Draft Revised Comprehensive Conservation Plan Draft Revised Public Use Management Plan and Environmental Assessment Togiak National Wildlife Refuge

              U.S. Fish & Wildlife Service
Draft Revised Comprehensive
Conservation Plan
Draft Revised Public Use Management Plan
and Environmental Assessment
Togiak National Wildlife Refuge
U.S. Fish and Wildlife Service Mission Statement
The mission of the U.S. Fish and Wildlife Service is working with others to conserve, protect, and enhance fish, wildlife, plants, and their habitats for the continuing benefit of the American people.
Refuge Mission Statement
The mission of the National Wildlife Refuge System is to administer a national network of lands and waters for the conservation, management, and, where appropriate, restoration of the fish, wildlife, and plant resources and their habitats within the United States for the benefit of present and future generations of Americans.
—National Wildlife Refuge System Improvement Act of 1997
The comprehensive conservation plan details program planning levels that are substantially greater than current budget allocations and, as such, is for strategic planning and program prioritization purposes only. This plan does not constitute a commitment for staffing increases or funding for future refuge-specific land acquisitions, construction projects, or operational and maintenance increases.
Revised Comprehensive
Conservation Plan and Revised Public Use Management Plan and Environmental Assessment
Togiak
National Wildlife Refuge
October 2007
Prepared by
U.S. Fish and Wildlife Service Region 7 Anchorage, Alaska
Togiak National Wildlife Refuge U.S. Fish and Wildlife Service Region 7 Post Office Box 270 1011 East Tudor Road, MS-231 Dillingham, AK 99576 Anchorage, AK 99503 United States Department of the Interior
FISH AND WILDLIFE SERVICE
Regional Office, National Wildlife Refuge System-Alaska
Division of Conservation Planning & Policy
1011 East Tudor Road
Anchorage, Alaska 99503
(907) 786-3357
Dear Reader:
Enclosed is the Draft Revised Comprehensive Conservation Plan, Draft Revised Public Use Management Plan and Environmental Assessment for the Togiak National Wildlife Refuge. The Revised Comprehensive Conservation Plan will guide management of Togiak National Wildlife Refuge for the next 15 years. The Revised Public Use Management Plan will provide additional guidance for the management of public use on the refuge for the next five to ten years. The Comprehensive Plan outlines two management alternatives, and the Public Use Plan outlines five alternatives. Each plan identifies the U.S. Fish & Wildlife Service’s preferred alternative, and presents the Service’s evaluation of the environmental consequences of all alternatives.
Please provide comments on the draft plans by January 18, 2008. Comments should be specific, addressing merits of the alternatives and adequacy of the environmental analysis. We will consider your comments as we prepare the final plans. Environmental objections that could have been raised at the draft stage may be waived if not raised until after completion of the final plan.
Public meetings will be held in communities near Togiak Refuge and in Anchorage during the public review period. Once arranged, meeting dates, times, and locations will be announced.
All public comments received, including respondent names and addresses, will be included in the planning record, which will be available for public review. If you, as an individual, wish us to withhold your name or address, state this prominently at the beginning of your comments. We will honor your request to the extent allowed by law. All comments from organizations and businesses and from individuals identifying themselves as representatives or officials of organizations or businesses will be available for public inspection. Anonymous comments will not be considered. Comments should be mailed, emailed, or provided orally by January 18, 2008, to
Maggi Arend, Planning Team Leader
U.S. Fish & Wildlife Service
1011 E. Tudor Road, MS-231
Anchorage, AK 99576
fw7_Togiak_planning@fws.gov
(907) 786-3393
Requests for further information should be directed to
Paul Liedberg, Refuge Manager
Togiak National Wildlife Refuge
Post Office Box 270
Dillingham, AK 99576
Request copies of the full document (on CD-ROM) or the Executive Summary (printed) through the same sources. You may also view the Plan online at http://alaska.fws.gov/nwr/planning/plans.htm. Compatibility Determinations
Determining compatibility is a key process by which refuge managers decide what uses will be permitted on national wildlife refuges. An essential element in the process is providing the public an opportunity to provide input for the refuge manager to consider as he or she determines if a use is compatible with the purposes for which the refuge was established.
Compatibility determinations are required for all economic and public use activities, as well as for recreational and educational facilities provided by the refuge and for refuge management economic activities. Compatibility determinations are not required for refuge management activities such as scientific studies or surveys; historic preservation activities; law enforcement activities; and maintenance of refuge management facilities, structures, and improvements. Economic uses must contribute to achieving refuge purposes and the mission of the National Wildlife Refuge System.
We reevaluate compatibility determinations for existing wildlife dependent recreational uses when we prepare or revise a comprehensive conservation plan, or every 15 years, whichever is sooner. We reevaluate other uses every 10 years, or sooner if conditions change or significant new information relative to the use and its effects becomes available.
As part of the review of this Draft Plan, you are invited to provide relevant information or comment on the compatibility determinations for Togiak National Wildlife Refuge. The complete text of each draft compatibility determination can be found in Appendix D.
Public comment on the draft compatibility determinations will be addressed in the final determinations to be released in the final Comprehensive Plan. More information on the compatibility process can be found at http://alaska.fws.gov/nwr/planning/comptdeter.htm.
SARAH PALIN, GOVERNOR
DEPARTMENT OF NATURAL RESOURCES 550 WEST 7TH AVENUE, SUITE 1050
ANCHORAGE, ALASKA 99501-3579
DIVISION OF MINING, LAND AND WATER PHONE: (907) 269-8534
FAX: (907) 269-8915
RESOURCE ASSESSMENT & DEVELOPMENT SECTION
April 23, 2007
Dear Alaskan,
This Notice of Availability announces the release of a public review draft by the Alaska Department of Natural Resources (DNR) to adopt proposed revisions to Special Use Land Designation (SULD) ADL 226851, for management of state shorelands and waters within the Togiak National Wildlife Refuge and lower Goodnews River. This notice coincides with the release of the Togiak National Wildlife Refuge Revised Comprehensive Conservation Plan (CCP) public review draft.
The 1991 SULD is being revised to clarify certain guidelines and language, including definitions for the “Outlet of Kagati Lake” and “Temporary Facilities,” along with more detailed explanations for camping term-limits, trespass and human waste guidelines. The revised SULD also includes a map showing affected lands and waterbodies and a diagram that illustrates the definition of ���Ordinary High Water.” These changes to the 1991 SULD may assist DNR in promulgating regulations, if determined to be necessary, at some point in the future.
The revised SULD is included in the Togiak National Wildlife Refuge Revised Comprehensive Conservation Plan as Appendix C, which is currently being distributed for public review. A copy of the SULD is also available at DNR’s Public Information Centers located in Anchorage at 550 West 7th Avenue, Suite 1260, and in Juneau at 400 Willoughby Avenue. Comments must be received by 5 pm on January 18, 2008.
To submit comments or request information, please contact:
Sara Taylor, Natural Resource Specialist
Division of Mining, Land and Water
550 West 7th Avenue, Suite 1050
Anchorage, AK 99501
Tel (907)269-8528 / Fax (907)269-8915
Email: sara_taylor@dnr.state.ak.us
Table of Contents
Table of Contents
Title Page.........................................................................................................................................................................i
Cover Letter..................................................................................................................................................................iii
Compatibility Determinations.....................................................................................................................................iv
Letter to Alaska Residents...........................................................................................................................................v
Table of Contents.........................................................................................................................................................vii
Comprehensive Conservation Plan
1. Introduction......................................................................................................................................................1-1
1.1 Purpose and Need.......................................................................................................................................1-2
1.2 Planning Context.........................................................................................................................................1-3
1.2.1 The U.S. Fish and Wildlife Service and the National Wildlife Refuge System..............................1-3
1.2.1.1 Service and System Missions...................................................................................................1-3
1.2.1.2 U.S. Fish and Wildlife Service Mission...................................................................................1-4
1.2.1.3 National Wildlife Refuge System Mission..............................................................................1-4
1.2.2 Principles of Refuge Management........................................................................................................1-4
1.3 Refuge Establishment................................................................................................................................1-7
1.4 Legal and Policy Guidance and State Coordination................................................................................1-8
1.4.1 Legal Guidance.......................................................................................................................................1-8
1.4.2 Policy Guidance.......................................................................................................................................1-9
1.4.3 State of Alaska Coordination.................................................................................................................1-9
1.5 Refuge Purposes, Vision, and Goals........................................................................................................1-10
1.5.1 Refuge Purposes...................................................................................................................................1-10
1.5.2 Vision Statement..................................................................................................................................1-11
1.5.3 Refuge Goals.........................................................................................................................................1-11
1.6 Refuge Overview.......................................................................................................................................1-12
1.6.1 Physical Environment.........................................................................................................................1-12
1.6.2 Biological Resources............................................................................................................................1-12
1.6.3 Human Uses..........................................................................................................................................1-13
1.6.4 Special Values of the Refuge...............................................................................................................1-13
1.7 The Planning Process...............................................................................................................................1-14
1.7.1 Design the Planning Process...............................................................................................................1-17
1.7.2 Initiate Public Involvement and Scoping...........................................................................................1-18
1.7.3 Determine Significant Issues..............................................................................................................1-19
1.7.4 Develop and Analyze Alternatives......................................................................................................1-19
1.7.5 Prepare Draft Plan and Environmental Assessment......................................................................1-20
1.7.6 Prepare and Adopt a Final Plan..........................................................................................................1-20
1.7.7 Implement Plan, Monitor, and Evaluate............................................................................................1-20
1.7.8 Review and Revise Plan.......................................................................................................................1-21
1.8 Planning Issues..........................................................................................................................................1-21
1.8.1 Issues Considered But Not Addressed in the Alternatives............................................................1-21
1.8.1.1 Additional Areas for Wilderness Designation or Rivers for Inclusion in the National System
of Wild and Scenic Rivers....................................................................................................................1-21
1.8.1.2 Hardened Campsites................................................................................................................1-22
1.8.1.3 All Weather Roads...................................................................................................................1-22
1.8.2 Significant Planning Issues Addressed in this Plan.........................................................................1-22
1.9 References Cited.......................................................................................................................................1-22
Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan vii
Table of Contents
2. Refuge Management Direction and Alternatives.........................................................................................2-1
2.1 Process Used to Develop Alternatives......................................................................................................2-1
2.1.1 Alternatives Eliminated from Detailed Consideration......................................................................2-1
2.2 Alternative 1: Proposed Action Alternative.............................................................................................2-2
2.2.1 Vision, Goals, and Objectives.................................................................................................................2-2
2.2.1.1 Refuge Vision Statement...........................................................................................................2-2
2.2.1.2 Ecosystem, Habitat and Fish and Wildlife Management.....................................................2-2
2.2.1.3 Public Use...................................................................................................................................2-5
2.2.1.4 Resource Protection...................................................................................................................2-7
2.2.1.5 Wilderness................................................................................................................................2-10
2.2.1.6 Refuge Operations....................................................................................................................2-11
2.2.1.7 Cooperation...............................................................................................................................2-12
2.2.2 Management Categories.....................................................................................................................2-12
2.2.2.1 Minimal Management..............................................................................................................2-13
2.2.2.2 Wilderness................................................................................................................................2-14
2.2.2.3 Special Management................................................................................................................2-15
2.2.3 Management Categories Table............................................................................................................2-16
2.2.3.1 Introduction..............................................................................................................................2-16
2.2.3.2 Definitions for Management Categories Table....................................................................2-16
2.2.4 Management Policies and Guidelines..................................................................................................2-18
2.2.4.1 Management Emergencies......................................................................................................2-29
2.2.4.2 Boundary Adjustments (Administrative)..............................................................................2-29
2.2.4.3 Land Exchanges and Acquisitions.........................................................................................2-29
2.2.4.4 Land Protection Planning........................................................................................................2-30
2.2.4.5 Appropriate Uses......................................................................................................................2-30
2.2.4.6 Compatibility Determinations.................................................................................................2-32
2.2.4.7 Mitigation..................................................................................................................................2-33
2.2.4.8 Coastal Zone Consistency........................................................................................................2-34
2.2.4.9 Cooperation and Coordination with Others..........................................................................2-35
2.2.4.10 Ecosystem and Landscape Management............................................................................2-38
2.2.4.11 Fish and Wildlife Habitat Management..............................................................................2-42
2.2.4.12 Fish and Wildlife Population Management.........................................................................2-45
2.2.4.13 Subsistence Use Management..............................................................................................2-50
2.2.4.14 Public Access and Transportation Management................................................................2-52
2.2.4.15 Recreation and Other Public Use.........................................................................................2-56
2.2.4.16 Public Use Facilities...............................................................................................................2-57
2.2.4.17 Outreach..................................................................................................................................2-59
2.2.4.18 Commercial-Use Management.............................................................................................2-60
2.2.4.19 Environmental Contaminants Identification and Cleanup...............................................2-63
2.2.4.20 Management of Designated Wilderness..............................................................................2-64
2.2.4.21 Administration of Togiak National Wildlife Refuge..........................................................2-65
2.2.4.22 Alaska Mineral Resource Assessment Program................................................................2-67
2.3 Alternative 2: No-Action Alternative for the Conservation Plan.......................................................2-67
2.3.1 Management Direction........................................................................................................................2-68
2.3.1.1 Minimal Management..............................................................................................................2-68
2.3.1.2 Wilderness Management.........................................................................................................2-68
2.3.1.3 Cooperative Management........................................................................................................2-69
2.3.2 Summary Comparison of Alternatives...............................................................................................2-73
2.4 References Cited.......................................................................................................................................2-75
3. Affected Environment.....................................................................................................................................3-1
3.1 Geographic and Ecosystem Setting...........................................................................................................3-1
viii Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan
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3.1.1 The Bristol Bay and Kodiak Ecosystem..............................................................................................3-1
3.2 Land Status..................................................................................................................................................3-1
3.3 Physical Environment................................................................................................................................3-5
3.3.1 Area of Influence....................................................................................................................................3-5
3.3.2 Climate.....................................................................................................................................................3-5
3.3.3 Landforms...............................................................................................................................................3-5
3.3.4 Geology and Soils...................................................................................................................................3-5
3.3.5 Water........................................................................................................................................................3-6
3.3.5.1 Rivers and Lakes.......................................................................................................................3-6
3.3.6 Water Quality..........................................................................................................................................3-7
3.3.6.1 Heavy Metal Contamination.....................................................................................................3-8
3.4 Biological Environment............................................................................................................................3-17
3.4.1 Vegetation.............................................................................................................................................3-17
3.4.1.1 Nonnative and Invasive Plants...............................................................................................3-18
3.4.1.2 Fire............................................................................................................................................3-18
3.4.2 Fish and Wildlife..................................................................................................................................3-18
3.4.2.1 Fish...........................................................................................................................................3-18
3.4.2.2 Birds..........................................................................................................................................3-26
3.4.2.3 Land Mammals........................................................................................................................3-29
3.4.2.4 Marine Mammals.....................................................................................................................3-33
3.5 Human Environment................................................................................................................................3-38
3.5.1 History...................................................................................................................................................3-38
3.5.2 Cultural Resources...............................................................................................................................3-39
3.5.3 Local Population and Economy...........................................................................................................3-40
3.5.3.1 Population................................................................................................................................3-40
3.5.3.2 Economy...................................................................................................................................3-40
3.5.4 Access and Transportation..................................................................................................................3-45
3.5.5 Subsistence............................................................................................................................................3-50
3.5.5.1 Kanektok River........................................................................................................................3-52
3.5.5.2 Goodnews River........................................................................................................................3-52
3.5.5.3 Osviak and Matogak Rivers/Hagemeister Island...............................................................3-53
3.5.5.4 Togiak River............................................................................................................................3-53
3.5.6 Recreation.............................................................................................................................................3-54
3.5.6.1 Overview...................................................................................................................................3-54
3.5.6.2 Kanektok River........................................................................................................................3-56
3.5.6.3 Goodnews River........................................................................................................................3-59
3.5.6.4 Togiak River............................................................................................................................3-61
3.5.6.5 Osviak and Matogak Rivers/Hagemeister Island................................................................3-63
3.5.6.6 Kulukak River...........................................................................................................................3-63
3.5.6.7 Wilderness Lakes......................................................................................................................3-63
3.5.6.8 Cape Peirce and Cape Newenham.........................................................................................3-64
3.5.7 Social Conditions and Visitor Experiences in Popular Fishing Areas...........................................3-65
3.5.7.1 Visitor Motivations and Expectations...................................................................................3-66
3.5.7.2 User Tolerances and Conditions of Concern........................................................................3-66
3.6 Special Area Designations and Resource Value....................................................................................3-67
3.6.1 Wilderness Values................................................................................................................................3-67
3.6.1.1 Togiak Wilderness Area..........................................................................................................3-69
3.6.1.2 Oyak Creek-Arolik River Area..............................................................................................3-70
3.6.1.3 South Fork of the Goodnews River Watershed...................................................................3-70
3.6.1.4 Cape Peirce/Cape Newenham Area......................................................................................3-71
3.6.1.5 Osviak/Matogak Rivers Area.................................................................................................3-71
3.6.1.6 Hagemeister Island.................................................................................................................3-71
3.6.1.7 Kulukak Bay............................................................................................................................3-71
Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan ix
Table of Contents
3.6.1.8 Nushagak Peninsula................................................................................................................3-72
3.6.2 River Values..........................................................................................................................................3-72
3.6.2.1 Kanektok River.........................................................................................................................3-73
3.6.2.2 Arolik River.............................................................................................................................3-74
3.6.2.3 Goodnews River........................................................................................................................3-79
3.6.2.4 Trail Creek...............................................................................................................................3-79
3.6.2.5 Ongivinuck River......................................................................................................................3-80
3.6.2.6 Naragurum (Kemuk) River....................................................................................................3-81
3.6.2.7 Togiak River............................................................................................................................3-81
3.8 References Cited.......................................................................................................................................3-82
4. Environmental Consequences........................................................................................................................4-1
4.1 Introduction.................................................................................................................................................4-1
4.2 Changes in activities and uses....................................................................................................................4-1
4.3 Physical, Biological and Socioeconomic Effects.......................................................................................4-2
4.3.1 Physical Environment...........................................................................................................................4-2
4.3.2 Biological Environment.........................................................................................................................4-2
4.3.2.1 Effects on Vegetation................................................................................................................4-2
4.3.2.2 Effects on Fish, Populations and Habitats.............................................................................4-2
4.3.2.3 Effects on Wildlife, Populations and Habitats.......................................................................4-3
4.3.2.4 Effects on Threatened or Endangered Species.....................................................................4-3
4.3.3 Human Environment.............................................................................................................................4-4
4.3.3.1 Effects on Refuge Management..............................................................................................4-4
4.3.3.2 Effects on Local Population and Economy............................................................................4-4
4.3.3.3 Effects on Subsistence Opportunities.....................................................................................4-5
4.3.3.4 Effects on Recreation Opportunities.......................................................................................4-5
4.3.3.5 Effects on Wilderness Values...................................................................................................4-5
4.3.3.6 Effects on Cultural Resources.................................................................................................4-6
4.3.4 Relationship Between Short-Term Uses of the Environment and Long-Term Productivity.....4-6
4.3.5 Irreversible and Irretrievable Commitment of Resources...............................................................4-6
4.3.6 Environmental Justice...........................................................................................................................4-7
4.3.7 ANILCA Section 810 Evaluation..........................................................................................................4-8
5. Evaluation of the Alternatives.......................................................................................................................5-1
5.1 Evaluation Criteria.....................................................................................................................................5-1
5.2 Response to Refuge Purposes....................................................................................................................5-1
5.3 Response to National Wildlife Refuge System Mission.........................................................................5-2
5.4 Response to Refuge Goals..........................................................................................................................5-2
5.5 Response to Issue........................................................................................................................................5-2
5.5.1 Effects of management changes on Activities and Uses of the Refuge...........................................5-2
5.6 Biological Integrity and Ecosystem Management..................................................................................5-2
6. Implementation and Monitoring.....................................................................................................................6-1
6.1 Implementation of the Conservation Plan................................................................................................6-1
6.1.1 Key Step-Down Plans............................................................................................................................6-1
6.1.2 Partnership Opportunities....................................................................................................................6-4
6.1.3 Conservation Plan Amendment and Revision.....................................................................................6-6
Public Use Management Plan
1. Public Use Management Plan Introduction..................................................................................................1-1
1.1 Purpose and Need.......................................................................................................................................1-1
x Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan
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1.2 Legal and Policy Guidance.........................................................................................................................1-2
1.3 Refuge Purposes, Vision, and Goals..........................................................................................................1-3
1.3.1 Refuge Purposes.....................................................................................................................................1-3
1.3.2 Vision Statement....................................................................................................................................1-4
1.3.3 Refuge Goals...........................................................................................................................................1-4
1.4 State of Alaska Coordination.....................................................................................................................1-4
1.5 The Planning Process.................................................................................................................................1-5
1.6 Planning Issues............................................................................................................................................1-5
1.6.1 Issues Considered But Not Addressed in the Alternatives..............................................................1-5
1.6.1.1 Health of Fish and Fish Populations........................................................................................1-6
1.6.1.2 Public-Use Impacts on Wildlife................................................................................................1-8
1.6.1.3 Public Safety and Visitor Conflicts..........................................................................................1-8
1.6.1.4 Environmental Contaminants..................................................................................................1-9
1.6.1.5 Water quality.............................................................................................................................1-9
1.6.1.6 Camping Opportunities on State Lands...............................................................................1-10
1.6.2 Significant Planning Issues Addressed in this Plan.........................................................................1-10
1.7 References Cited.......................................................................................................................................1-12
2. Public Use Management Plan Direction and Alternatives.........................................................................2-1
2.1 Introduction.................................................................................................................................................2-1
2.2 Public Use Management Plan Revision Alternatives.............................................................................2-1
2.2.1 Process Used to Develop These Alternatives.....................................................................................2-1
2.2.2 Alternatives Considered but Eliminated from Detailed Consideration..........................................2-1
2.2.3 Management Area Descriptions and General Direction....................................................................2-2
2.2.4 Actions Common to All Action Alternatives........................................................................................2-4
2.2.4.1 Public Use Monitoring Plan......................................................................................................2-4
2.2.4.2 Kulukak River...........................................................................................................................2-4
2.2.4.3 Wilderness Lakes.......................................................................................................................2-4
2.2.4.4 Human Waste Management.....................................................................................................2-7
2.2.4.5 Camping Opportunities on State Lands within the Togiak Refuge Boundary and
along the lower Goodnews River...........................................................................................................2-7
2.2.5 Alternative A: No Action........................................................................................................................2-8
2.2.5.1 Management Direction..............................................................................................................2-8
2.2.5.2 Visitation....................................................................................................................................2-9
2.2.5.3 Permit Allocation......................................................................................................................2-9
2.2.5.4 Facilities.....................................................................................................................................2-9
2.2.5.5 Goodnews River........................................................................................................................2-10
2.2.5.6 Osviak and Matogak Rivers....................................................................................................2-10
2.2.5.7 Togiak River............................................................................................................................2-13
2.2.6 Alternative B.........................................................................................................................................2-13
2.2.6.1 Management Direction............................................................................................................2-13
2.2.6.2 Visitation..................................................................................................................................2-13
2.2.6.3 Permit Allocation.....................................................................................................................2-13
2.2.6.4 Facilities...................................................................................................................................2-14
2.2.6.5 Kanektok River........................................................................................................................2-17
2.2.6.6 Goodnews River........................................................................................................................2-17
2.2.6.7 Goodnews River........................................................................................................................2-17
2.2.6.8 Osviak and Matogak Rivers....................................................................................................2-17
2.2.6.9 Togiak River............................................................................................................................2-18
2.2.7 Alternative C (Preferred Alternative)................................................................................................2-18
2.2.7.1 Management Direction............................................................................................................2-18
2.2.7.2 Visitation..................................................................................................................................2-19
2.2.7.3 Allocation..................................................................................................................................2-19
Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan xi
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2.2.7.4 Facilities...................................................................................................................................2-19
2.2.7.5 Goodnews River........................................................................................................................2-20
2.2.7.6 Osviak and Matogak Rivers....................................................................................................2-20
2.2.7.7 Togiak River............................................................................................................................2-21
2.2.8 Alternative D.........................................................................................................................................2-21
2.2.8.1 Management Direction............................................................................................................2-21
2.2.8.2 Visitation..................................................................................................................................2-21
2.2.8.3 Allocation..................................................................................................................................2-21
2.2.8.4 Public Use and Facilities.........................................................................................................2-21
2.2.8.5 Goodnews River........................................................................................................................2-22
2.2.8.6 Osviak and Matogak Rivers....................................................................................................2-23
2.2.8.7 Togiak River............................................................................................................................2-23
2.2.9 Alternative E.........................................................................................................................................2-23
2.2.9.1 Management Direction............................................................................................................2-23
2.2.9.2 Visitation..................................................................................................................................2-23
2.2.9.3 Allocation..................................................................................................................................2-24
2.2.9.4 Public Use and Facilities.........................................................................................................2-24
2.2.9.5 Goodnews River........................................................................................................................2-27
2.2.9.6 Osviak and Matogak Rivers....................................................................................................2-28
2.2.9.7 Togiak River............................................................................................................................2-28
2.2.10 Summary Comparison of Action Alternatives..............................................................................2-28
3. Public Use Management Plan Affected Environment.................................................................................3-1
4. Public Use Management Plan Environmental Consequences....................................................................4-1
4.1 Introduction.................................................................................................................................................4-1
4.2 Physical Environment................................................................................................................................4-2
4.2.1 Effects on Water Quality........................................................................................................................4-2
4.3 Biological Environment..............................................................................................................................4-2
4.3.1 Effects on Vegetation Conditions of Campsites and Trails...............................................................4-2
4.3.1.1 Kagati and Goodnews Lakes....................................................................................................4-2
4.3.1.2 Cape Peirce................................................................................................................................4-3
4.3.2 Effects on Fish, Wildlife, and Key Species of Special Concern........................................................4-4
4.3.2.1 Fish.............................................................................................................................................4-4
4.3.2.2 Wildlife........................................................................................................................................4-5
4.3.2.3 Cumulative Effects....................................................................................................................4-5
4.4 Human Environment..................................................................................................................................4-6
4.4.1 Effects on Cultural Resources...............................................................................................................4-6
4.4.2 Effects on Visitor Access........................................................................................................................4-7
4.4.2.1 Alternative A..............................................................................................................................4-7
4.4.2.2 Alternative B..............................................................................................................................4-9
4.4.2.3 Alternative C.............................................................................................................................4-10
4.4.2.4 Alternative D............................................................................................................................4-12
4.4.2.5 Alternative E............................................................................................................................4-13
4.4.3 Effects on Visitor Experiences............................................................................................................4-15
4.4.3.1 Alternative A.............................................................................................................................4-15
4.4.3.2 Alternative B.............................................................................................................................4-17
4.4.3.3 Alternative C.............................................................................................................................4-19
4.4.3.4 Alternative D............................................................................................................................4-21
4.4.3.5 Alternative E............................................................................................................................4-21
4.4.4 Effects on Local Users.........................................................................................................................4-22
4.4.4.1 Alternative A.............................................................................................................................4-22
4.4.4.2 Alternative B.............................................................................................................................4-23
xii Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan
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4.4.4.3 Alternative C.............................................................................................................................4-24
4.4.4.4 Alternative D............................................................................................................................4-24
4.4.4.5 Alternative E............................................................................................................................4-25
4.4.5 Effects on the Local Economy.............................................................................................................4-25
4.4.5.1 Alternative A.............................................................................................................................4-25
4.4.5.2 Alternative B.............................................................................................................................4-26
4.4.5.3 Alternative C.............................................................................................................................4-27
4.4.5.4 Alternative D............................................................................................................................4-27
4.4.5.5 Alternative E............................................................................................................................4-27
4.4.6 Effects on Wilderness Values..............................................................................................................4-28
4.4.6.1 Alternative A.............................................................................................................................4-28
4.4.6.2 Alternative B.............................................................................................................................4-29
4.4.6.3 Alternative C.............................................................................................................................4-30
4.4.6.4 Alternative D............................................................................................................................4-31
4.4.6.5 Alternative E............................................................................................................................4-31
4.4.7 Cumulative Effects...............................................................................................................................4-31
4.4.7.1 Alternative A.............................................................................................................................4-31
4.4.7.2 Alternative B.............................................................................................................................4-33
4.4.7.3 Alternative C.............................................................................................................................4-33
4.4.7.4 Alternative D............................................................................................................................4-33
4.4.7.5 Alternative E............................................................................................................................4-33
4.4.8 Relationship Between Short-Term Uses of the Environment and Long-Term Productivity....4-34
4.4.9 Irreversible and Irretrievable Commitment of Resources.............................................................4-34
4.4.10 Environmental Justice.........................................................................................................................4-35
4.4.11 ANILCA Section 810 Evaluation/Effects on Subsistence Opportunity.........................................4-36
4.4.12 Effects of the Proposed Alternatives..................................................................................................4-36
4.4.12.1 Alternative A...........................................................................................................................4-36
4.4.12.2 Alternative B...........................................................................................................................4-37
4.4.12.3 Alternative C...........................................................................................................................4-37
4.4.12.4 Alternative D..........................................................................................................................4-37
4.4.12.5 Alternative E..........................................................................................................................4-38
4.5 Conclusion..................................................................................................................................................4-38
4.6 References Cited.......................................................................................................................................4-39
5. Evaluation of the Alternatives.......................................................................................................................5-1
5.1 Evaluation Criteria.....................................................................................................................................5-1
5.2 Response to Refuge Purposes....................................................................................................................5-1
5.3 Response to National Wildlife Refuge System Mission.........................................................................5-2
5.4 Response to Refuge Goals..........................................................................................................................5-3
5.5 Response to Issues......................................................................................................................................5-3
5.5.1 Public Use at Cape Peirce Wildlife Viewing Area and Public Facilities at Sangor Lake.............5-3
5.5.2 Unguided Recreational Opportunities in the Kanektok and Goodnews River Watersheds.........5-3
5.5.3 Waste Management...............................................................................................................................5-3
5.5.4 Commercial Sport Fishing in the Goodnews, Togiak, Osviak, and Matogak River Watersheds.5-4
5.6 Biological Integrity and Ecosystem Management..................................................................................5-4
6. Implementation and Monitoring.....................................................................................................................6-1
6.1 Implementation of the Public Use Plan....................................................................................................6-1
6.1.1 Key Step-Down Plans............................................................................................................................6-1
6.1.2 Promulgation of Regulations.................................................................................................................6-2
6.1.3 Partnership Opportunities....................................................................................................................6-2
6.1.4 Existing, Past, and Potential Partnerships.........................................................................................6-3
6.1.5 Public Use Plan Amendment and Revision.........................................................................................6-4
Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan xiii
Table of Contents
Appendix A: Legal and Policy Guidance
Appendix B: Consultation and Coordination with Others
Appendix C: Coordination with the State of Alaska
Appendix D: Draft Compatibility Determinations
Appendix E: Togiak Refuge Angler Survey
Appendix F: Togiak National Wildlife Refuge Species Lists
Appendix G: Easements, Withdrawals, and Rights of Way within the Togiak National Wildlife Refuge
Appendix H: Preparers
Appendix I: Abbreviations and Acronyms Glossary
xiv Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan
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Tables and Figures
Tables in the Comprehensive Conservation Plan
Table 2-1 Activities, Public Uses, Commercial Uses, and Facilities by Management Category...................2-19
Table 2-2 Comparison of CCP Alternatives..........................................................................................................2-74
Table 3-1 Estimated Vegetation Area by General Cover Type..........................................................................3-18
Table 3-2 Estimated Subsistence Harvest of Non-salmon Fish from the Togiak River During
1994-95 and 1999-2000.............................................................................................................................................3-25
Table 3-3 Number of Moose Observed During Aerial Counts within Game Management Unit 17a............3-31
Table 3-4 Number of Moose Observed During Aerial Counts within Game Management Unit 18............. 3-32
Table 3-5 Local Population Census Data for Communities within and Adjacent to the Togiak Refuge......3-40
Table 3-6 Annual Value of Bristol Bay Salmon Harvest.....................................................................................3-42
Table 3-7 Estimated Economic Significance of Activies Associated with Togiak Refuge in 1997................3-45
Table 3-8 Visitor Use at Cape Peirce.....................................................................................................................3-65
Table 3-9 Rivers Possessing Outstanding Values................................................................................................3-73
Tables in the Public Use Management Plan
Table 2-1 General Management Direction from the Togiak Public Use Management Plan.............................2-3
Table 2-2 Togiak River Commercial Sport Fishing Permit Alternatives..........................................................2-28
Table 2-3 Alternatives for the Togiak Refuge Draft Public Use Management Plan.......................................2-29
Table 2-4 Commercial Sport Fishing Guide Alternatives for the Togiak Refuge Public Use
Management Plan Revision Draft..........................................................................................................................2-31
Table 4-1 Average Unguided Float Starts: Kanektok River...............................................................................4-14
Table 4-2 Average Unguided Float Starts: Goodnews River Watershed..........................................................4-15
Tables in Appendices
Table E-1 Number of Surveyed Anglers in Each Major User Group by River ...............................................E-4
Table E-2 Percentage of Surveyed Anglers by Age Cohort.................................................................................E-4
Table E-3 Trip Planning Horizon by River.............................................................................................................E-5
Table E-4 Average Group Size and Trip Length by User Group........................................................................E-5
Table E-5 Season of Use by River...........................................................................................................................E-5
Table E-6 Rating of Visitor Motivational Factors..................................................................................................E-6
Table E-7 Significance of Potential Trip Impacts, by User Group......................................................................E-8
Table E-8 Goodnews River Angler Tolerances and Conditions Experienced (n=143)....................................E-9
Table E-9 Kanektok River Angler Tolerances and Conditions Experienced (n=225)...................................E-11
Table E-10 Togiak River Angler Tolerances and Conditions Experienced (n=42)........................................E-12
Table E-11 Relative Crowding by River................................................................................................................E-13
Table E-12 Effect of Visitor Contact with Local Residents by River...............................................................E-14
Figures
Figures in the Comprehensive Conservation Plan
Figure 1-1 National Wildlife Refuges in Alaska.....................................................................................................1-5
Figure 1-2 Togiak National Wildlife Refuge.........................................................................................................1-15
Figure 2-1 1985 Togiak Comprehensive Conservation Plan...............................................................................2-71
Figure 3-1 Togiak Refuge Generalized land Status...............................................................................................3-3
Figure 3-2 Togiak Refuge Major Drainages...........................................................................................................3-9
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Table of Contents
Figure 3-3 Arolik and Kanektok Drainage...........................................................................................................3-11
Figure 3-4 Goodnews River Drainage...................................................................................................................3-13
Figure 3-5 Togiak River Drainage........................................................................................................................3-15
Figure 3-6 Kanektok River Angler Effort............................................................................................................3-23
Figure 3-7 Goodnews River Rainbow Trout Sport Fishery Harvest and Catch.............................................3-24
Figure 3-8 Game Management Units....................................................................................................................3-35
Figure 3-9 Peak Pacific Walrus Haulout Counts at Cape Peirce, Alaska.........................................................3-37
Figure 3-10 Togiak Refuge Recreational Fishing 1990-2004.............................................................................3-56
Figure 3-11 Upper Kanektok River Guided Fishing (within Togiak Wilderness), 1990-2004.......................3-57
Figure 3-12 Upper and Lower Kanektok River Unguided Fishing, 1990-2004...............................................3-58
Figure 3-13 Upper Goodnews River Guided Fishing (within the Togiak Wilderness)...................................3-60
Figure 3-14 Unguided Fishing on the Goodnews River (All Forks, Upper and
Lower Sections) 1990-2004.....................................................................................................................................3-61
Figure 3-15 Guided Fishing on the Upper Togiak River (within the Togiak Wilderness), 1990-2004.........3-63
Figure 3-16 Wilderness Values Description Units...............................................................................................3-75
Figure 3-17 River Values........................................................................................................................................3-77
Figures in the Public Use Management Plan
Figure 2-1 PUMP Planning Units...........................................................................................................................2-5
Figure 2-2 Cape Peirce Wildlife-Viewing Area....................................................................................................2-11
Figure 2-3 Recreational Fishing Guide Use Zones..............................................................................................2-15
Figure 2-4 Recreational Fishing Guide Use Zones (Proposed in Alternative D)............................................2-25
Figures in Appendices
Figure C-1 Delineation of State-Owned Shorelands...........................................................................................C-12
Figure E-1 Opinion Toward Permit Options – All Anglers...............................................................................E-15
Figure E-2 Non-guided Float Angler Opinion Toward Permit Options..........................................................E-16
Figure E-3 Angler Opinions Toward Access Restrictions.................................................................................E-17
Figure E-4 Opinion Toward Required Pack Out of Additional Outhouses.....................................................E-18
Figure E-5 Opinion Toward Limiting Horsepower............................................................................................E-19
Figure G-1 Asserted RS-2477 Rights-of-Way.......................................................................................................G-7
xvi Togiak National Wildlife Refuge Draft Comprehensive Conservation Plan