adjacent uplands
are federally owned. Where State of Alaska lands exist beneath
navigable waterbodies or where the state, a Native corporation, or a
Native allotee owns the adjacent uplands within areas of the ANILCA-established
Refuges, the Service’s management authority is limited.
2.3.8.5 Other Constituencies
The Refuges will inform local communities, special interest groups, and
others who have expressed an interest in or are affected by refuge
programs about refuge management policies and activities. The Refuges
will seek input from these constituents when issues arise that may affect
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
23
how the refuge is managed. Whenever possible, local residents and
special interest groups will be asked to participate in refuge activities so
their expertise and local knowledge can be incorporated into refuge
management.
2.3.9 Ecosystem and Landscape Management
Species do not function alone; they function together in the environment
as part of an ecosystem. The Refuges will employ ecosystem-management
techniques in resource management of the Refuges.
Individual species are viewed as integral to the diversity of those
ecosystems and as such are indicators of the healthy functioning of the
entire ecosystem. When the Service identifies species to use as indicators
of the health of the ecosystem, it will do so through a rigorous peer-reviewed
scientific process involving experts from other federal agencies
and the Alaska Department of Fish & Game.
Inventorying, monitoring, and maintaining a comprehensive database of
selected ecosystem components is critical for making refuge
management decisions and for ensuring the proper long-term stewardship
of refuge ecosystems. This includes regular and recurring monitoring of
status and trends for ecosystem components such as fish, wildlife, plants,
climatic conditions, soils, and waterbodies. All monitoring will employ
appropriate disciplines, new technologies, and scientific capabilities
whenever practical.
2.3.9.1 Air Quality
The Service’s authorities for air-quality management are included in
several laws. The most direct mandates to manage air resources are
found in the Wilderness Act and the Clean Air Act.
The Service is required by the Clean Air Act to preserve, protect, and
enhance air quality and air quality–related values on Service lands. Air
quality–related values include visibility, plants, animals, soil, water
quality, cultural and historical resources, and virtually all resources that
are dependent upon and affected by air quality. In addition, the
Wilderness Act requires the Service to protect and preserve the
Wilderness character, including the pristine air quality, of designated
areas.
Class I air-quality sites receive the highest level of protection. Very little
deterioration is allowed in these areas, and the federal land manager has
an “affirmative responsibility” to protect air quality–related values on
those lands. With the exception of three Class I air-quality sites in
designated Wilderness on the Alaska Maritime National Wildlife Refuge,
all other lands managed by the Service in Alaska are classified as Class
II and receive protection through the Clean Air Act. Moderate
deterioration, associated with well-managed growth, is allowed in Class
II areas.
If air quality or related resources are at risk, the refuge manager will
work with the Service’s Air Quality Branch; the Regional air quality
coordinator; the Alaska Department of Environmental Conservation and
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
24
other state, local, and federal agencies and the public, as appropriate, in
developing an air-quality management plan as outlined in the Service
Manual, Part 563, FW 2.8 (USFWS).
2.3.9.2 Water Resources Management
Every national wildlife refuge in Alaska shares the common purpose of
ensuring that water resources are maintained and protected. ANILCA
mandates that the Service safeguard water quality and necessary water
quantity within the Refuges.
Although the Service has reserved water rights sufficient to accomplish
the purposes of the Refuges, the National Wildlife Refuge System
Administration Act (16 USC 660dd) and the Service Manual (403 FW 1-
3) direct the Service to obtain, to the extent practicable, water supplies of
adequate quantity and quality for Service facilities, for refuge purposes
and as trust resources, and to obtain the legal right to use that water
through state laws, regulations, and procedures.
The Alaska Region conducted a water-resources threats analysis (Harle
1994) for the purpose of guiding water resource investigations and
protecting water resources by acquiring instream-water-rights protection.
Based on the results of the threats analysis, the Service’s Regional Office
developed a strategic plan for systematically quantifying the surface
water on refuges within Alaska (Bayha et al. 1997).
Using existing data, or through the collection of hydrologic and biologic
data, the Service applies to the State of Alaska for appropriative water
rights, for instream water reservations, and for water withdrawals to meet
the purposes identified in ANILCA and the Refuge System Improvement
Act.
Establishing state water rights is only a part of a management strategy to
protect refuge resources and to understand ecosystem processes.
Collection of hydrologic data allows the Service to accomplish the
following:
Plan flood-plain and riparian zone management
Estimate flow for ungauged refuge streams
Supplement historical or current fisheries and wildlife studies
Detect and evaluate future natural or human-induced changes in
the hydrologic system
Provide stream profile and velocity data for the design of fish
weirs or other structures
Estimate the potential for future flooding and erosion
Analyze the impacts of proposed projects on stream flow and
water supply
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
25
Provide a basis for decision-making about commercial
operations on some important streams
All facilities and activities on refuges must comply with pollution-control
standards set by Federal laws (e.g., the Clean Water Act [33
U.S.C. 1251] and the Safe Drinking Water Act [42 U.S.C. 300]), state
laws where federal law so provides, and the regulations, policies, and
standards implementing these laws.
2.3.9.3 Visual Resource Management
Visual resource management has two primary purposes: (1) to manage
the quality of the visual environment and (2) to reduce the visual impact
of development activities. To accomplish these purposes, the Refuges
will identify and maintain the scenic values of the refuge and will, within
the constraints imposed by the conservation plan, minimize the visual
impacts of development and use of the refuge. All activities and facilities
on the Refuges will be designed to blend into the landscape to the extent
practical. The Service will cooperate with other federal, state, local,
tribal, and private agencies and organizations to prevent significant
deterioration of visual resources.
2.3.9.4 Cultural, Historical, and
Paleontological Resources
The Service has long-term responsibilities for cultural resources on
refuge lands. Cultural resources on refuge lands are managed under a
number of laws, executive orders, and regulations, including the
Antiquities Act; the National Historic Preservation Act, as amended; the
Archaeological Resources Protection Act; the American Indian Religious
Freedom Act; the Native American Graves Protection and Repatriation
Act; Executive Order 11593, Protection and Enhancement of the Cultural
Environment; Executive Order 13007, Indian Sacred Sites; and Section
36 of the Code of Federal Regulations, Part 800.
The 1980 amendments to the National Historic Preservation Act direct
the Service to inventory and evaluate cultural resources for their
eligibility for inclusion on the National Register of Historic Places. All
significant historic, archaeological, cultural, and paleontological
resources on the refuge will be protected and managed in accordance
with federal and state law. Because of limits of time, funding, and
staffing, the Service must designate priorities in evaluating cultural
resources on refuge lands. Pending a complete evaluation, all cultural
resources will be considered potentially eligible for the National
Register. Sites determined to be eligible for the National Register will be
protected with a cultural resources management plan.
The cultural resource guide for the Refuges was completed in 1996 and
is scheduled to be updated in 2008. It provides guidance for cultural
resource management on the Refuges by outlining legal mandates and
considerations, reviewing current information about the resources, and
establishing goals and objectives for the program. (Also see cultural
resource guides in the step-down plans section.)
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
26
It is illegal to collect archaeological materials and/or vertebrate
paleontological remains on the Refuges without a permit issued under the
provisions of the Archaeological Resources Protection Act (for
archaeological materials) or of the Antiquities Act of 1906 (vertebrate
paleontological remains). Historic aircraft and other World War II
material will be managed in accordance with a policy published
December 20, 1985, in the Federal Register (FR 50:51952-51953). These
materials may be collected on refuge lands only as authorized by a
permit issued to a qualified organization or individual. Cultural resource
research permits will only be issued to qualified individuals operating
under appropriate research designs. The Refuges will encourage
archaeologists, historians, ethnologists, and paleontologists from
educational institutions and other government agencies to pursue their
research interests on refuge lands so long as these research interests are
compatible with refuge purposes. Research that collects data from
threatened sites and minimizes disturbance to intact sites will be
encouraged.
When any federal undertaking—including any action funded or
authorized by the federal government and having the potential to directly
or indirectly affect any archaeological or historic site—is planned, a
consultation must be initiated with the State Historic Preservation
Officer, under Section 106 of the National Historic Preservation Act. If
sites that may be affected are found in the project area, their significance
will be evaluated to determine their eligibility for inclusion in the
National Register. For eligible sites, consultation will result in a course
of action causing the least possible impact. Impacts may be minimized in
a variety of ways, including relocation or redesign of a project, site
hardening, mitigation through information collection, or cancellation of
the project if no alternatives are feasible. To protect archaeological and
historic sites, other uses may be precluded. Private interests proposing to
conduct commercial uses on the refuge will normally be required to fund
studies necessary for consultation and for mitigation of impacts.
The Refuges will implement Executive Order 13007, Indian Sacred
Sites, allowing access to identified sacred sites and avoiding adversely
affecting the physical integrity of these sites. Where appropriate, the
Service will maintain the confidentiality of sacred sites.
Further information on cultural resources management can be found in
Part 614 FW 1, 2, 3, 4 and 5 of the Service Manual and the Service’s
Cultural Resources Management Handbook (USFWS 1992).
2.3.10 Fish and Wildlife Habitat Management
2.3.10.1 Habitat Management
Habitats are managed in keeping with the purposes, goals, and objectives
of a refuge. In most cases, this means habitats are managed to maintain a
natural state with little or no human intervention. In some cases, habitats
are manipulated to maintain or improve conditions for selected fish and
wildlife populations, to control plant species, or to manage fire fuels on
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
27
refuge lands. Any habitat management and manipulation activities will
be carried out in support of the purposes, goals, and objectives of the
Refuges. The Refuges will use the least-intrusive management measures
needed. Where practical and economically feasible, habitat management
practices will maintain a natural appearance on the landscape. Habitat-management
practices, even those carried out for the benefit of a single
species or small group of species, will, to the extent possible, contribute
to the widest diversity of native (indigenous) wildlife species and habitat
types.
Habitat management and manipulation may be achieved by mechanical
or manual methods, or by a combination of methods. Mechanical
treatment could include mechanical removal, crushing, cutting, or
mowing. Mechanical treatment could also include the construction of
fish passages, fish ladders, fish barriers, water impoundments and
structures such as fences or artificial nests, and raising or lowering of
water levels to manage wildlife or waterfowl habitat. Riparian or aquatic
habitat management and manipulation may be achieved by acquiring
instream-flow reservations or making beneficial water diversions.
Chemical treatment would involve the use of chemicals to restore
nutrient levels in a lake system (fertilization) for fisheries restoration, to
reduce hazardous fuels, or to eliminate nonnative plant and animal
species, normally by killing them or destroying their ability to spread or
prosper. Before chemical treatment is used, the Refuges will analyze the
need for action, the options for treatment, and the potential impacts of
those options. A pesticide-use proposal must be approved by the
Service’s Regional Office before chemical controls are used on refuge
lands (30 AM 12 and 7 RM 14).
Manual treatment could include the use of hand tools to remove, reduce,
or modify hazardous fuels or nonnative plant or animal species or to
modify habitats (e.g., removal of beaver dams).
Aquatic habitat modification may include activities and structures such
as streambank restoration, passage structures, and removal of fish
barriers or obstacles that results in physical modification of aquatic or
riparian habitats to benefit fish species. These activities would be
undertaken to maintain or restore native fish populations and may require
appropriate National Environmental Policy Act (NEPA) compliance and
compatibility determinations.
2.3.10.2 Fire Management
The Refuges are exempt from developing a fire management plan
because of the low incidence of wildland fires.
Wildland Fire Suppression
Fire suppression activity is the work of confining, constraining,
controlling, or monitoring a fire or portion of a fire to protect, prevent, or
reduce the loss of identified values. Suppression takes place, with the
highest priority being the safety of firefighters and the public, using the
appropriate management response based on values to be protected. The
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
28
Alaska Interagency Wildland Fire Management Plan, amended in
October 1998, is the guiding document for suppression actions. The plan
establishes four management options—critical, full, modified, and
limited—that direct a range of wildlife fire management responses.
The Bureau of Land Management—Alaska Fire Service (BLM/AFS)
provides emergency suppression services on refuge lands in Alaska (DOI
2001, DM 2), as directed by the refuge manager. Through a cooperative
agreement with BLM/AFS, the State of Alaska Division of Forestry
provides emergency suppression services on refuge lands in state
protection zones, as directed by the refuge manager.
Wildland Fire Use
Wildland fire use is the application of the appropriate management
response to naturally ignited wildland fires to accomplish resource
management objectives outlined in fire management plans. Wildland
fires may be used to protect, maintain, and enhance natural and cultural
resources and, as nearly as possible, wildland fires will be allowed to
function in their natural ecological role
Prescribed Fire
Prescribed fires are ignited by management action to meet specific
wildland fuel, vegetation, and habitat management objectives. Prior to
each ignition, a written, approved plan outlining prescription conditions
is required. Use of prescribed fires must comply with the Alaska
Enhanced Smoke Management Plan for Prescribed Fire. This plan
provides guidance and direction concerning smoke issues related to
prescribed fire.
2.3.10.3 Weed Control (Pest and Nonnative
Plant Management)
Weeds can cause significant impacts to the land and water resources and
to the species of plants and animals that use these habitats. To manage
weeds, the Refuges will include weed inventories as part of all habitat
inventories. The Refuges will review a proposed action’s potential to
introduce or spread weeds and will take measures to reduce the hazards
(e.g., require weed-free feed for pack animals). The Refuges will
coordinate with other landowners and agencies and use integrated pest-management
practices to enhance the detection, prevention, and
management of weed problems. Use of chemical control measures on
refuge lands requires Regional Office approval of a pesticide-use
proposal (30 AM 12 and 7 RM 14).
2.3.11 Fish and Wildlife Population
Management
Conservation of habitat is a key element in maintaining the natural
diversity of populations on the Refuges, and management of native fish
and wildlife populations is an important component of maintaining a
healthy ecosystem. The Refuges will be managed consistent with the
Policy on Maintaining Biological Integrity, Diversity, and Environmental
Health of the National Wildlife Refuge System (USFWS, 601 FW 3) to
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
29
ensure native species are managed in their natural diversity and
abundance.
The Refuges will work with the State of Alaska to conserve fish and
wildlife populations, recognizing that populations may experience
fluctuations in abundance because of environmental factors and may
require management actions for conservation purposes. The Refuges will
be managed to maintain the genetic variability of wild, native fish stocks.
2.3.11.1 Wildlife Inventory and Monitoring
Plan
To assess presence, relative abundance, distribution, and trends in
populations of fish, wildlife, and plants, the Refuges will draft a wildlife
inventory and monitoring (I&M) plan. This is a step down plan which
describes objectives, justification, methods, management implications,
geographic scale, report schedules, and database management for studies
on species targeted for inventory and monitoring. The I&M plan will
include studies that address environmental parameters (e.g., weather) and
hydrology, soils, and fire history to explain potential changes in the
distribution, relative abundance, and populations of fish, wildlife, and
plants. The I&M plan will be forwarded to the Service’s Regional Office
for review by the regional refuge biologist and other professional staff
prior to final approval by the regional refuge chief. The Refuges will
update their I&M plan on an annual basis but will only need regional
review and approval every five years.
2.3.11.2 Scientific Peer Review
Biologists, ecologists, botanists, and other refuge personnel conducting
scientific investigations will adhere to refuge, regional, Service, and
Department of Interior policies on scientific conduct, including scientific
peer review. The overall goal of scientific peer review is to ensure that
information collected, analyzed, interpreted, and reported to the public
and upon which policy and management decisions are based, meets
established standards of the scientific community. To achieve this goal,
refuge biologists, ecologists, botanists, and others serving as principal
investigators will write a study plan that will undergo peer review. In
addition, study plans, reports, and manuscripts that summarize the results
of scientific studies, analyses, assessments, or syntheses developed by, or
supported by, the Service will undergo scientific review prior to
publication. The type and level of review shall be commensurate with the
potential significance of the scientific information and its likely influence
on policy and management actions.
2.3.11.3 Compliance with the Animal Welfare
Act
The Animal Welfare Act of 1996 established legal standards for animal
care and use. To prescribe methods and set standards for the design,
performance, and conduct of animal care and use, research facilities and
federal agencies must establish an Institutional Animal Care and Use
Committee (IACUC). Field studies conducted or authorized by refuge
employees within the purview of the Animal Welfare Act will require
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
30
review and approval of an IACUC. Any refuge study that involves an
invasive procedure or that harms or materially alters the behavior of an
animal under study should be reviewed and approved by the Fish &
Wildlife Service’s (Region 7) IACUC prior to implementing fieldwork.
2.3.11.4 Marking and Banding
These activities include fish and wildlife capture, marking, banding,
radio-collaring, release, tracking, and other information-gathering
techniques. Cooperation with appropriate partners, including the Alaska
Department of Fish & Game, will be stressed, and specific protocols will
be followed, taking advantage of all appropriate disciplines and new
technologies wherever possible.
2.3.11.5 Threatened or Endangered Species
The Refuges will consult with the U.S. Fish & Wildlife Service
Ecological Services field office on actions that may affect listed,
proposed, or candidate species or designated or proposed critical habitat.
These actions include refuge operations, public-use programs, private
lands and Federal Aid activities, promulgating regulations, and issuing
permits (USFWS 1973, Section 7, Consultation Handbook 1998).
2.3.11.6 Introductions and Reintroductions
A species may be introduced on a refuge only if that species is native to
the refuge (i.e., a reintroduction). Nonnative species may not be
introduced. Definitions of native and nonnative species are found in the
glossary of the Revised Comprehensive Conservation Plan and
Environmental Impact Statement.
Reintroductions can be useful tools for restoring species to natural ranges
and reestablishing a refuge’s natural fish, wildlife, and habitat diversity.
Reintroductions would require appropriate NEPA compliance, a review
to ensure consistency with the biological integrity policy, an ANILCA
Section 810 subsistence determination, and a refuge compatibility
determination. Reintroductions also require extensive coordination with
adjacent landowners and with the State of Alaska. In evaluating the
project, the cause(s) of the extirpation3 should be evaluated and
management actions taken to alleviate the cause(s) prior to
reintroduction.
The environmental requirements of the species and the ecological
dynamics of the area proposed for the reintroduction need to be
thoroughly reviewed prior to a reintroduction. Some factors to consider
include behavior, diseases, general ecology of the species, habitat
requirements, inter- and intra-species competition, life history, genetics,
management practices, population dynamics, and predators.
Consideration should be given to whether there have been significant
habitat changes since extirpation of the species (e.g., is the area still
within the species’ natural range?).
3 localized extinction of a species
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
31
2.3.11.7 Fish and Wildlife Control
These activities involve the control, relocation, and/or removal of native
species, including predators, to maintain natural diversity of fish,
wildlife, and habitats. These management actions may be employed with
species of fish and wildlife within their original range to restore other
depleted native populations. These activities are subject to appropriate
NEPA compliance, an ANILCA Section 810 subsistence determination,
and a refuge compatibility determination.
Predator management includes the relocation, removal, sterilization, and
other management of native predators to accomplish management
objectives. The Service considers predator management to be a
legitimate conservation tool when applied in a prudent and ecologically
sound manner and when other alternatives are not practical. The key
requirements are that a predator-management program be ecologically
sound and biologically justified. In keeping with the Service’s mandate
to first and foremost maintain the biological integrity, diversity, and
environmental health of fish and wildlife populations at the refuge scale,
a predator population will not intentionally be reduced below a level
consistent with the low-end of natural population cycles (see 601 FW 3).
A predator-management program requires appropriate NEPA
compliance, an ANILCA Section 810 subsistence evaluation, and, if
conducted by other than the Service, a refuge compatibility
determination. Alternative management actions must be evaluated prior
to pursuing direct predator-control activities. Any proposal to allow or
implement a predator-management program on national wildlife refuges
in Alaska will be subjected to public review and closely coordinated with
the Alaska Department of Fish & Game, local communities, tribal
governments, and adjacent landowners and/or managers. Predator-management
activities must be monitored and evaluated for effectiveness
and resource impacts.
Normal environmental education and population-management
activities—such as trapper education programs and regulation changes
that allow for increased harvests of predatory animals by licensed
trappers and hunters—are not considered to be “predator management.”
The control or extirpation of nonnative predators is not considered to be
“predator management” (see Section 2.3.11.8).
2.3.11.8 Nonnative Species Management
In general, nonnative species (including feral domestic animals) are not
compatible with refuge purposes or with National Wildlife Refuge
System policies. When nonnative species (fish, wildlife, or plants) occur
on a refuge, the Service may control or eliminate that species. Where a
population of a nonnative species has already been established on a
refuge and this population does not materially interfere with or detract
from the fulfillment of the mission of the National Wildlife Refuge
System or the purposes of the refuge, the species may be managed as part
of the refuge’s diverse ecosystem.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
32
2.3.11.9 Fish and Wildlife Pest Management
and Disease Prevention and Control
Organisms (e.g., rabies or parasites) that threaten human health and
property or survival of native wildlife or plant species may be managed
or removed after consideration of all reasonable options and consultation
with the State of Alaska and other concerned parties. This will normally
only occur when severe resource damage is likely or when public health
or safety is jeopardized. Wherever possible, an integrated approach to
pest management will be used in accordance with the U.S. Fish &
Wildlife Service Administrative Manual, 30 AM 12 and 7 RM 14. If
chemical controls are used, a pesticide-use proposal must be submitted to
the Service’s Regional Office for approval.
2.3.11.10 Fishery Restoration
Fishery restoration is any management action that increases fishery
resources to allow full use of available habitat or to reach a population
level based on historical biologic data. Although the goal of restoration is
self-sustaining populations, situations may exist in which some form of
fishery management or facilities could continue indefinitely.
Where fishery resources have been severely adversely affected, the
Refuge will work with the State of Alaska, local tribes, and other
partners to restore habitats and populations to appropriate, sustainable
conditions. Restoration emphasis will focus on strategies that are the
least intrusive to the ecosystem and that do not compromise the viability
or genetic characteristics of the depleted population. This may include
regulatory adjustments and/or evaluations of escapement goals. If the
stocks have been reduced or are threatened, temporary restoration
facilities may be allowed in designated Wilderness, as long as the
facilities will not significantly detract from the values for which those
areas were established.
2.3.11.11 Fishery Enhancement
Fishery enhancement is any management action or set of actions that is
applied to a fishery stock to supplement numbers of harvestable fish to a
level beyond that which could be naturally produced based on a
determination or reasonable estimate of historic levels. This could be
accomplished by stocking barren lakes, providing access to barren
spawning areas (fish passages), constructing hatcheries, outstocking in
productive systems, or fertilizing rearing habitat.
Refuge management priorities will focus on conserving naturally diverse
ecosystems. Fishery-enhancement facilities for the purposes of
artificially increasing fish populations normally will not occur within any
management category unless stocks have been reduced or are threatened.
Proposals for fishery-enhancement projects will be subject to the
provisions of NEPA, an ANILCA Section 810 subsistence determination,
and a compatibility determination. Only temporary fisheries-enhancement
facilities may be authorized in Minimal and Wilderness
management areas. Proposals for facilities within designated Wilderness
require a minimum-requirements analysis to determine if the facilities
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
33
are necessary within the Wilderness area and would not significantly
detract from the values for which those areas were established.
2.3.11.12 Fish Management Planning
The Refuges Fishery Management Plan is scheduled for revision in 2008.
This plan provides additional guidance on information needs and on
management actions needed on the Refuges. The Service would involve
partners (e.g., State of Alaska and local tribes) in the revision process.
2.3.12 Subsistence Use Management
Providing the opportunity for continued subsistence use by local
residents is one of the purposes of these refuges, as stated in Title III
Sections 302 (1)(B) and (2)(B) and Section 303 (1)(B) of ANILCA. Title
VIII of ANILCA further provides that rural Alaska residents engaged in
subsistence use of resources be allowed to continue using refuge
resources for traditional purposes. These resources include fish and
wildlife, house logs and firewood, and other plant materials (berries,
bark, etc.).
Many aspects of subsistence management are addressed outside of this
plan. The Federal Subsistence Board, through its rule-making process,
addresses seasons, harvest limits, and customary and traditional use
determinations. This board has established regional advisory councils to
provide for meaningful public input to the rule-making process.
The Refuges will work with others to monitor subsistence harvest,
including monitoring conducted by other federal land management
agencies, the State of Alaska, tribal governments, Native organizations,
or any other party. The Refuges will supplement the state’s ongoing
harvest and resource monitoring programs to provide additional
information on the status of fish and wildlife populations harvested for
subsistence uses. This monitoring is intended to identify potential
problems before populations of fish and wildlife become depleted and to
ensure preference is given to subsistence users as required by law. All
information the refuge gathers through subsistence monitoring will be
shared with local state fish and game advisory committees, tribes, and
other entities. Refuge staff members attend various subsistence-related
meetings, including those of local fish and game advisory committees
and Regional Subsistence Advisory Councils and provides information
on the status of subsistence resources and management as they relate to
the Refuges.
The noncommercial gathering by local rural residents of fruits, berries,
mushrooms, and other plant materials for subsistence uses and of dead
standing or down timber for firewood is allowed without a special use
permit. Harvest of live standing timber for house logs, firewood, or other
uses is allowed, although specific requirements vary by size and location.
See 50 CFR 36.15 (U.S. Government 1996-2003) for specific details.
Timber stocks subject to subsistence use will also be monitored to ensure
they remain available over the long term.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
34
Under Section 816 of ANILCA, refuge lands may be closed to the taking
of fish and wildlife if closure is deemed necessary for reasons of public
safety, administration, or to ensure the continued viability of particular
populations of fish or wildlife. Emergency closure to subsistence taking
generally would occur only after other consumptive uses competing for
the resources were restricted or eliminated.
2.3.12.1 Access for Subsistence Purposes
Access to refuge lands by traditional means will be allowed for
subsistence purposes in accordance with Section 811 of ANILCA,
subject to reasonable regulation (see 50 CFR 36.12). Traditional means
include snowmachines, motorboats, dog teams, and other means of
surface transportation traditionally used by local rural residents engaged
in subsistence activities. Use of these traditional means of travel will be
in compliance with state and federal law in such a manner to prevent
waste of harvested resources or damage to the refuge and to prevent
herding, harassment, hazing, or driving of wildlife.
As specified in 50 CFR 36.39(c), three- and four-wheeled vehicles with a
maximum gross vehicle weight of 650 pounds are allowed on the
Refuges for subsistence purposes.
2.3.12.2 Section 810 Evaluations
The Refuges will evaluate the effects of proposed activities on
subsistence use to ensure compliance with Section 810 of ANILCA. The
Refuges will work with the Federal Subsistence Board, regional
subsistence advisory councils, local fish and game advisory committees,
tribes, Native corporations, the Alaska Department of Fish & Game, and
other appropriate local sources to determine whether a proposed activity
would “significantly restrict” subsistence uses. If the Refuges determine
that a proposal would probably result in adverse effects to subsistence
use, the Refuges would follow the requirements identified in Section 810
before making a final decision on the proposal.
2.3.13 Public Access and Transportation
Management
2.3.13.1 Snowmachines, Motorboats, Airplanes,
and Nonmotorized Surface
Transportation
Section 1110(a) of ANILCA allows the use of snowmachines (during
periods of adequate snow cover and frozen river conditions), motorboats,
airplanes, and nonmotorized surface transportation methods for
traditional activities and for travel to and from villages and homesites.
Such access shall be subject to reasonable regulations to protect natural
and other values of the refuge (43 CFR 36.11). Specific areas may be
closed, in accordance with these regulations, to such uses. The refuge
manager is responsible for determining when snow cover is adequate to
protect the underlying vegetation and soil from damage by snowmachine
use.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
35
2.3.13.2 Helicopters and Off-Road Vehicles
The regulations in 43 CFR 36.11 restrict use of helicopters and off-road
vehicles.
Off-Road Vehicles
The regulations in 43 CRF 36.11(g) restrict the use of off-road vehicles
within refuges. The definition of off-road vehicles in 50 CFR 36.2
excludes snowmachines but includes air boats and air-cushion vehicles
along with motorized wheeled vehicles. Under 50 CFR 36.39 (c), off-road
vehicles are allowed only on designated routes or areas within the
Yantarni Bay Moderate Management area or by special use permit.
(Provisions have been made for the use of off-road vehicles for
subsistence purposes, see section 2.3.12.1.)
Helicopters
Special use permits or other authorizations are required for all helicopter
landings in any place other than at designated landing areas. Exceptions
include emergencies, search and rescue operations, or operations
conducted by the Service (43 CFR 36.11(f)(4).
Helicopter landings for volcano monitoring, geologic hazards
evaluations, and fisheries and wildlife management activities may be
authorized under special use permit or other authorization, subject to
site-specific stipulations. Helicopter landings for initial-attack fire
suppression must comply with operational guidance in the Alaska
Interagency Wildland Fire Management Plan. Helicopter landings by
commercial operators and for general public access are not allowed in
designated Wilderness unless the use was established prior to
designation.
2.3.13.3 Access to Inholdings
Section 1110(b) of ANILCA ensures adequate and feasible access, for
economic or other purposes, across a refuge for any person or entity who
has a valid inholding. An inholding is defined as state-owned or privately
owned land, including subsurface rights underlying public lands, valid
mining claims, or other valid occupancy that is within or effectively
surrounded by one or more conservation system units. When a right-of-way
permit is necessary under this provision (e.g., construction of
permanent or long-term facilities), the Service will review and process
the application in accordance with regulations in 43 CFR 36.5, 36.6 and
50 CFR 29.21. Such permits are subject to terms and conditions as
specified in the regulations at 43 CFR 36.9 and 50 CFR 29.21-4.
2.3.13.4 Temporary Access
43 CFR 36.12(a)(2) defines temporary access as limited, short-term (i.e.,
up to one year from issuance of the permit) access that does not require
permanent facilities and for access to state or private lands. Temporary
access is limited to survey, geophysical, exploratory, or similar
temporary uses of nonfederal lands.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
36
The Refuges will evaluate applications for temporary access across the
Refuges and shall issue a permit with the necessary stipulations and
conditions to ensure that the access granted is compatible with the
purposes for which the refuges were established, that it complies with the
provisions of Section 810 of ANILCA, and that it ensures that no
permanent harm will result to the resources of the Refuges.
2.3.13.5 Subsistence Access
See Access for Subsistence Purposes under Subsistence Use
Management (section 2.3.12.1).
2.3.13.6 Transportation and Utility Systems
Transportation and utility systems include roads, highways, railroads,
airports, pipelines, electrical transmission lines, communication systems,
and related structures and facilities reasonably and minimally necessary
for the construction, operation, and maintenance of such systems
(Section 1102 of ANILCA). Anyone seeking to acquire a right-of-way
across refuge lands for a transportation or utility system must, consistent
with 43 CFR Part 36, file an application with the Service’s Regional
Office. Regulations in 43 CFR Part 36 and 50 CFR Part 29 establish
specific procedures and time constraints for application review,
compliance with the National Environmental Policy Act, decision-making,
and appeals.
The Service will decide whether to approve or disapprove that portion of
a transportation or utility system that would cross refuge lands, except
for those on designated Wilderness. When the proposed transportation or
utility system would cross a designated Wilderness area, the Service
tentatively approves or disapproves the application subject to the
President’s subsequent decision. If the President approves, a
recommendation is submitted to Congress for final approval.
A right-of-way for a transportation or utility system across refuge lands
can be granted only if the system meets the compatibility standard, the
criteria outlined in Section 1104(g)(2) of ANILCA, and the regulations at
43 CFR 36.7(a)(2) and if there is no economically feasible and prudent
alternative route for the system. If approved, permits issued for a
transportation or utility system will contain terms and conditions as
required under regulations in 43 CFR 36.9(b) and 50 CFR 29.21-4.
Additional special requirements apply to rights-of-way for pipelines
issued under the Mineral Leasing Act of 1920, 30 U.S.C. 185 (Section
1107[c] of ANILCA and the regulations at 43 CFR 36.9[d]).
For cases in which a transportation or utility system is proposed to cross
areas in management categories that do not allow those systems, the
authorization process would include consideration of a corresponding
plan amendment.
2.3.13.7 State Transportation Planning
Federal transportation planning regulations require each state to develop
a long-range statewide transportation plan in consultation and
coordination with other government agencies and the public. In Alaska,
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
37
transportation projects nominated for funding are evaluated and ranked
by the Alaska Department of Transportation and Public Facilities. When
appropriate, the refuge will participate in the state transportation-planning
process and provide input regarding environmental
considerations of proposed projects affecting refuge lands and resources.
See Appendix G of the Revised Comprehensive Conservation Plan and
Environmental Impact Statement for a discussion of state-identified
potential transportation and utility systems that cross Refuge lands.
2.3.13.8 RS 2477 Rights-of-Way
The State of Alaska asserts numerous claims to roads, trails, and paths
across federal lands under Revised Statute 2477 (RS 2477), a section in
the Mining Act of 1866 that states, “The right-of-way for the
construction of highways over public lands, not reserved for public uses,
is hereby granted.” RS 2477 was repealed by the Federal Land Policy
and Management Act of 1976, subject to valid existing claims.
Assertion and identification of potential rights-of-way does not establish
the existence of these claims nor the public’s right to use them. The
existence of all RS 2477 rights-of-way will be determined on a case-by-case
basis, either through the courts or by other legally binding
document.
Appendix B: Easements, Withdrawals, and Asserted Rights of Way and
Figure 10: Asserted RS-2477 Routes present these asserted rights-of-way.
2.3.13.9 Section 17(b) Easements
Section 17(b) of the Alaska Native Claims Settlement Act of December
18, 1971, authorizes the Secretary of the Interior to reserve easements on
lands conveyed to Native corporations to guarantee access to public
lands and waters. Easements across Native lands include linear
easements (e.g., roads and trails) and site easements. Site easements are
reserved for use as temporary campsites and to change modes of
transportation.
The Service is responsible for administering those public easements,
inside and outside of refuge boundaries, which provide access to refuge
lands. Service authority for administering 17(b) easements is restricted to
the lands within the easement. The size, route, and general location of
17(b) easements are identified on maps filed with conveyance
documents. Conveyance documents also specify the terms and conditions
of use, including the acceptable periods and methods of public access.
2.3.13.10 Navigation Aids and Other
Facilities
Section 1310 of ANILCA authorizes reasonable access to and operation
and maintenance of existing air and water navigation aids,
communications sites, and related facilities. It authorizes existing
facilities for weather, climate, and fisheries research and monitoring
subject to applicable laws and regulations. Reasonable access to and
operation and maintenance of facilities for national defense and related
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
38
air and water navigation are also provided for, including within
designated Wilderness Areas.
New facilities may be authorized after consultation with the head of the
federal department or agency undertaking the establishment, operation,
or maintenance and in accordance with mutually agreed to terms and
conditions.
2.3.14 Recreation and Other Public Use
Public recreation activities compatible with refuge purposes are
authorized unless specifically prohibited (50 CFR 36.31). Compatible
recreation uses of the refuge will continue. The Refuge Administration
Act priority public uses are hunting, fishing, wildlife observation,
photography, and environmental education and interpretation. These uses
are encouraged and will receive emphasis in management of public use
of the Refuges.
Both consumptive (e.g., hunting, fishing, and trapping) and
nonconsumptive (e.g., photography and wildlife viewing,) recreation
uses are appropriate. Some recreation uses are incidental to others.
Camping and hiking may be related to hunting, fishing, wildlife
photography, or other recreation uses.
There is often a fine line between subsistence and recreation use (e.g.,
berry picking). Subsistence uses are addressed under Subsistence Use
Management (section 2.3.12). When it is necessary to restrict the taking
of fish and wildlife on a refuge in order to protect the continued viability
of such populations, the taking of fish and wildlife for nonwasteful
subsistence uses on refuges shall be accorded priority over the taking of
fish and wildlife for other purposes, in accordance with Title VIII of
ANILCA.
The Refuges will be managed to provide recreation experiences in
generally natural wildland settings. Recreation use would be managed
consistent with the designated management area category. Moderate
Management areas will be managed for greater concentrations of visitors
than will be Minimal Management and Wilderness areas. The Refuges
will manage all recreation use to avoid crowded conditions and to
minimize adverse effects to cultural resources, fish and wildlife,
wilderness, and other special values of the refuge. Leave No Trace
techniques will be the standard.
The least intrusive means of managing use will be employed. Education
will be the primary management tool for recreation management, using
brochures, maps, signs, and personal contacts. However, if voluntary
methods fail, other actions may be taken. Actions that may be taken to
manage recreation include limiting commercial guiding and outfitting;
regulating use and access subject to the provisions of Section 1110(a) of
ANILCA; and recommending changes in state and/or federal fishing,
hunting, and/or trapping regulations. When necessary, recreation
opportunities may be seasonally or otherwise restricted to minimize user
conflicts and to protect the natural or other values of the refuge.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
39
Any restrictions on public use will follow the public participation and
closure procedures at 50 CFR Part 36, 43 CFR Part 36, or other
applicable regulations. State management actions available through the
Master Memorandum of Understanding (see Appendix B of the Revised
Comprehensive Conservation Plan and Environmental Impact Statement)
and other state management tools will also be utilized where mutually
desirable.
Management plans may be prepared for areas of relatively concentrated
use.
2.3.15 Outreach
Outreach is two-way communication between the Refuges and the public
to establish mutual understanding, promote public involvement, and
influence public attitudes and actions. The Refuges will continue to take
advantage of partnership opportunities in providing these services,
including working with the Alaska Natural History Association; Alaska
Public Lands Information Centers; local, state, and other federal
agencies; local schools; tribal governments; Alaska Native organizations;
and individuals.
Use of outreach as a management tool is key to the success of many of
the management activities outlined in this plan. Two outreach
activities—environmental education and interpretation—are included in
the six priority public uses identified in the Refuge System Improvement
Act. Other activities may be developed for use by the refuge staff in the
environmental education step down plan. All outreach activities must be
continually evaluated to determine whether they fulfill refuge
management goals and objectives. The Refuges will ensure that these
services are available to all segments of the public, including those with
disabilities and those who speak languages other than English. The
Environmental Education Plan was developed in 1991 and is updated
annually (see step-down plans).
The Refuges will work with the news media, attend public meetings and
workshops, develop Internet home pages, invite the public to the Refuges
(open houses), and foster one-on-one communication.
2.3.16 Recreation Facilities
Facilities may be provided to support certain recreation uses. Recreation
facilities may be located on refuge lands and at administrative sites.
Visitor centers and highly developed environmental education and
interpretive sites may be located off refuge lands at administrative sites
or other appropriate locations. Recreation facilities may include trails,
airstrips, environmental education sites, and signs.
All new buildings (e.g., visitor centers, restrooms, public-use cabins, and
visitor-contact buildings) and additions and alterations to existing
buildings will comply with current accessibility standards. Other
recreation facilities are not currently covered under these standards,
although access for the disabled will be considered in the design of new
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
40
or upgraded facilities. As funds are available, existing buildings will be
updated to meet these standards.
The level of development and appearance of facilities will be appropriate
for the management category of the area in which they are located. More
intensive and sophisticated facilities will be constructed in the Moderate
Management category; more rustic and rudimentary facilities will occur
in the other management categories.
2.3.16.1 Cabins
Special use permits are required for subsistence and commercial cabins.
Management of existing cabins and review of proposals for construction
of new cabins for traditional uses will be in accordance with the
Service’s cabin regulations (50 CFR 36.33). Private recreation use cabins
will not be authorized.
Public-use cabins are intended to provide the public with unique
opportunities to enjoy and use the Refuges. They also help ensure public
health and safety in bad weather and emergencies.
2.3.16.2 Temporary Facilities
Per Section 1316 of ANILCA, the Refuges will allow the use of
temporary campsites, tent platforms, shelters, and other temporary
facilities and equipment directly and necessarily related to the taking of
fish and wildlife, provided these facilities are not detrimental to the
purposes of the refuge. Special-use permits may be issued for tent
frames, caches, smokehouses, and other facilities. Appropriate
stipulations will be included in the special use permits to ensure
protection of refuge resources.
The following criteria will be considered in evaluating applications for
temporary facilities:
Where feasible, they will be located in a manner to not displace
or compete with existing public uses.
They will be located away from the vicinity of existing cabins.
They will be located on sites that are not currently popular
campsites.
They will be located to minimize displacement of wildlife.
The following conditions may be imposed on temporary-facility
special use permits:
The time of occupancy will coincide with the state and/or federal
hunting, fishing, and/or trapping season for the species for which
the temporary facility is being used.
At the end of the specified occupancy, tents and other readily
portable materials will be removed.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
41
To the extent feasible, temporary structures will be built with
materials that blend into and are compatible with the surrounding
landscape.
To the extent feasible, temporary facilities will be screened from
water and located so that they are as unobtrusive as possible
when viewed from trails and areas of significant public use.
2.3.17 Commercial-Use Management
Commercial uses are activities involving use of a refuge or its resources
for a profit. Subsistence uses are not included in commercial uses. Refer
to section 2.3.12 for policies related to subsistence.
Except for activities where specific property rights are held by entities
other than the federal government (e.g., mining on valid claims under the
1872 Mining Law), or where specifically exempted by law, all
commercial uses must comply with both the National Environmental
Policy Act (NEPA) and the compatibility requirements of the National
Wildlife Refuge System Administration Act. A written authorization
(such as a special use permit) is required to conduct commercial
activities on a refuge. Compliance with NEPA and a compatibility
determination will be required prior to deciding whether to authorize a
commercial use. Prior to authorizing any economic use of a natural
resource, the refuge manager must determine that each economic use,
except for proposed activities authorized by ANILCA, contributes to the
achievement of refuge purposes or the National Wildlife Refuge System
mission (50 CFR 29.1). See section 2.3.19 for restrictions on commercial
activities within designated Wilderness Areas.
2.3.17.1 Mineral Exploration and Development
Oil and Gas Assessment
Geological and geophysical studies, including subsurface core sampling
and seismic activities, require special use permits with site-specific
stipulations that ensure compatibility with refuge purposes and
consistency with the management objectives of this Plan. Other than the
rights reserved to the United States under Section 1010(a) of ANILCA,
these activities will not be allowed in designated Wilderness.
Oil and Gas Leasing
Oil and gas leasing may be allowed only in Intensive Management areas.
These Refuges have no Intensive Management areas; a Plan revision
would be necessary to reclassify lands into this category before leasing
could occur.
Oil and gas leasing will not be authorized until completion of the
following:
An assessment of potential
A national interest determination
A compatibility determination, where applicable
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
42
A Comprehensive Conservation Plan amendment
During this process, the Service will seek the views of state and local
governments and other interested parties, in accordance with Section
1008(b)(2) of ANILCA.
If leasing is authorized, lease holders will be subject to federal leasing
regulations (43 CFR 3100) and appropriate state regulations. Leases will
be subject to stipulations on access, seasonal use, and site revegetation;
operators would be required to use technology that minimizes impacts on
fish, wildlife, and habitat. The Refuge will work closely with
leaseholders to minimize adverse effects of mineral exploration and
extraction on Refuges resources and recreation opportunities.
Sand, Gravel, and Other Common Variety (Saleable) Minerals
Common variety minerals—such as sand, gravel, stone, limestone,
pumice, pumicite, cinders, and clay—may be sold pursuant to the
Materials Act of July 31, 1947 (30 U.S.C. 601, 602), as amended.
Regulations are found at 43 CFR 3600. Disposal is also authorized under
the Refuge Revenue Sharing Act (16 U.S.C. 715s). See Part 612 FW 1 of
the Service Manual (USFWS). Extraction may be authorized, where
compatible, in Moderate Management areas to support construction and
maintenance projects on or near refuge lands if no reasonable material
sites exist off refuge lands.
Other Mineral Leasing
In general, mineral leasing is not allowed on refuge land. Geothermal
leasing is not allowed on the Refuges under Section 1014(c) of the
Geothermal Steam Act (30 U.S.C. 1014). Coal mining is also prohibited,
subject to valid existing rights, under Section 16 of the Federal Coal
Leasing Amendment Act of 1975 (30 U.S.C. 201 Notes) and the Surface
Mining Control and Reclamation Act of 1977 (30 U.S.C. 1272; 43 CFR
3400.2). In specific cases of national need, however, mineral exploration,
development, or extraction may be permitted under Section 1502 of
ANILCA. The President must determine that the national need for the
mineral activity outweighs the other public values of the land. Any
recommendation by the President would take effect only after enactment
of a joint resolution by Congress.
Alaska Mineral Resource Assessment Program
Section 1010 of ANILCA requires that all federal lands be assessed for
their oil, gas, and other mineral potential, although Section 304(c)
prohibits new hardrock mining on refuges. Mineral assessment
techniques that do not have lasting impacts—such as side-scanning radar,
trenching, and core drilling—may be allowed throughout the refuge.
Special use permits issued to other government agencies or their
contractors for assessment work would include stipulations to ensure that
the assessment program is compatible with refuge purposes. For
example, stipulations may limit access during nesting, calving, spawning,
or other times when fish and wildlife may be especially vulnerable to
disturbance.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
43
2.3.17.2 Commercial Recreation Services
Air-taxi and water-taxi operators, wildlife-viewing guides, tour
operators, wilderness guides, recreational fishing guides, big-game
hunting guides, and others providing recreation services are required,
under 50 CFR 27.97, to obtain special use permits to operate on refuge
lands. Where the number of special use permits is limited, refuge
managers will award permits competitively (see 50 CFR 36.41). Special
use permits require compliance with all applicable laws and regulations
(e.g., Coast Guard licensing regulations). Permit stipulations ensure that
camps; travel methods; storage of food, fish, and game meat; and
activities are compatible with refuge purposes and reduce the potential
for impacts to resources and to other refuge users. If problems arise
relating to commercial recreation activities—such as disturbance of
active nests, conflicts with subsistence use, chronic incidence of bears
getting into food, or violations of state or federal regulations—the
refuges may modify or terminate use under the special use permit
stipulations. The Refuges will monitor the number and type of guides
and outfitters operating in the refuge and the number of their clients and
will, if necessary, further regulate use.
Under Section 1307 of ANILCA, local preference is provided for all new
commercial visitor services except guiding for recreational hunting and
fishing. Regulations defining local preference are in 50 CFR 36.37.
2.3.17.3 Commercial Fishing and Related
Facilities
Under Section 304(d) of ANILCA, the Service will continue to allow
individuals with valid commercial fishing rights or privileges to operate
on the Refuges. The use of campsites, cabins, motor vehicles, and
aircraft on the Refuges in support of commercial fishing is subject to
reasonable regulation. Section 304(d) provides for restricting commercial
fishing rights if the use is determined to be inconsistent with refuge
purposes and to be a “significant expansion of commercial fishing
activities . . . beyond the level of such activities during 1979.” The
Service recognizes that fishery levels are cyclic and will take that into
consideration when applying the 1979-level criteria. Any new fishery
and related facilities and equipment will have to meet the compatibility
standard.
Aquaculture, mariculture support facilities, and seafood processing
plants will not be allowed.
2.3.17.4 Commercial Harvest of Timber and
Firewood
Commercial harvest of timber and firewood will only be authorized
under a special use permit and when necessary to fulfill overall refuge
management objectives. Within Moderate and Minimal Management
categories, commercial harvest of timber and firewood to accomplish
management objectives will only occur when an approved refuge fire
management plan identifies the need to reduce fuel loads in an area.
Alaska Peninsula and Becharof National Wildlife Refuges
Comprehensive Conservation Plan
44
Applicable federal and State of Alaska guidelines for timber
management will be followed.
2.3.17.5 Commercial Gathering of Other
Resources
Gathering of other resources (e.g., antlers and mushrooms) requires a
special use permit under 50 CFR 27.51.
2.3.17.6 Commercial Filming and Recording
Activities
It is Service policy to provide refuge access and/or assistance to firms
and individuals in the pursuit of commercial visual and audio recordings.
Such access or assistance will not be provided