Table of Contents

Executive Summary...............................................................................................- 1 -

Introduction...........................................................................................................- 2 -

South Baranof Wilderness....................................................................................- 3 -

Area Description .....................................................................................- 3 -

Determination of Need for Commercial Services –

Assumptions and Evaluation Criteria...................................................................- 8 -

Assumptions............................................................................................- 8 -

Evaluation Criteria ..................................................................................- 9 -

Determination of Need for Commercial Services by Activity ............................- 13 -

Activities Considered..............................................................................- 13 -

Big Game Hunting – Brown Bear.............................................- 14 -

Big Game Hunting – Deer ........................................................- 15 -

Big Game Hunting – Mountain Goat.......................................- 16 -

Camping ....................................................................................- 18 -

Floatplane Landing Tours.........................................................- 19 -

Freshwater Fishing ...................................................................- 21 -

Remote Setting Nature Tours..................................................- 22 -

Citations.................................................................................................................- 24 -

Appendix A. Management Direction...................................................................- 25 -
- 1 -

Executive Summary

This document applies to the criteria of Section 4(d)6 of the Wilderness Act of 1964 (“Wilderness 

Act”) to determine which commercial recreation service activities may be necessary in the South 

Baranof Wilderness.

Commercial services may be performed within the wilderness areas designated by this Act to the 

extent necessary for activities which are proper for realizing the recreational or other wilderness 

purposes of the areas.

This assessment pertains solely to commercial recreation service activities. It does not 

consider other commercial or noncommercial uses. The need for commercial recreation 

service activities is determined by their ability to realize the recreational or other wilderness 

purposes of the Wilderness Act and their compatibility with preserving wilderness character.

This assessment concludes with a determination of need for seven commercial recreation service 

activities in the South Baranof Wilderness. Need was determined with a set of evaluation criteria 

that assessed the ability of activities to fulfill the purposes of the Wilderness Act and 

compatibility with preserving wilderness character. Market-generated demand for conducting 

outfitter and guide activities does not, by itself, constitute a need for commercial services. 

Identification of need also considers how an outfitter and guide operation can contribute to meeting 

the Tongass Land and Resource Management Plan (USDA Forest Service 2008b) management 

objectives. The following summarizes the findings.

Determination of Need for Commercial Service Activities:

 Big Game Hunting for Brown Bear commercial service activities are necessary in the South 

Baranof Wilderness 

 Big Game Hunting for Deer commercial service activities are necessary in the South Baranof 

Wilderness

 Big Game Hunting for Mountain Goat commercial service activities are necessary in the 

South Baranof Wilderness

 Camping (including overnight use of public recreation cabins) commercial service activities 

are necessary in the South Baranof Wilderness

 Floatplane Landing Tours commercial service activities are not necessary in the South 

Baranof Wilderness

 Freshwater Fishing commercial service activities are necessary in the South Baranof 

Wilderness

 Remote Setting Nature Tours commercial service activities are necessary in the South 

Baranof Wilderness

It is important to note that a determination of need does not imply that a commercial activity will 

be authorized for all locations in the South Baranof Wilderness. This document does not fully 

address the effects (e.g. social, physical) of existing and proposed commercial uses. Decisions 

regarding the appropriate types and levels of commercial use in particular locations will be 

accomplished in compliance with the National Environmental Policy Act. Guided activities will only 

be authorized to the extent consistent with the Wilderness Act’s direction to maintain wilderness 

character.
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Introduction

The Forest Service has developed this needs assessment to determine the types of commercial 

outfitter/guide activities that could take place in the South Baranof Wilderness (SBW). A needs 

assessment is a methodology for determining if there is a ‘need’ for private enterprise to assist the 

agency in providing access, services and/or other assistance for the recreating public to enjoy 

National Forest wilderness areas. This document is tiered to the Tongass Land and Resource 

Management Plan (“Forest Plan”; USDA Forest Service 2008b) and the Determination of Need and 

Extent of Commercial Uses within Wilderness Areas on the Tongass National Forest (USDA Forest 

Service 2007). Relevant management direction is provided in Appendix A. 

This needs assessment is part of a sequential process of evaluating commercial recreation use 

on National Forest System lands within wilderness. It only pertains to commercial recreation 

activities and not to other commercial or non-commercial uses. Other aspects of administering 

commercial recreation use outside the scope, but tiered to this assessment include:

Visitor capacity is the amount of recreational use (both commercial and non-commercial) an 

area can accommodate given the desired natural conditions, visitor experiences, and 

management program. Visitor capacity is an administrative process to identify the 

reasonable amount of recreation opportunities that are consistent with management 

direction for an area. Once a capacity is determined it can be used as a tool to develop a 

proposed action for allocating commercial outfitter and guide use and environmental 

analysis.

Environmental analysis document per National Environmental Policy Act (NEPA) analyzes a 

proposed commercial outfitter and guide allocation of the overall recreation capacity and 

will establish mitigation measures that balance use with protection of the National Forest 

resource. These public planning processes inform decision makers of choices among 

alternative courses of action based upon resource capability and public input.

A prospectus may be necessary to implement NEPA decisions when demand for 

commercially guided recreation opportunities exceeds the available capacity. A prospectus 

requires commercial operators to submit bid applications that meet specific criteria. The 

Authorized Officer allocates commercial use to businesses that best meet the criteria.

Special uses permits authorize individual outfitter and guides within the determined 

allocation and according to established mitigation measures.

The need for commercial services is determined by assessing the ability of activities to be 

compatible with the Wilderness Act of 1964 (“Wilderness Act”). A determination of need may 

be found where activities fulfill the purposes of the Wilderness Act and are compatible with 

preserving wilderness character. Market-generated demand for conducting outfitter and guide 

activities does not, by itself, constitute a need for commercial services. Identification of need also 

considers how an outfitter and guide operation can contribute to meeting Forest Plan management 

objectives. 
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This needs assessment:

1. Determines the need for various activities of commercial outfitter and guide services 

based on fulfilling the purposes of the Wilderness Act and compatibility with preserving 

wilderness character within the SBW. 

2. Is an internal analysis.

3. Does not analyze or mitigate potential environmental impacts from commercial 

outfitting and guiding activities. 

4. Does not determine, establish, allocate or authorize commercial outfitter and guide 

services.

Outfitter/guides can serve as important partners for the Forest Service. In particular, they can 

provide wilderness awareness and Leave No Trace education for visitors that may not be reached by 

other educational efforts. Outfitter/guides can also assist with monitoring activities, such as 

reporting invasive plants and illegal activities; these activities help the Forest Service achieve a higher 

level of wilderness stewardship. 

Existing outfitter/ guide activities occurring in SBW are authorized under the Shoreline 

Outfitter/Guide Record of Decision and Final Environmental Impact Statement (USDA Forest Service

2004). This decision is currently under review. 

South Baranof Wilderness

Area Description

The South Baranof Wilderness (SBW; Figure 1) includes 319,568 acres of coastal temperate 

rainforest. Numerous bays along the area’s rugged shoreline cut deep into the mountainous interior 

of Baranof Island, providing safe anchorage for boats in an otherwise exposed ocean environment. 

The community of Sitka lies approximately 19 miles to the north of the SBW and Port Alexander is 

approximately 20 miles to the south. 

At 4,528 feet, Mount Ada is the highest peak in the SBW. On the eastern side of Baranof Island, 

Mount Ada’s peak lies less than three miles from saltwater. Permanent snowfields and active 

glaciers blanket the higher elevations and several high-elevation lakes offer outstanding recreation 

opportunities. The SBW is part of the temperate rainforest that extends along the Pacific coastline 

from northern California to Cook Inlet, Alaska. Most of the area's lower-elevations offer old-growth 

western hemlock and Sitka spruce, with a scattering of yellow cedar and mountain hemlock. 

SBW receives an average of 200 inches of precipitation per year with temperatures ranging from 

mid-20s to high 60s. Wildlife includes brown bears, Sitka black-tail deer, mountain goat, mink, 

marten, and river otters; trout and salmon (seasonally); as wells as eagles and shorebirds. Seals, sea 

lions, whales, and a large population of sea otters are often seen offshore, and crab, shrimp, herring, 

salmon and halibut are harvested from the ocean.
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The area supports a full range of life zones, from the marine to the alpine. It is this combination of 

rugged mountains, glaciers, dense rainforest, and the sea that gives the SBW its variety and high 

value as "wilderness."

Figure 1. South Baranof Wilderness vicinity map.
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Access

Weather, marine conditions, and terrain make this remote area difficult to access. Much of the high 

mountains are permanently snow covered and the scenery is dramatic. Access to highelevations lakes is difficult due to the steep terrain, particularly in the northern portion of the 

wilderness. Motorized boat, floatplane and kayak are the methods of access primarily used to visit 

the SBW. Most of the upland use in SBW is accessed by floatplane. Visitors can hire air taxi 

operators to provide transport services to lakes without a Forest Service special use permit. Upland 

areas are used for hunting, fishing, overnight use of public recreation cabins, and hiking. It is 

possible, though difficult, to access some of the lakes by foot from saltwater. There is also increasing 

interest in cross-island hiking trips and pack-rafting some of the interior lakes. 

The long and narrow steep-sided bays on the west side provide a limited number of protected 

anchorages, resulting in a concentration of use at certain locations. The northwestern portion of the 

wilderness is comprised of large and small islands offering more protected passages for boaters, 

providing relatively easy access for the skilled skiff operator or kayaker due to proximity to Sitka. 

The east side provides several protected bays for taking a break from the open waters of Chatham 

Strait, and Red Bluff Bay is a common stopping point for those traveling inside waters around 

Admiralty Island. 

There are concerns about the impacts of motorized transport, particularly floatplanes and 

motorized boats, in some areas of the SBW. The Alaska National Interest Lands Conservation 

Act of 1980 (ANILCA) allows for the use of motorized boats and planes to access SBW, but does 

not discuss their use for commercial outfitting and guiding purposes. Ultimately, the Forest 

Service must ensure that the area is administered for the use and enjoyment of the American 

people leaving it unimpaired for future use and enjoyment as wilderness while protecting the 

area and preserving its wilderness character (Wilderness Act, Section 2(a)).

Visitor Use

South Baranof Wilderness provides a diversity of recreation, subsistence, commercial and personal 

use opportunities. Most activities take place in, and depend on, settings that are primarily 

undeveloped. The entire area is wild and remote, with no road access available. Recreation facilities 

are limited, consisting of three public recreation cabins and one short system trail between Plotnikof 

Lake Cabin and the south end of Davidof Lake. Plotnikof Lake Cabin receives the most use of the 

three with an average of 15 nights annually (2009-2013). Avoss Lake Cabin receives 13 nights of use 

on average (2009-2013) followed by Davidof Lake Cabin with 6 nights(2009-2013). 

Recreation activities cover a broad spectrum of uses, including sightseeing, wildlife viewing, fishing, 

hunting, kayaking, camping, and hiking. Some of the lakes support a good trout sport fishery and 

most streams and inlets support good salmon sport fishing. Port Banks, in particular, is known for a 

spring steelhead run, early summer coho run, and a fall run of coho making this a popular location 

throughout the fishing season. Politofski Lake Creek and Sandy Bay also support popular steelhead 

fisheriesin the spring. However, most fishing in the area is commercial and occurs in the saltwater 

adjacent to the wilderness. Marine passages and bays are used for boating, crabbing, shrimping, and 

personal and commercial fishing. 
- 6 -

Subsistence Use

On the eastern side of Baranof Island, the people of Kake and Angoon have traditional ties to this 

area and continue to depend on resources within the wilderness for a part of their livelihood. 

Sockeye salmon are harvested for subsistence purposes from Gut Bay and the Falls Lake system. The 

west side of the wilderness is used by residents of Sitka and Port Alexander for sockeye salmon from 

the Benzeman Lake and Politofski Lake streams. Table 1 shows the subsistence fishing seasons for 

these areas:

Table 1. Subsistence Fishing Seasons.

Stream Subsistence Fishing Season

Falls Lake June 1 – August 15

Gut Bay June 1 – July 20

Necker Bay June 1 – August 31

Politofski June 1 – July 31

Subsistence hunting and trapping occurs seasonally by the above mentioned communities. These 

activities are not intensive on the east side because of game animals and furbearers that are much 

closer to Kake and Port Alexander. 

Historic Use 

Unlike other parts of the Tongass National Forest, the area contained within the SBW boundary does 

not have an active mining history. There have been uses related to the early commercial fishing 

industry in the area. These include a cannery and herring reduction plant in Red Bluff Bay operating 

through the 1930’s. Remains of this activity can be seen on the ground and draw some visitation to 

the site. Whale Bay area saw heavy commercial fishing use starting in the 1920s and a store was 

established during that timeframe in Port Banks. The old structure is still visible. In addition, historic 

cabin structures have been found in the Yamani Islets and on Lodge Island. The sites that still have 

evidence of past use have the potential to draw visitors interested in exploring historic ruins. 

Commercial Outfitter/Guide Use

Thirty-five outfitter/guides were permitted and providing visitor services in SBW between 2008 and 

2012; their activities provide services for forest visitors that are unfamiliar with southeast Alaska’s

wilderness. Authorized outfitted and guided activities include big game hunting for brown bear, 

mountain goat, and deer; remote setting nature tours (including hiking, beach use, and wildlife 

viewing), camping, and freshwater fishing. There was also a small amount of waterfowl and small 

game hunting that occurred in association with brown bear hunts.

Outfitter/guides are required to submit use reports annually that identify the use location, type of 

use, number of clients, number of groups, and length of stay at each location. From this information, 

the number of service days used at each location is calculated. A service day is defined as a day, or 

any part of a day, on National Forest System lands for which an outfitter/guide provides goods or 

services, including transportation, to a client. Actual use reports provide an effective mechanism to 

track and monitor outfitter and guide use in wilderness. Table 2 shows the type and amount of 

outfitter/guide use that occurred on SBW between 2008 and 2012.
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Table 2. Outfitter and guide activities occurring in SBW, 2008-2012.

Activity 2008 2009 2010 2011 2012

Average Annual Use 

2008-2012

Big Game Hunting –

Brown Bear 

53 88 105 107 46 80

Big Game Hunting –

Deer

0 0 1 0 2 1

Big Game Hunting –

Mountain Goat

59 17 46 0 4 25

Camping 35 84 44 132 54 70

Freshwater Fishing 251 293 244 206 225 244

Remote Setting Nature 

Tours (including hiking, 

wildlife viewing, 

photography, and beach 

use)

267 115 111 297 212 200

1

A service day is defined as a day, or any part of a day, on National Forest System lands for which an outfitter or 

guide provides goods or services, including transportation, to a client.

Freshwater fishing and remote setting nature tours (including hiking, wildlife viewing, photography, 

and beach use) are the most popular guided activities occurring in the SBW. Brown bear hunting,

camping, and mountain goat hunting are also popular guided activities. The Forest Service has also 

received proposals for guided use at low-use public recreation cabins in SBW, but this use has not 

been authorized.

Nineteen guides provided freshwater fishing trips in the SBW between 2008 and 2012. Most 

freshwater fishing is accessed by motorized boat and occurs within a 1⁄2-mile distance of the 

shoreline, in the creeks and bays supporting anadromous fish populations. Gut Bay Creek, Politofski 

Lake Creek, Port Banks, Red Bluff Bay Creek, and Sandy Bay are the most popular guided fishing 

locations. Port Banks and Politofski Lake Creek support a steelhead run during April and May, which 

draws catch-and-release fly fishing operators. A small amount of fishing also occurs on Brentwood, 

Pass, Plotnikof, Politofski, Rezanof, and Upper Brentwood Lakes. One operator has been authorized 

to provide fly-in fishing trips in SBW. There have been several requests from guidesfor fly-in access 

for fishing and remote setting nature tours at lakes in the SBW, particularly lakes supporting 

steelhead populations. 

Twenty-three guides provided guided remote setting nature tours (includes hiking, wildlife viewing, 

photography, and beach use) in SBW between 2008 and 2012. The most popular remote setting 

nature tour activity in SBW is hiking at Red Bluff Bay. Guides have reported using approximately 96 

service days per year at Red Bluff Bay for remote setting nature tours activities. Other locations of 

interest include Gut and Patterson Bays.

Guided brown bear hunters typically access the SBW via motorized boat and camp onboard the boat 

during their hunt. In spring, they scan the shoreline beaches from their vessel before beginning their 

stalk. More use occurs in the uplands during the fall season when hunters often travel by foot along 
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streams. Floatplane access for brown bear hunting at lakes in SBW has been authorized in the past, 

but all reported use (2008-2012) has occurred in coastal inlets and bays accessed from saltwater. 

Guided mountain goat hunts also occur in SBW; popular locations include Crawfish, Hoggatt, and 

Red Bluff Bays. A small amount of guided mountain goat hunting has been reported in the uplands of 

Politofski Lake. The majority of goat hunts are boat-based, with occasional use of spike camps in the 

uplands. Floatplane access for guided mountain goat hunting at inland lakes has been authorized 

and reported in the past. Most hunts last approximately seven days and hunters may hike to the 

alpine once or twice during a hunt. Camps are typically occupied for a few nights each season. Nonguided hunters typically access high lakes in SBW for goat hunting in the early fall before guides 

begin conducting hunts, but there is some overlap in November. Access to herds is difficult and use 

tends to be concentrated at a few areas. 

A small amount of guided deer hunting occurs in association with guided brown bear and mountain 

goat hunts; clients are given the option of including a deer hunt as part of a package, with the target 

species still being brown bear or mountain goat. In recent years, however, there has been an 

increased interest in guided deer-only hunting in SBW, with two guides currently authorized in SBW 

for deer-only hunts. 

Three outfitter/guide companies have offered guided camping tours in SBW (2008-2012). Camping is 

usually offered as part of a multi-day, kayak- or motorized boat-based excursion and occurs along 

the shoreline of Baranof Island and the smaller, surrounding islands. Actual use locations include 

Patterson Bay, Rakof Islands, Lodge Island, Cedar Pass, West Crawfish Inlet, and Beauchamp Island. 

There have also been requests to utilize the existing public-use cabins for fly-in camping excursions

at the lakes within SBW. 

Determination of Need for Commercial Services –

Assumptions and Evaluation Criteria

Assumptions

The following are assumptions made to aid in the assessment of the need for outfitter/guide 

operations:

 Some people would not visit the SBW without an outfitter or guide because they lack the 

skills, knowledge, equipment, or ability to do so on their own, or they have safety 

concerns.

 There will be a continued demand for special use permits to conduct outfitter and guide 

operations in the SBW. Access points and use locations are generally limited to safe 

harbors and accessible beaches. Increased demand and use levels at popular locations 

are issues to consider.

 Overall visitor use is expected to remain at current levels or continue to increase (Forest 

Plan). There may also be shifts in use patterns (timing and location) and user types (hikers, 

backpackers, campers, day users, etc.). 
- 9 -

 Visitor conflicts have the potential to increase if overall use increases. Conflicts are already 

occurring in some areas on the district, particularly between guided bear hunters and 

visitors participating in other types of activities (e.g. freshwater fishing, remote setting 

nature tours). Guided and unguided groups tend to participate in similar activities at 

similar locations. 

Evaluation Criteria

The following criteria were used to determine the public need for commercial outfitter and guide 

services in SBW:

 Wilderness Dependence

 Potential Impacts to Wilderness Character

 Knowledge, Skills, and Equipment Needed

 Visitor Safety

 Outfitter and Guide Demand and Utilization

 Public Purpose & Management Objectives

Wilderness Dependence

The Forest Plan directs managers to “Avoid authorizing uses that are not dependent upon 

Wilderness resources or uses for which reasonable alternative locations exist outside of Wilderness” 

(USDA Forest Service 2008b, p.3-12). Determination of need is based on the extent to which the 

proposed service can or cannot be offered on non-wilderness National Forest System (NFS) 

lands or non-NFS lands, including private or other public lands. Wilderness dependence may 

also be considered for 1) trips in which solitude or primitive and unconfined recreation are the 

central components of the experience; and 2) visits to ecosystems, geological features, or 

physical resources found predominantly in wilderness for recreational, scientific, or educational 

purposes.

This needs assessment is one part of a sequential process of administering commercial 

recreation use on NFS lands within wilderness. Applications for outfitter and guide use in SBW

must include adequate justification for why the proposed activity requires the use of wilderness.

Potential Impacts to Wilderness Character 

Determination of need is based on the extent to which outfitter and guide activities have the 

potential to degrade or improve wilderness character. The Wilderness Act specifies that “each 

agency administering any area designated as wilderness shall be responsible for preserving the 

wilderness character of the area” (Section 4(b)). The wilderness character of SBW is largely intact 

due to the area’s remoteness, challenging terrain, and limited means of access. There are, however, 

some areas where wilderness character is affected by recreational use. Section 2(c) of the

Wilderness Act defined four qualities of wilderness character that managers shall try to preserve, 

including the following: 
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 Untrammeled – The wildernessis essentially unhindered and free from modern human 

control or manipulation. This quality describes the degree to which management actions 

“hinder” or “control” the land and natural processes. For example, the wilderness area 

has remained free of management activities that have altered natural systems, such as 

dams or regulations that govern visitor activities. Outfitter and guide activities generally 

do not affect the untrammeled quality of wilderness character. 

 Natural - Wilderness ecological and evolutionary systems are substantially free from the 

effects of modern civilization. This quality describesthe ecological effects of human 

activities on vegetation, soils, air quality, or other physical and biological components of 

wilderness. Outfitter and guide activities have the potential to impact the natural qualities 

of wilderness character.

The natural quality of wilderness character in SBW islargely unaffected by past and 

present human activity; however there are some noted instances of effect:

o Three non-native plant species, covering less than 0.1 acres, have been 

documented. 

o Red squirrels, marten, beaver, and mountain goat have been introduced. Coho 

salmon were stocked in Banner and Blanchard Lakes in the 1980s. 

o In 1982, a permit was issued to the Tlingit and Haida Fisheries Development 

Corporation for the construction of a fish hatchery in Sandy Bay at the outlet of 

the Maksoutof River. The hatchery was constructed in 1982. Due to various 

problems which occurred during the hatchery's operation, the facility closed in 

1985. In 1993, most of the remains of the hatchery were removed and the 

ground was recontoured to eliminate the man-made berms and rectangular 

race-way holes. Some materials still remain on site.

o Forest Service employees have documented vegetation impacts (primarily tree 

cutting) at Port Banks and Sandy Bay.

 Undeveloped - Wilderness retains its primeval character and influence and has minimal 

evidence of modern human occupation or modification. This quality describes the effects 

of structures, habitations, or other evidence of human presence or occupation. 

The past and current presence of humans is evident in some parts of SBW. Existing 

developments include the Falls Lake fish weir and Patterson Bay net pen shoreties. The 

remains of past developments include the Sandy Bay hatchery as well as a cannery and 

herring reduction plant in Red Bluff Bay operating through the 1930’s. Whale Bay area 

saw heavy commercial fishing use starting in the 1920s and a store was established during 

that timeframe in Port Banks. The old structure is still visible. In addition, historic cabin 

structures have been found in the Yamani Islets and on Lodge Island. 

The Forest Service maintains three public recreation cabins in SBW, including the Avoss 

Lake, Davidof Lake, and Plotnikof Lake Cabins. Two additional cabins at Rezanof and 

Maksoutof Lakes exist, but are identified for decommission and removal. Impacts at 

cabins and dispersed campsites include tree damage, litter, fire ring construction, and 

social trails. Outfitters and guides are required to practice Leave No Trace to minimize 

these impacts. 
- 11 -

In general, there is less evidence of human occupation or modification as one travels 

inland from the shoreline zone. Outfitter and guide activities that require the use of 

temporary or permanent structures, or create noticeable impacts on the ground, have the 

potential to further impact the undeveloped quality of wilderness character in SBW. 

 Outstanding opportunities for solitude or a primitive and unconfined type of recreation. 

Wilderness provides outstanding opportunities for people to experience natural sights and 

sounds, solitude, freedom, risk, and the physical and emotional challenges of self-discovery 

and self-reliance. 

Noise associated with motorized transport (e.g. motorized boats and float planes) has the 

potential to diminish wilderness character by reducing opportunities for solitude. Some 

parts of the wilderness lie on the path of weekly flights heading south from the 

community of Sitka as well as daily jet flights in the region, which affect noise levels in the 

southern portion of SBW, particularly during the summer months. While some motorized 

activities occur in the air and on the marine waters adjacent to SBW and are outside of 

Forest Service jurisdiction, other activities (e.g. floatplane landings on lakes and shoreline 

excursions associated with motorized transport) are within Forest Service jurisdiction and 

require a special use authorization.

Red Bluff Bay is a popular location;social encounter monitoring during late June (2012 -

2013) and late July (2011-2013) indicates visitors can expect to encounter on average 

eight or more groups per day in the bay. The majority of this use is occurring on the 

adjacent saltwater. Land access that occurs is typically via motorized boat, with some 

access via kayak off nearby mother ships. 

Competition for use at lakes and streams occasionally occurs, particularly during the 

overlapping brown bear hunting season (April – May) and steelhead fishing seasons(April 

- June) at Port Banks, Politofski Lake Creek, and Sandy Bay, coho season (June – July and 

September-October) at Port Banks,sockeye season (June – August) at Gut Bay, Necker 

Bay, and Politofski Lake Creek, and early in the mountain goat hunting season (AugustOctober). 

Opportunities for solitude are greater in the interior and northern portions of the SBW; 

upland areas receive fewer visitors due to the lack of facilities and difficult lake landings. 

The terrain is mountainous and generally without facilities or trails. 

 Other Features of Value. This quality pertains to distinct features fundamental to the 

wilderness character that are not contained within the other qualities. This aspect is based 

on the last clause of Section 2(c) in the Wilderness Act, that a wilderness “may also 

contain ecological, geological, or other features of scientific, educational, scenic, or 

historical value.” This fifth quality is unique to an individual wilderness based on the 

features that are inside that wilderness. These features typically occur only in specific 

locations within a wilderness and include cultural resources, historical sites, 

paleontological sites, or any feature not in one of the other four qualities that has 

scientific, educational, scenic, or historical value. The following unique qualities are 

associated with SBW:

o Red Bluffs – Red Bluff Bay is one of the primary attractions in SBW due to the scenic 

mountain landscape surrounding the bay, waterfalls, brown bear viewing in the 
- 12 -

estuary, and the “red bluffs” rising above the entrance to the bay. The bluffs are a 

unique geologic feature of the area composed of serpentinites and serpentinized 

periodotites.

o Glacial Features- Unique to Baranof Island, among the hundreds of islands which 

make up the southeast Alaska panhandle, are it's active glaciers. Associated with 

these glaciers are narrow, sharp ridges between U-shaped glacial valleys and scenic 

fiords. Numerous rocky crests, sharp ridges, horns, aretes and cirques are found at 

higher elevations. Snow can be seen year round on higher summits with cirque 

glaciers and small permanent icefields, especially in the north half of the area. 

o Brown Bear - Admiralty, Baranof, and Chichagof Islands together are considered 

unique due to the singular large predator (brown bear) dominating these landscapes. 

o Historic and Pre-Historic Values- Since pre-historic times the lands within the SBW 

have supported a broad range of human use, development and occupancy. 

Thousands of years ago South Baranof became an area of seasonal habitation by 

local native peoples. Little is known about the prehistoric use of the present-day 

wilderness. There are a few documented prehistoric sites, but surveys have been 

very limited. Later, Russians and Americans arrived. Despite the continual presence 

by humans, the wilderness character of the area remained virtually uncompromised 

until the early 1900s when commercial fishing and whaling operations occurred and 

facilities in support of these activites were established (e.g., cannery, herring 

reduction plant). Since 1950, the facilities have been discontinued and many of the 

sites are being reclaimed by nature.

o Subsistence Use - Gathering wild food and other items has been an integral part of 

the way of life in southeast Alaska for thousands of years. The people of Kake and 

Angoon have traditional ties to this area and continue to depend on resources within 

the wilderness for a part of their livelihood. Sockeye Salmon are harvested for 

subsistence purposes from Gut Bay and the Falls Lake system. The west side of the 

wilderness is used by residents of Sitka and Port Alexander for taking sockeye salmon 

from the Benzeman Lake and Politofski Lake streams. Subsistence hunting and 

trapping occurs seasonally by the above mentioned communities. These activities 

are not intensive on the east side because of game animals and furbearers that are 

much closer to Kake and Port Alexander.

Knowledge, Skills, and Equipment Required

Determination of need is based on the degree to which outfitter and guide services are needed by 

the public because 1) the specific skills required for activities appropriate to the area require 

substantial time and/or talent to learn; 2) participating in the activity requires acquisition and use of 

expensive, specialized equipment for which the public could not, or ordinarily would not, expend the 

time and money; and 3) the skills, knowledge, and equipment required are so unique that the use of 

an outfitter or guide is almost a prerequisite if area visitors are to have the opportunity to participate 

safely, while still achieving a level of self-reliance and challenge in the activity. Outfitters and guides 

possess knowledge about the local area and wilderness resource that may be required to safely 

access the area and minimize resource damage and visitor conflicts. This knowledge may include 

knowing where, and by what method, to best access and travel through an area.
- 13 -

Visitor Safety

Determination of need is based on the degree to which outfitter and guide services are needed by 

the public because of the special skills, knowledge, and equipment needed for a reasonable level of 

visitor safety. Without guide assistance, members of the public and visitors to the area may seriously 

endanger their health or lives, or would not visit the wilderness area due to safety concerns. 

Outfitter and guide services should not diminish other wilderness visitors’ opportunities to 

experience a degree of challenge and risk, and/or sense of self-reliance. 

Outfitter and Guide Demand and Utilization

Determination of need is based on the amount of demand that exists for an outfitter and guide 

activity and the extent to which the activity is already authorized, and the amount of use currently 

occurring. Market-generated demand for conducting outfitter and guide activities does not, by itself, 

constitute a need for commercial services. However, the determination of public need for a service is 

informed by examining current and past use trends.

Public Purposes / Management Objectives

The Wilderness Act specifies that “wilderness areas shall be devoted to the public purposes of 

recreational, scenic, scientific, educational, conservation, and historical use” (Section 4(b)). 

Determination of need is based on the extent to which guide services help fulfill these public 

purposes of wilderness. Determination of need is also based on the degree to which outfitters and 

guides help the Forest Service meet management objectives to 1) provide opportunities for 

public use, enjoyment, and understanding of the wilderness through experiences that depend 

upon a wilderness setting and are consistent with management of the area as wilderness, and 

2) provide opportunities for special populations, including persons with disabilities and the 

elderly, to access certain areas and participate in recreational and educational activities. Guides 

can serve as important partners for the Forest Service by providing wilderness awareness 

education and training in outdoor skills and ethics. Consideration will also be given to the 

compatibility of commercial use with use by the general public. 

Determination of Need for Commercial Services by Activity

Activities Considered

A review of past and current outfitter and guide use in the SBW provided a starting point for this 

needs assessment. Based on past proposals and actual use, the following commercial outfitter and 

guide activities were considered:

 Big Game Hunting for Brown Bear

 Big Game Hunting for Deer

 Big Game Hunting for Mountain Goat 

 Camping (including overnight use of public recreation cabins)

 Floatplane Landing Tours 

 Freshwater Fishing

 Remote Setting Nature Tours
- 14 -

This assessment may be revised in the future as recreation use patterns change and demandsfor 

new outfitter/guide services are identified. 

Big Game Hunting – Brown Bear

Brown bear hunting includes day use and overnight activities in the wilderness. Activities incidental 

to the primary brown bear hunt may involve camping, remote setting nature tour activities, 

freshwater fishing, or hunting for lower value game and waterfowl species.

Evaluation Criteria Evaluation of Need

Wilderness Dependence

Guide Use Areas (GUAs) 04-01 and 04-02 encompass the SBW. Both GUAs have large tracts 

of non-wilderness National Forest System (NFS) lands with suitable bear habitat. There is 

also some municipal land at Green Lake, and along the Green Lake Road, however these

areas are characterized by a more urban setting. City land may also be available at Goddard 

Hot Springs, but this area receives a large amount of visitation and may not provide the 

visitor experience sought by guided bear hunters. 

Wilderness Character 

 Natural Quality: The majority of guided hunting in SBW and surrounding areas on the 

Tongass National Forest is boat-based and results in minimal impacts to vegetation, soil, 

and water resources. Guided groups typically stay aboard a boat and hike up streams and 

very little use occurs in the uplands. ADF&G provides recommendations, population 

estimates, and historical harvest data to help the Forest Service determine the number of 

guided hunts an area can sustain. 

 Undeveloped Quality: Guided hunting groups have the potential to impact the 

undeveloped quality of wilderness if tent platforms are constructed or remain in place 

when not in use.

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality: 

Guided groups also have the potential to impact opportunities for solitude, particularly if 

access is by motorized boat or floatplane, and use occurs in popular areas. Conflicts have 

been reported between guided bear hunting groups and other permitted users, such as 

freshwater fishing and remote setting nature tour groups. Conflicts with unguided visitors 

are less common as brown bear hunting is not a popular unguided activity. 

 Other Features of Value

o Brown Bear – ADF&G manages the brown bear population to ensure long-term 

sustainability of the resource.

Skills, Equipment, and 

Knowledge Required 

Visitors primarily access the SBW using motorized boats or float planes. Outfitters and 

guides can provide the skills, equipment, and knowledge required to safely access and enjoy 

the wilderness. The Alaska Department of Fish and Game (ADF&G) requires non-resident 

brown bear hunters to be accompanied by a registered guide or a relative within the second 

degree of kin. The knowledge and skills required to identify male bears and properly care for 

the animal carcass in accordance with State law are beyond the average person’s abilities. 

Visitor Safety

Southeast Alaska’s weather conditions and tidal fluctuations can be extreme throughout the 

year. Exposure to wind and cold weather poses a threat to visitor safety. Wildlife 

encounters, particularly with brown bear, also pose a risk to safety. Guides know how to 

track and retrieve animals, carry radios and/or satellite phones for communication, and 

carry back-up rifles in case of emergency.

Outfitter and Guide 

Demand and Utilization

There is consistently high demand for guided brown bear servicesin SBW. An average of 80 

service days wasreported annually for this activity (2008-2012). Most authorizations are 

being fully utilized by existing guides. There are also several prospective applicants should 

more guided brown bear hunts become available. Most guides are booked years in advance 

for these hunts. 

Public Purposes & Special 

Management Objectives

Guided brown bear hunting contribute to the recreational purpose of wilderness. Guides can 

also help the ADF&G male to female harvest ratio objectives and ensure that hunters care 
- 15 -

for and process carcasses in accordance with State law. Guide hunt records also help track 

harvest locations and success rates, contributing to better management of bear populations.

Guides can also teach clients about low-impact skills.

Outfitter/guides provide access to brown bear hunting opportunities in SBW that would 

otherwise be unavailable to many members of the general public because of the high level of 

knowledge, skills, and equipment needed to safely conduct a remote hunt. Outfitters and 

guides also help the Forest Service meet special management objectives for dispersing impacts 

related to nonresident harvest. This activity contributes to the recreational purpose of 

wilderness and has little resource concerns. These factors, along with the State of Alaska’s 

requirement for non-resident hunters to be accompanied by a licensed guide, indicate there is a 

need for outfitter/guide brown bear hunting services in SBW. Guides can educate clients about 

low-impact skills to minimize impacts to the natural and undeveloped qualities of wilderness 

character.

Big Game Hunting – Deer 

Deer hunting includes day use and overnight activities in the wilderness. Activities incidental to the 

primary deer hunt may involve camping, remote setting nature tour activities, freshwater fishing, or 

hunting for lower value game and waterfowl species. 

Evaluation Criteria Evaluation of Need

Wilderness Dependence

Guide Use Areas (GUAs) 04-01 and 04-02 encompass the SBW. Both GUAs have large tracts 

of non-wilderness National Forest System (NFS) lands with suitable deer habitat. A limited 

amount of private land (Shee Atika Incorporated) could be available in Katlian Bay. 

Permission would need to be secured. There is also some municipal land at Green Lake, and 

along the Green Lake Road, however these areas are characterized by a more urban setting. 

City land may also be available at Goddard Hot Springs, but this area receives a large amount 

of visitation and may not provide the visitor experience sought by guided deer hunters.

Wilderness Character 

 Natural Quality: The majority of guided hunting in SBW and surrounding areas on the 

Tongass National Forest is boat-based and results in minimal impacts to vegetation, soil, 

and water resources. The majority of deer hunts are boat-based, with occasional use of 

spike camps in the uplands. Camps are typically occupied for a few nights each season, 

but because they are located in alpine areas, impacts could become noticeable with a 

small amount of use. ADF&G provides recommendations, population estimates, and 

historical harvest data to help the Forest Service determine the number of guided hunts 

an area can sustain.

 Undeveloped Quality: Guided hunting groups have the potential to impact the 

undeveloped quality of wilderness if tent platforms are constructed or remain in place 

when not in use. 

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality:

Guided groups have the potential to impact opportunities for solitude, particularly if 

access is by motorized boat or floatplane, and use occurs in popular areas. Guided 

hunting groups typically consist of 2-4 hunters plus guides. Occasionally two groups will 

camp together and hunt different areas. Due to the nomadic approach taken for deer 

hunting, and the small size of groups involved, the potential for visitor conflicts is

minimal. Currently, conflicts are uncommon with guided deer hunters and non-guided or 

subsistence hunters due to the limited amount of guided use that has occurred. 

 Other Features of Value: 

o Subsistence use has historically occurred in this wilderness area. If demand for 

guided deer hunting increases, consideration will need to be made for 

subsistence users.
- 16 -

Skills, Equipment, and 

Knowledge Required 

Visitors primarily access the SBW using motorized boats or float planes. Outfitters and 

guides can provide the skills, equipment, and knowledge required to safely access and enjoy 

the wilderness. A guide can ensure that State regulations and ethical hunting procedures are 

followed. Guides are also knowledgeable about deer behavior and where conflicts with 

unguided visitors may occur. There is no State requirement for a registered guide for deer 

hunting.

Visitor Safety

Southeast Alaska’s weather conditions and tidal fluctuations can be extreme throughout the 

year. Exposure to wind and cold weather poses a threat to visitor safety. Wildlife 

encounters, particularly with brown bear, also pose a risk to safety. There have been 

documented incidents of deer hunters being attacked by brown bear. Guides carry radios 

and/or satellite phones for communication and back-up rifles in case of emergency. 

Outfitter and Guide 

Demand and Utilization

Between 2008 and 2012, there was a low level of demand for guided deer hunting. Most 

guided deer hunting occurs as incidental take to a bear or goat hunt, or as part of 

combination hunt for bear and deer. Five permits have been issued authorizing 38 deer 

hunts; only two of these were exclusively for deer hunting. None of these permits has been 

fully utilized. Recently, there has been an increased demand for adding deer hunts to 

existing big game hunting permits. 

Public Purposes & Special 

Management Objectives

Guided deer hunting contributes to the recreational purpose of wilderness. Guide hunt 

records help track harvest locations and success rates, contributing to better management 

of deer populations. Guides can also teach clients about low-impact camping and hiking 

skills.

Outfitter/guides provide access to deer hunting opportunities in SBW that would otherwise be 

unavailable to many members of the general public because of the high level of knowledge, 

skills, and equipment needed to safely conduct a remote hunt. Outfitters and guides also help 

the Forest Service meet special management objectives for dispersing impacts related to 

nonresident harvest. This activity contributes to the recreational purpose of wilderness and 

results in limited impacts to Forest resources, including wilderness character. These factors 

indicate there is a need for outfitter/guide deer hunting services in SBW. Guides can educate 

clients about low-impact camping and hiking skills to minimize impacts to the natural and 

undeveloped qualities of wilderness character.

Big Game Hunting – Mountain Goat 

Mountain goat hunting includes day use and overnight activities in the wilderness. Activities 

incidental to the primary goat hunt may involve camping, remote setting nature tour activities, 

freshwater fishing, or hunting for lower value game and waterfowl species. 

Evaluation Criteria Evaluation of Need

Wilderness Dependence

The majority of accessible goat herds on National Forest System (NFS) lands within the Sitka 

Ranger District occur outside of wilderness, particularly in the area north of Sitka. These nonwilderness NFS lands are also more heavily used by local residents. With the exception of 

Katlian Valley and Medvejie, there are no private lands in the vicinity of SBW where goats 

occur during the hunting season. 

Wilderness Character 

 Natural Quality: ADF&G provides recommendations, population estimates, and historical 

harvest data to help the Forest Service determine the number of guided hunts an area 

can sustain. The majority of goat hunts are boat-based, with occasional use of spike 

camps in the uplands. Hunts generally last approximately seven days and hunters may 

hike to the alpine once or twice during a hunt. Camps are typically occupied for a few 

nights each season, but because they are located in alpine areas, impacts could become 

noticeable with a small amount of use. 
- 17 -

 Undeveloped Quality: Guided hunting groups have the potential to impact the 

undeveloped quality of wilderness if tent platforms are constructed or remain in place 

when not in use. 

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality:

Guided groups have the potential to impact opportunities for solitude, particularly if 

access is by motorized boat or floatplane, and use occurs in popular areas. Guided goathunting groups typically consist of one hunter and one or two guides. Occasionally two 

groups will camp together and hunt different areas. Due to the nomadic approach taken 

for goat hunting, and the small size of groups involved, the potential for visitor conflicts is

minimal. Local hunters typically access high lakes in SBW for goat hunting in the early fall 

before guides begin conducting hunts, but there is some overlap in November. Access to 

herds is difficult and use tends to be concentrated at a few areas. Potential for conflicts 

exist at Lake Diana and Crawfish Inlet where both guided and unguided groups hunt. This 

has become more of an issue in recent years as hunting seasons have closed early due to 

more restrictive nanny harvest. Goat hunting guides have shifted their use patterns to 

earlier in the season in order to be more assured of the opportunity to hunt with their 

clients. 

Skills, Equipment, and 

Knowledge Required 

Visitors primarily access the SBW using motorized boats or float planes. Outfitters and 

guides can provide the skills, equipment, and knowledge required to safely access and enjoy 

the wilderness. The Alaska Department of Fish and Game (ADF&G) requires non-resident 

goat hunters to be accompanied by a registered guide or a relative within the second degree 

of kin. Goat hunting in Southeast Alaska is substantially different than hunting in other 

states. Hunters need to be skilled in identifying and stalking goats in a dynamic and 

challenging environment. It is also important that they understand how to identify males 

and females and are familiar with Guide Use Area boundaries identified by the State. A guide 

can ensure that State regulations and ethical hunting procedures are followed. 

Visitor Safety

Southeast Alaska’s weather conditions and tidal fluctuations can be extreme throughout the 

year. Exposure to wind and cold weather poses a threat to visitor safety. Wildlife 

encounters, particularly with brown bear, also pose a risk to safety. Guides know how to 

track and retrieve animals, carry radios and/or satellite phones for communication, and 

carry back-up rifles in case of emergency. Mountain goat hunting is one of the most 

dangerous guided activities offered in Alaska. Hunts are typically carried out in very 

hazardous terrain where the risk of injury from slips, trips, and falls is substantial. 

Outfitter and Guide 

Demand and Utilization

There are more requests for guided mountain goat hunting in SBW than can be 

accommodated. ADF&G has population concerns and authorized hunts have been kept at a 

low number. An average of 25 service days wasreported annually for this activity (2008-

2012). Existing authorizations are being fully utilized by guides. Most guides are booked 

years in advance for these hunts. 

Public Purposes & Special 

Management Objectives

Guided mountain goat hunting contributes to the recreational purpose of wilderness, 

although only a small segment of the population is willing or physically able to participate in 

this activity. Guides can help the ADF&G male to female harvest ratio objectives and ensure 

that hunters care for and process carcasses in accordance with State law. Guide hunt records 

also help track harvest locations and success rates, contributing to better management of 

goat populations. Guides can also teach clients about low-impact camping and hiking skills. 

Outfitter/guides provide access to mountain goat hunting opportunities in SBW that would 

otherwise be unavailable to those members of the general public interested in this activity 

because of the high level of knowledge, skills, and equipment needed to safely conduct a 

remote hunt. Outfitters and guides also help the Forest Service meet special management 

objectives for dispersing impacts related to nonresident harvest. Guides can help identify gender 

correctly, thereby limiting female harvest, which has been deemed critical by ADF&G for maintaining 

goat populations. This activity contributes to the recreational purpose of wilderness and has few 

resource concerns. These factors, along with the State of Alaska’s requirement for non-resident 
- 18 -

hunters to be accompanied by a licensed guide, indicate there is a need for outfitter/guide 

mountain goat hunting services in SBW. Guides can educate clients about low-impact camping and 

hiking skills to minimize impacts to the natural and undeveloped qualities of wilderness character.

Camping (including overnight use of public recreation cabins)

Camping is defined as overnight use within the wilderness. Daytime activities may involve 

boating or kayaking on marine waters or remote setting nature tours, hunting, or freshwater 

fishing within the wilderness. This use depends on sites amenable to camping such as level 

ground, accessible beach, availability of water, secure boat anchorage or storage, a food cache 

site, minimal signs of use by bears, and so on.

Evaluation Criteria Evaluation of Need

Wilderness Dependence

Opportunities for guided camping exist in the non-wilderness portion of the Sitka Ranger 

District and surrounding areas of the Tongass National Forest. Wilderness, however, 

provides the remote wild land setting desired for this type of activity. Wilderness also 

provides an opportunity for guided visitors to practice Leave No Trace camping skills and 

learn about outdoor ethics. On non-wilderness NFS lands surrounding the SBW, there are 

relatively few high-elevation lakes available for camping and no high elevation public 

recreation cabins. There are several cabins on low-elevation lakes available outside of 

wilderness, including Baranof Lake, Sitkoh Lake, Kook Lake, and Lake Eva cabins. 

Wilderness Character 

 Natural Quality: Guided camping generally occurs on the beaches along the shoreline of 

SBW and results in minimal impacts to vegetation, soil, and water resources. There are 

some locations where impacts to vegetation and soil are noticeable. Guided camping 

may increase the size of existing campsite boundaries. Firewood collection for campfires 

could occur, resulting in “human browse lines” or stumps. Stipulations for waste disposal 

and use of fire pans would have to be added to permits to ensure degradation of areas 

did not occur.

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality: 

There is also a potential for guided groups to impact opportunities for solitude in the 

wilderness, particularly if the groups are large or use is authorized in popular locations 

(e.g., Red Bluff Bay). Many of the lakes in SBW are small and can only accommodate one 

group for camping. Along the adjacent waterways, motorized boat traffic has the 

potential to diminish opportunities for solitude. Use of public recreation cabins in SBW at 

Avoss, Davidof, and Plotnikof Lakesis low (on average 6-15 nights reserved per year), so 

competition is low. 

Skills, Equipment, and 

Knowledge Required 

Camping visitors primarily access the SBW using kayaks, motorized boats or float planes, 

including charter services. Outfitters may also provide camping equipment that visitors do 

not have. Outfitters and guides can provide the skills, equipment, and knowledge required 

to safely access and enjoy the wilderness. Many wilderness cabins are located in remote, 

steep basins and are not accessible by trail. Visitors may have limited experience in this type 

of terrain and weather conditions. Guides also provide the skills, equipment, and knowledge 

needed to minimize impacts from overnight visitors. Camping (including stays at remote 

wilderness public use cabins) involves skills that embrace traditional techniques and include 

elements of risk and challenge, especially for those new to the activity. It encourages selfreliance and helps strengthen independent decision-making. 

Visitor Safety

Southeast Alaska’s weather conditions and tidal fluctuations can be extreme throughout the 

year. Exposure to wind and cold weather poses a threat to visitor safety. Wildlife encounters 

also pose a risk to safety. Outfitters and guides may provide communication with rescue 

services in the event of an emergency.

Outfitter and Guide 

Demand and Utilization

There is demand for guided camping services in the SBW. An average of 70 service days 

annually wasreported for this guided activity (2008-2012). The beaches and high-elevation 

lakes in this wilderness provide desirable recreation settings for this type of activity. There 
- 19 -

have been no commercial use requests for fly-in, non-hunting related camping, with the 

exception of cabin camping, at any lakesin SBW. No permits have been issued for guided 

camping at public recreation cabins although interest has been expressed for this type of 

use. 

Public Purposes & Special 

Management Objectives

Guided camping tours provide an opportunity for the visiting public to safely access and 

enjoy the SBW for recreational pursuits. Multiple day experiences allow visitors to forge 

deep connections with nature. Outfitters and guides providing camping tours emphasize 

Leave No Trace skills and outdoor ethics. Campers often seek a wild land setting and this 

activity is consistent with the management of the area as wilderness. Forest Plan direction 

for public use cabins located in wilderness is to maintain them at present or improved 

condition. However, high costs of maintenance for low-use cabins are becoming prohibitive. 

An opportunity exists for partnerships with guides to perform deferred maintenance on lowuse cabins or provide firewood. Guides who pursue this activity could educate visitors on the 

use of primitive tools as well as the enabling legislation, which allows for these structures in 

wilderness. 

In summary, guided camping generally occurs on the beaches and along the shoreline of SBW and 

results in minimal impacts to vegetation, soil, and water resources. Wilderness provides an 

opportunity for guided visitors to practice traditional skills, learn about outdoor ethics, and forge 

deep connections with nature. Backcountry camping experiences depend on a wild land setting and 

are consistent with management of the area as wilderness. Outfitters and guides can provide area 

visitors with the skills, equipment, and knowledge required to safely access and enjoy the 

wilderness. There is a need for outfitter/guide camping services in SBW. 

There is a potential for guided groups to impact opportunities for solitude in the wilderness, 

particularly if the groups are large, use is authorized in popular locations (e.g., Red Bluff Bay), and 

access is via motorized transport. Group size will be limited to twelve in non-cabin locations and six 

to eight persons at cabins (depending on cabin capacity). Permit stipulations will be designed to 

reduce potential conflicts with unguided visitors. Preference will be given to operators that access 

the wilderness using non-motorized transport, that promote Leave No Trace and outdoor ethics, and 

educate their clients about wilderness values.

Floatplane Landing Tours 

A floatplane landing tour is defined as a day-use activity that predominantly involves viewing natural 

features by air and landing once or multiple times within the wilderness and returning back to its 

point of origin. Visitors typically spend little time on land at each stop. Floatplane landing tours do 

not include authorized point-to-point floatplane transport used as an ancillary service to another 

commercial service for activities such as remote setting nature tours, hunting, fishing, or camping 

(including public use cabins). 

Evaluation Criteria Evaluation of Need

Wilderness Dependence

Floatplanes are a common and allowed method of transport for recreation use on the 

Tongass National Forest. However, the authorization of floatplane landing tours on the 

Tongass National Forest is limited and has not been authorized within the SBW. Misty Fiords 

National Monument provides a high number of service days for operators with lake landings. 

There are also several air taxi companies who provide this service without lake landings. In 

addition, several lakes exist outside of wilderness that offer sightseeing in a lake 

environment.
- 20 -

Wilderness Character 

 Natural Quality: Visitors typically step off the plane and explore the nearby area on foot, 

spending a short amount of time in the wilderness before re-boarding the plane. As a 

result, these activities typically result in minimal impacts to vegetation, soil, and water 

resources; however the potential for vegetative damage and soil erosion exists. Potential 

resource concerns include repeated use on unprotected native tread (e.g., muskeg and 

forested wetlands), user-created trails and trail marking (e.g. flagging and rock cairns), 

particularly in areas with interesting features and recreation attractions. 

 Undeveloped Quality: This activity is entirely dependent on the use of floatplanes. 

ANILCA Special Access provisions (Section 1110(a)) specifically allow for the continued 

use of airplanes for traditional activities and travel to and from villages and homesites. 

Recreation activities, such as sightseeing, are considered “traditional” as defined in Forest 

Service Manual 2326.1(6) (USDA Forest Service 2008a). As such, the presence of 

floatplanes in SBW is an accepted method of access and does not constitute a 

degradation of the undeveloped quality of wilderness character. 

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality: 

The frequency and duration of floatplane use can affect outstanding opportunities for 

solitude or primitive and unconfined recreation. Repeated landings at locations within 

wilderness by floatplane landing tour activities are not compatible with preserving these 

outstanding opportunities. The higher incidence of floatplane flights and landings that 

are associated with floatplane landing tours degrades the opportunities for those visitors 

seeking to experience the natural sounds of the wilderness and primitive recreation.

Skills, Equipment, and 

Knowledge Required 

Floatplane landing tours typically do not require a high degree of specialized skill, equipment 

or challenge for the forest visitor. Visitors typically step off the plane and explore the nearby 

area on foot, spending a short amount of time in the wilderness before re-boarding the 

plane. However, this activity does require an aircraft and pilot with experience in the 

challenging flying conditions of southeast Alaska. The average person would not have this 

equipment or skill and commercial services are typically needed for this activity.

Visitor Safety

Any activity that exposes people to southeast Alaska’s wind, rain, and cold weather 

conditions poses a threat to visitor safety if visitors are unprepared. Wildlife encounters may 

also pose a risk to safety. Hazards that people could encounter include brown bears, sudden 

weather changes, uneven terrain, falls and hypothermia. Since the time spent out of the 

plane is relatively brief and groups typically stay close to the landing site, risk of hypothermia 

and exposure to the elements is low.

Outfitter and Guide 

Demand and Utilization

No outfitter/guides have been authorized for floatplane landing tours in SBW. There have 

been commercial use requests for this activity.

Public Purposes & Special 

Management Objectives

This activity predominantly involves viewing natural features from the air and landing for 

only short periods of time within the wilderness. The act of viewing the wilderness from an 

aircraft and spending relatively short periods of time on the ground, within the landscape 

and soundscape, represents an activity predominantly inhibited by modern civilization. 

Although floatplanes are an accepted method of access in SBW, the activity itself does not 

fulfill the purposes of wilderness that strives for invoking opportunities for spirituality and/or 

allow for deep connections with nature. 

In summary, floatplane landing tours do not offer opportunities for self-reliance and challenge to the 

wilderness visitor. This activity is entirely dependent on the use of aircraft to view the wilderness 

from the air with short periods of time on the ground. Although the method of access is allowed, the 

activity itself degrades outstanding opportunities for solitude or primitive types of recreation, and 

does not provide visitors the opportunity for developing deep connections with nature. There is not 

a need for outfitter/guide floatplane landing tour services in SBW.
- 21 -

Freshwater Fishing

Freshwater fishing includes both catch-and-take and catch-and-release methods under Alaska sport 

fishing regulations (excludes commercial and subsistence fishing). This use depends on places and 

times where anadromous and resident fish are located.

Evaluation Criteria Evaluation of Need

Wilderness Dependence

Severalstreams on non-wilderness NFS lands on the Sitka Ranger District and surrounding 

areas of the Tongass National Forest support anadromous fish populations and provide 

excellent freshwater fishing opportunities, including the Nakwasina, Salmon Lake, Lake Eva, 

Deer Lake, and Sashin Lake river systems. Opportunities for fishing on non-NFS lands are 

limited, but include Katlian Bay (Shee Atika Incorporated) and possibly State park areas. In 

addition to the lakes mentioned previously, there are a limited number of nearby highelevation lakes outside of the wilderness. Catch & release steelhead fishing is a guided 

activity that is desired throughout southeast Alaska and there are a limited number of 

primary steelhead streams available, three of which are in SBW (Politofski Lake Creek, Port 

Banks, and Sandy Bay Creek). 

Wilderness Character 

 Natural Quality: Guided freshwater fishing is accessed via motorized boat or plane and 

results in minimal impacts to vegetation, soil, and water resources. Current resource 

concerns at streams include litter, development of “fishing paths,” and wildlife 

displacement. ADF&G provides sport fishing guidelines that help maintain the natural 

quality of wilderness character through the sustainable management of fish populations. 

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality: 

Guided groups have the potential to impact opportunities for solitude, particularly if the 

groups are large and use is authorized in popular locations (e.g., Port Banks, Sandy Bay, 

Red Bluff Bay), or access is via motorized boat or floatplane. There is also potential for 

conflicts during spring and fall bear hunting seasons and subsistence fish harvest seasons 

(Table 1). Many of the lakes in SBW are small and can only accommodate one or two 

groups for fishing. Visitor conflicts may occur, particularly during steelhead, coho, and 

sockeye fishing seasons. 

 Other Features of Value: 

o Subsistence use has historically occurred in this wilderness area. Consideration 

will need to be made for subsistence users.

o Brown Bear - There have been some reports of possible habituation of bears in 

site-specific areas on the Sitka district (e.g. Port Banks, Red Bluff Bay).

Skills, Equipment, and 

Knowledge Required 

Visitors primarily access the SBW wilderness using motorized boats or float planes. Outfitters 

and guides can provide the skills, equipment, and knowledge required to safely access and 

enjoy the wilderness. Navigating and route-finding in steep, brushy terrain may also be 

beyond the skill level of many visitors. Outfitter/guides can impart knowledge of catch and 

release techniques, where and when the fish runs are occurring, fish identification, and 

proper disposal methods.

Visitor Safety

Southeast Alaska’s weather conditions and tidal fluctuations can be extreme throughout the 

year. Exposure to wind and cold weather poses a threat to visitor safety. Wildlife encounters 

also pose a risk to safety.

Outfitter and Guide 

Demand and Utilization

There are numerous streams and low- and high- elevation lakes in SBW that support 

anadromous fishing populations. Between 2008 and 2012, 19 guides were authorized to 

provide guided freshwater fishing services in SBW and an average of 244 service days were 

reported annually. The current level of use for fishing is low to high depending on the area 

and species. There is potential for conflicts as well, especially in fall and spring during guided 

bear hunts and during times of subsistence fish harvest (Falls Lake: June 1 – August 15; Gut 

Bay: July1 – July20; Necker: June 1 – August 31; Politofski: June 1 – July 31).
- 22 -

Public Purposes & Special 

Management Objectives

Guided freshwater fishing contributes to the recreational purpose of wilderness. 

Outfitter/guides promote proper catch and release techniques and an understanding of 

population dynamics in isolated streams and lakes. Outfitter/guides are required to turn in 

freshwater fishing logs to ADF&G; the results of these can be used to determine nonresident fishing harvest.

In summary, there are several streams and lakesin the SBW that provide outstanding remote 

freshwater fishing opportunities. Fishing is an appropriate use of wilderness and outfitter/guides 

contribute to the recreational purpose of wilderness. Guides can assist visitors by navigating and 

route-finding in steep, brushy terrain and teach low-impact practices. Guides also impart knowledge 

of catch and release techniques, where the runs are occurring, fish identification and proper disposal 

methods. There is a need for outfitter/guide freshwater fishing services in SBW. Preference will be 

given to outfitter/guides that promote Leave No Trace and outdoor ethics and educate their clients 

about wilderness values. In addition, consideration will need to be made for subsistence users.

Remote Setting Nature Tours 

Remote setting nature tours encompass, but are not limited to, a wide variety of day use activities 

such as hiking, paddling, wildlife viewing, photography, exploring, sightseeing, and cultural tours. 

Visitors may spend a few minutes to many hours participating in these activities. Desirable attributes 

for these activities include accessible sections of shoreline, maintained trails and facilities, and 

unique features of geological, ecological, or cultural interest.

Evaluation Criteria Evaluation of Need

Wilderness Dependence

There are opportunities for guided remote setting nature tours (RSNT) on non-wilderness 

NFS lands on the Sitka Ranger District and surrounding areas of the Tongass National Forest. 

For example, lakes to the north and south of the wilderness can provide sightseeing and 

hiking opportunities at a lake environment. There are also outstanding hiking opportunities 

at Lake Eva, Kruzof Island, and Mist Cove. Guides currently offer tours in all of these areas. 

RSNT opportunities are limited on non-NFS lands; some opportunities exist at Katlian Bay 

(Shee Atika Incorporated), nearby State parks including an outstanding trail to Sea Lion Cove. 

Guides currently offer hikes in some of these non-NFS locations. 

However, wilderness provides the remote, wild land setting often desired for these 

activities. SBW in particular provides visitors the opportunity to learn about and experience 

the glacial features, geological features at Red Bluff Bay, brown bear, cultural history 

features, and rural Alaskan lifestyle that are unique to this wilderness. 

Wilderness Character 

 Natural Quality: RSNTs occurring in the SBW are primarily boat-based and use is generally 

concentrated on beaches and along established trails. It is rare that most visitors 

participating in RSNT travel more than one-half mile from shorelines unless there is an 

established trail. As a result, these activities typically result in minimal impacts to 

vegetation, soil, and water resources. However, potential resource concerns include 

repeated use on unprotected native tread (e.g., muskeg and forested wetlands), usercreated trails and trail marking (e.g. flagging and rock cairns), particularly in areas with 

interesting features and recreation attractions. The potential for vegetative damage and 

soil erosion exists. 

 Outstanding Opportunities for Solitude or Primitive & Unconfined Recreation Quality: 

There is also a potential for outfitted/guided groups to impact opportunities for solitude 

in the wilderness, particularly if the groups are large, use is authorized in popular 

locations, or access is by motorized boat or float plane. Impacts to opportunities for 

solitude and primitive and unconfined recreation will be most noticeable in areas where 

visual screening from vegetation and topography is low.
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 Other Features of Value: 

o Brown Bear - There have been some reports of possible habituation of bears in 

site-specific areas on the Sitka district (e.g. Port Banks, Red Bluff Bay).

Skills, Equipment, and 

Knowledge Required 

Visitors primarily access the SBW using kayaks, motorized boats or float planes. Outfitters 

and guides can provide the skills, equipment, and knowledge required to safely access and 

enjoy the wilderness. Equipment for day hiking (e.g. rain gear, footwear, warm clothing) can 

be obtained at relatively inexpensive prices at stores nationwide. Air taxi services can drop 

off and pick up visitors at locations of their choice, but without local knowledge of the 

landscape, it may be difficult for a visitor to identify suitable locations for this activity. 

Outfitters/ guides can provide the skills, equipment, and knowledge required to safely access 

the wilderness.

Visitor Safety

While hiking and beach walking are simple skills, southeast Alaska’s weather conditions and 

tidal fluctuations can be extreme throughout the year. Exposure to wind and cold weather 

poses a threat to visitor safety if visitors are unprepared. Wildlife encounters may also pose 

a risk to safety. Hazards that people could encounter include brown bears, sudden weather 

changes, steep terrain, falls and hypothermia. Risk to safety and the physical and emotional 

challenges of surviving in this environment are high.

Outfitter and Guide 

Demand and Utilization

Twenty-three outfitter/guides were authorized to provide RSNTs in SBW between 2008 and 

2012. The most popular guided RSNT activity is hiking at Red Bluff Bay. Other consistently 

used locations include Gut Bay, Patterson Bay, Sandy Bay, and Port Banks. Most RSNT use 

occurs in the shoreline zone surrounding protected bays and beaches. Use of the uplands is 

low, but operators have expressed an interest in providing hiking tours in the upland portion 

of the wildernessfrom saltwater, as well as floatplane access to lakes.

Public Purposes & Special

Management Objectives

Guided RSNTs provide an opportunity for the visiting public to safely access and enjoy SBW 

for recreational pursuits. Outfitters/guides providing RSNTs emphasize Leave No Trace skills 

and outdoor ethics. RSNTs depend on a wild land setting and are consistent with 

management of the area as wilderness. Guides authorized to operate in wilderness are 

required to educate clients about Leave No Trace outdoor ethics. For example, a guide could 

encourage clients to spread out in alpine and muskeg areas rather than walk single file. 

Additionally, an opportunity exists for partnerships with guides to perform deferred 

maintenance on low-use wilderness trails that are becoming cost-prohibitive to maintain.

Remote setting nature tours depend on a wild land setting and are consistent with management of 

the area as wilderness. There is a potential for guided groups to impact opportunities for solitude in 

the wilderness, particularly if the groups are large, use is authorized in popular locations (e.g., Red 

Bluff Bay), and access is via motorized boat or float plane. Guides can assist visitors by navigating 

and route-finding in steep, brushy terrain and teach low-impact practices. Outfitter/guides provide 

visitors with the skills, equipment, and knowledge required to safely access and enjoy the wilderness 

while still achieving a high level of self-reliance and challenge in the activity. There is a need for 

outfitter/guide remote setting nature tour services in SBW. Preference will be given to 

outfitter/guides that promote Leave No Trace and outdoor ethics, educate their clients about 

wilderness values, use smaller group sizes, and use non-motorized transport. Permit stipulations will 

be designed to reduce potential conflicts with unguided visitors as well as minimize impacts to soils 

and vegetation.
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Citations

ANILCA, 1980. Alaska National Interest Lands Conservation Act, Public Law 96-487, 96th Congress.

USDA Forest Service, 2008a. Forest Service Manual, Alaska Region (Region 10), FSM 2300 –

recreation, wilderness and related resource management, chapter 2320 – wilderness management. 

November 14, 2008.

USDA Forest Service, 2008b. Tongass National Forest Land Resource and Management Plan. January 

2008. R10-MB-603b. 

USDA Forest Service, 2007. Determination of Need and Extent of Commercial Uses within 

Wilderness Areas on the Tongass National Forest.

USDA Forest Service, 2004. Shoreline Outfitter/Guide Record of Decision and Final Environmental 

Impact Statement. December 2004. R10-MB-519a.

Wilderness Act, 1964. Public Law 88-577. 19 U.S. C. 1131-1136. 88th Congress.
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Appendix A. Management Direction

The Wilderness Act of 1964

The Wilderness Act of 1964 states the purpose of wilderness is “to secure for the American people of 

present and future generations the benefits of an enduring resource of wilderness.” Wilderness 

being an area “affected primarily by the forces of nature, with the imprint of man’s work 

substantially unnoticeable;” . . . “has outstanding opportunities for solitude or a primitive unconfined 

type of recreation; . . . and “may also contain ecological, geological, or other feature of scientific, 

educational, scenic, or historical value.” 

The Wilderness Act also describes how wilderness areas are to be used and managed. Management 

isto focus on preserving the wilderness character of the area; and use of the area “shall be devoted 

to the public purposes of recreational, scenic, scientific, education, conservation, and historical 

uses.” In realizing these uses wilderness provides an opportunity for solitude or primitive unconfined 

types of recreation not attainable in settings more man-made, or influenced by humans.

In accomplishing the purpose of, and uses of wilderness, the Wilderness Act gives some additional 

direction. Specifically, with one notable exception commercial enterprises are prohibited by Section 

4(c) of the Act. The exception covered in Section 4(d) (6) says; “commercial services may be 

performed within the wilderness area . . . to the extent necessary for activities which are proper for 

realizing the recreation or other wilderness purposes of the areas.” 

Alaska National Interest Lands Conservation Act of 1980 (ANILCA)

In 1990, the Tongass Timber Reform Act (TTRA) amended ANILCA and designated two new 

wilderness areas. Section 707 of ANILCA specifies that, “Except as otherwise expressly provided for 

in this Act, wilderness designated by this Act shall be administered in accordance with applicable 

provisions of the Wilderness Act ...” 

Items expressly provided for in ANILCA wildernessthat apply to this assessment include:

1. Section 811 – Reasonable access for subsistence resource uses.

2. Section 1110(a) – Special Access allowing for the use of airplanes, motorboats, and 

snowmachines (during periods of adequate snow) within conservation system units as 

defined by Section 102 (4). These rights may be subject to reasonable regulation to 

protect the natural and other values of the conservation system units. 

3. Section of 1303(b)(1) – Allowance for the construction of new cabins and administrative 

cabins if necessary for the administration of the area as wilderness.

4. Section 1307(b) – Provides a preference for providing visitor services (except for fishing 

and hunting) within conservation system units to Native Corporations and local 

residents.

5. Section 1315(c) – Allows for the permitting, maintenance, replacement, and continued 

use of public use cabins. 
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6. 1315(d) allows for the construction of new cabins if they are necessary for the protection 

of public health and safety.

7. Section 1316(a) – Allows for existing and future establishment of temporary structures 

necessary for the taking of fish and game subject to reasonable regulation to insure 

compatibility, the continuance of existing uses, and the future establishment, and use, of 

temporary campsites, tent platforms, shelters, and other temporary facilities and 

equipment directly and necessarily related to such activities. 

8. Section 1316(b) allows for the denial of the temporary facilities if the use of equipment 

or facilities is determined to be detrimental to the wilderness character.

ANILCA exceptions may influence the character of some wildernesses more than others. During the 

evaluation of commercial recreation use for any one wilderness, an effort should be made to 

consider the long-term effects of accommodating increasing uses or proposals for new use. The 

economic benefits to a business are not a substantive basis of a decision to allow use presented in 

either the Wilderness Act or ANILCA.

Direction Provided by Regulation

Federal Regulations 36 CFR 293.2 – Objectives, states in part: “Except as otherwise provided in the 

regulations..., National Forest wilderness shall be so administered as to meet the public purposes of 

recreational, scenic, scientific, educational, conservation, and historical uses; and it shall also be 

administered for such other purposes for which it may have been established in such a manner as to 

preserve and protect its wilderness character...To that end:

(a) Natural ecological succession will be allowed to operate freely to the extent feasible.

(b) Wilderness will be made available for human use to the optimum extent consistent with 

the maintenance of the primitive conditions.

(c) In resolving conflicts in resource use, wilderness values will be dominant to the extent not 

limited by the Wilderness Act, subsequent establishing legislation, or the regulations in this 

part.” 

Federal Regulations 36 CFR 293.8 - Permanent structures and commercial services, states in part 

that: “The Chief, Forest Service, may permit . . . commercial services within National Forest 

wilderness to the extent necessary for realizing the recreational or other wilderness purposes, which 

include, but are not limited to, the public services generally offered by packers, outfitters, and 

guides.”

Forest Service Manual and Handbook Direction

Outfitters/guides must also meet agency objectives. These objectives are specifically outlined 

in the Forest Service Manuals (FSMs) and Forest Service Handbooks (FSHs).

FSM 2702 Special Uses Management states: 

The objectives of the Special Uses program are to:

1. Authorize and manage special uses of National Forest System lands in a manner 

which protects natural resources and public health and safety, consistent with 

National Forest System Land and Resource Management Plans;
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2. Administer special uses based on resource management objectives and sound 

business management principles;

3. Develop and maintain a well-trained workforce to properly manage and administer 

special uses; and

4. Facilitate the delivery of recreational opportunities on National Forest System lands 

for services not provided by the Forest Service.

Forest Service Special Uses objectives specifically for outfitting and guiding, provided in FSH 

2709.14, Chapter 50, Section 53.1b states:

1. Provide for outfitting and guiding services that address concerns of public health and 

safety and that foster successful small businesses consistent with the applicable land 

management plan.

2. Facilitate greater participation in the outfitting and guiding program by

organizations and businesses that work with youth and educational groups.

3. Encourage skilled and experienced individuals and entities to conduct outfitting and 

guiding activities in a manner that protects environmental resources and ensures 

that national forest visitors receive high-quality services.

Forest Service Special Uses policy for outfitting and guiding provided in FSH 2709.14, Chapter 

50, Section 53.1c states:

1. Authorize only those outfitting and guiding activities that are consistent with the 

applicable land management plan and that meet the screening criteria in 36 CFR 

251.54(e) and FSH 2709.11, chapter 10.

2. Not authorize any development or permanent improvements in non-wilderness in 

the National Forest System for outfitting and guiding services, except when there is 

a demonstrated public need and the structures, improvements, or installations have 

negligible value and minimal impact on national forest resources, as with hitching 

posts, corrals, tent frames, permitted access routes, and shelters.

3. Not authorize any development, improvements, or installations in wilderness areas 

for the purpose of convenience to the holder or the holder’s clients; caches in 

wilderness areas; and permanent structures, improvements, or installations in 

wilderness areas unless they are necessary to meet minimum requirements for 

administration of the area for the purposes of the Wilderness Act (16 U.S.C. 1133c).

4. Work with other Federal agencies, State and local authorities, outfitters and guides, 

outfitting and guiding organizations, and other interested parties to ensure that 

outfitting and guiding activities are consistent with applicable laws and regulations 

and to identify unauthorized outfitting and guiding activities. Follow procedures in 

FSM 5300 in investigating and preventing the occurrence of unauthorized outfitting 

and guiding activities.

Forest Service policy addressing outfitter and guide operations in wilderness found in FSM 

2323.13g states that mangers should:

Address the need for and role of outfitters in the Forest Plan. The plan must address the 

type, number, and amount of recreation use that is to be allocated to outfitters. Ensure 
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that outfitters provide their service to the public in a manner that is compatible with use 

by other wilderness visitors and that maintains the wilderness resource.

Objectives for wilderness management provided in FSM 2323.11 are to:

1. Provide, consistent with management of the area as wilderness, opportunities for 

public use, enjoyment, and understanding of the wilderness, through experiences 

that depend upon a wilderness setting.

2. Provide outstanding opportunities for solitude or a primitive and unconfined type of 

recreation. 

Forest Service policy addressing recreation management in wilderness in FSM 2323.12 states:

1. Maximize visitor freedom within the wilderness. Minimize direct controls and 

restrictions. Apply controls only when they are essential for protection of the 

wilderness resources and after indirect measures have failed.

2. Use information, interpretation, and education as the primary tools for management 

of wilderness visitors.

3. Manage for recreation activities that are dependent on the wilderness environment so 

that a minimum of adaptations within wilderness are necessary to accommodate 

recreation.

4. Consistent with management as wilderness, permit outfitter/guide operations where 

they are necessary to help segments of the public use and enjoy wilderness areas for 

recreational or other wilderness purpose.

Tongass National Forest Land and Resource Management Plan Direction for Wilderness 

(pages 3-7 to 3-25)

Goals

To manage all designated wilderness to maintain an enduring wilderness resource while 

providing for public access and uses consistent with the Wilderness Act of 1964 and the Alaska 

National Interest Lands Conservation Act of 1980 (ANILCA).

Protect and perpetuate natural biophysical and ecological conditions and processes. Ensure 

wilderness ecological systems are substantially free from the effects of modern civilization.

To provide a high degree of remoteness from the sights and sounds of humans, and 

opportunities for solitude and primitive recreation activities consistent with wilderness 

preservation.

Keep wilderness untrammeled and free from modern human control or manipulation, including 

actions taken to manage wilderness.

Protect the undeveloped character of wilderness by following legislative guidelines regarding 

permanent improvements or modern human occupation, including mechanized transport and 

motorized equipment.
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Objectives

Apply a multi-disciplinary focus to wilderness management. The stewardship of the wilderness is 

considered in the annual program of work by all resources.

Manage recreation activities so the levels of social encounters, on-site developments, methods 

of access, and visitor impacts indicated for the Primitive Recreation Opportunity Class are 

emphasized. Areas managed as semi-primitive within a wilderness are an exception and are not 

encouraged. .

Provide for public use of the wilderness in accordance with ANILCA provisions for motorized and 

non-motorized access and travel, including reasonable traditional subsistence use by rural 

residents.

Maintain trails and primitive facilities that are in harmony with the natural environment and that 

promote primitive recreation opportunities. Feature facilities designed primarily to provide 

resource protection and encourage smaller group size. Facilities tend to allow for challenge and 

risk instead convenience. 

Maintain the wilderness capacity to provide information on natural ecological processes

Preserve and perpetuate biodiversity 

Inventory, reduce, and when possible, eliminate non-native species in wilderness

Manage wilderness as a place where self-reliance and primitive skills are needed and can be 

honed.

Desired Condition

All designated wilderness on the Tongass National Forest is characterized by extensive, 

unmodified natural environments. Ecological processes and natural conditions are not 

measurably affected by past or current human uses or activities. Users have the opportunity to 

experience independence, closeness to nature, solitude and remoteness, and may pursue 

activities requiring self-reliance, challenge and risk. Motorized and mechanized use is limited to 

the minimum needed for the administration of the wilderness. Allow for access to state and 

private lands, subsistence uses, and for public access and other uses to the extent provided by 

ANILCA. If not specifically provided through an ANILCA exception, the resources within a 

designated wilderness shall be administered in accordance with the applicable provisions of the 

Wilderness Act.

The Forest Plan notes that; “Special Use Authorizations permitting individuals or organizations to 

provide visitor services in wilderness may be issued if there is a demonstrated need for the 

service(s) and they are deemed appropriate for the area proposed.”