Outtfitter-guide services play an important role in protecting natural aspects of Tracy Arm -
Ford’s Terror and Chuck River Wilderness Areas by respecting wildlife and by helping clients to
understand wildlife sensitivities, game laws, and best management practices. Outfitter-guides can
also help prevent the spread of invasive species and impacts to sensitive soils and vegetation.
Outfitter-guides can also take measures to uphold clean air and the natural soundscape.

Natural character screening question:
Nel - Are commercial service activities compatible with preserving the natural character of
Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas?

Outstanding Opportunities for Solitude or a Primitive and Unconfined Type of Recreation
As already noted under “Purposes” of Wilderness, Outstanding Opportunities for Solitude or a
Primitive and Unconfined Type of Recreation help define wilderness character and are affected
by management decisions in the following way:

2, Solitude or a primitive and unconfined type of recreation. Wilderness provides outstanding
opportunities for solitude or primitive and unconfined recreation. This quality is primarily about the
opportunity for people to experience wilderness, and is influenced by settings that affect this opportunity. It
is preserved or improved by management actions that reduce visitor encounters and signs of modern
civilization inside the wilderness. In contrast, this quality is degraded by agency-provided recreation
facilities, management restrictions on visitor behavior, and actions that increase visitor encounters. '*

For the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas it is uncommon, though
not rare, to encounter someone ashore; nonetheless, solitude has been impaired. The constrained
waterways — tight fjords, narrow channels and intimate bays — place the off-forest marine traffic
in close quarters with on-forest wilderness visitors. The effect is that encounters recorded here
by wilderness users are often rated as having more impact than similar distance encounters
elsewhere. The loss of outstanding opportunities for solitude is a serious degradation and
continuing threat facing the Tracy Arm — Ford’s Terror and Chuck River wilderness areas. For
the first wilderness, there is a constant presence of people where guided recreation is growing in
popularity, where engine noise carries far over water and echoes off granite walls, where public
address announcements can be heard over three miles from the ships broadcasting them and
where haze from emissions lingers. For the latter wilderness, the south shore of Holkham Bay,
Sanford Cove and Windham Bay are increasingly popular anchorages for vessels offering
commercial tours and the private lodge in Windham Bay may invite increased use.

The wilderness staff actively monitor for conditions of solitude. These areas where this aspect of
wilderness character has been lost or is threatened will be considered in future NEPA decision
making processes.

Regarding Primitive and Unconfined Type of Recreation indicators, for the Tracy Arm — Chuck
River wilderness areas there has been little change in recent years. There are no cabins, shelters
or outhouses in the wilderness areas. The single trail-up from Windham Bay to Taylor Lake has

'S Tandres, P., Vagias, W. & Stutzman, S. Using wilderness character to improve wilderness stewardship. Park
Science, Volume 28, Number 3, Winter 2011-2012, ISSN 1090-9966. National Park Service, U.S. Department of
the Interior, Natural Resource Stewardship and Science, Office of Education and Outreach, Lakewood, Colorado.

—______ _
Tracy Arm ~ Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 19


These values are covered within the public purposes of the Wilderness Act examined here and
within the wilderness character qualities examined later.

The Wilderness Act provides for certain limitations on commercial ventures. Commercial
services in wilderness must realize the public purposes of wilderness identified in the law.
Drawing a clear connection between commercial service activities and purposes is the basis of
determining the need for commercial services. The Wilderness Act does not specify how many
public purposes must be realized. Those commercial services that realize the most public
purposes without impairing wilderness character would be the most compatible with wilderness
according to the criteria of the law.

Broadly speaking, activities provided by commercial services for realizing public purposes will
expand the capacity of the managing federal agency to administer wilderness areas “for the use
and enjoyment of the American people in such manner as will leave them unimpaired for future
use and enjoyment as wilderness, and so as to provide for the protection of these areas, the
preservation of their wilderness character, and for the gathering and dissemination of information
regarding their use and enjoyment as wilderness,...”"° Fulfillment of these purposes are further
achieved by reviewing operating plans, and completing field inspections and/or client
evaluations. More specifically, each purpose must be discussed individually to assure common
understanding as to what realizing the purpose means. Descriptions of the public purposes and
the screening questions for realizing them in the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas follow.

Recreational

The recreational use purpose of wilderness includes participation and/or instruction in traditional
wilderness activities such as hiking, backpacking, canoeing, skiing, wildlife viewing, hunting,
and fishing in an unconfined primitive setting that provides opportunities for solitude. There is
a distinct qualitative aspect to the recreational purpose of wilderness:

An area of wilderness if further defined to mean in this Act an area ... which ... has
outstanding opportunities for solitude or a primitive and unconfined type of recreation
wall [emphasis added]

National Forest Wilderness resources shall be managed to promote, perpetuate, and, where
necessary, restore the wilderness character of the land and its specific values of solitude, physical

and mental challenge, scientific study, inspiration, and primitive recreation.” {emphasis
added]

This qualitative aspect is realized if outfitter-guides offer activities in a manner that clients can
enjoy outstanding opportunities for solitude or primitive and unconfined recreation, including the
values of inspiration and physical and mental challenge.

Wilderness in Alaska can be very remote, challenging and not easily accessible to the general
public. Specialized skills, knowledge and equipment are often required for access to recreation

' Wilderness Act, 1964, 16 USC 1131 (a).
1 Wilderness Act, 1964, 16 USC 1131(0).
2 Title 36, Code of Federal Regulations, Part 293.2.

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 13


Other Wilderness Character screening question:

Ovcl - Are commercial service activities compatible with the preservation of cultural values,
sites and subsistence?

Ove2 — Are commercial service activities compatible with the preservation of prominent

ecological, geological and scenic features identified in the Tracy Arm — Ford’s Terror and
Chuck River Wilderness Areas?

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 23


Wilderness Areas,

This is intended to be a living document. It is recognized that wilderness conditions and factors
that affect them may change, as may market demands for various commercial service activities.
When substantial changes occur in natural systems and/or commercial recreation service
markets, this assessment will be updated accordingly.

This needs assessment is organized into five major sections and appendices to include:
I. Introduction — provides the context and scope of this needs assessment.
Il. Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas — provides brief
overview of the areas’ wilderness qualities and applicable laws.
Ill. Commercial Service Activities & Public Purposes — defines the commercial service
activities, public purposes and screening questions for determining need.
IV. Wilderness Character — defines wilderness character and provides screening questions
to determine compatibility with activities.
V. Determination of Need for Commercial Service Activities — presents findings for
determination of need

aT
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 4


been buried under a massive landslide and flooded by diligent beavers; there is no intention of
re-creating it. Two food-storage cables have been fixed in Ford’s Terror in areas popular with
campers and bears, but lacking in trees adequate for caching food. Primitive and Unconfined
Recreation Opportunities abound.

Outfitter-guide activities can enhance the wildemess experience quality for visitors, contributing
to people’s use and enjoyment of wilderness, and mitigate visitor impacts leaving such
outstanding opportunities unimpaired. Where commercial service activities occur often, in
numbers, or with a large footprint (spread out, loud noise, bright lights, lingering exhaust), the
outstanding opportunities for solitude or a primitive and unconfined type of recreation quality
suffers. A recent threat analysis prepared for Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas noted,

Activities authorized under special use permit, as well as those occurring adjacent to wilderness on the
marine waters or inholdings, add more visiting parties to the landscape. Increased visitor presence and the
haze produced by cruise vessels affect the outstanding opportunities for solitude or primitive and
unconfined recreation. '®

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

character screening questions:

Oc] - Are commercial services activities compatible with preserving opportunities for solitude,
challenge, decision-making and self-reliance?

Oc2 — Are commercial service activities compatible with preserving primitive or unconfined typé
of recreation experiences?

Undeveloped
The undeveloped quality is essential to primeval wilderness which contrasts with those areas
where expanding settlement and growing mechanization have occupied and modified the land:

3. Undeveloped. Wilderness retains its primeval character and influence and is essentially without
permanent improvement or modern human occupation. This quality is influenced by what are commonly
called the “Section 4c prohibited uses,” that is, the presence of modern structures, installations, habitations,
and use of motor vehicles, motorized equipment, or mechanical transport. The removal of structures and
not conducting these prohibited uses preserve or improve this quality. In contrast, the presence of
structures and prohibited uses degrades this quality, whether by the agency for administrative purposes, by
others authorized by the agency, or when there are unauthorized uses. 7

ANILCA specifically allowed for the continued use of airplanes, motorboats, and snowmachines
(during periods of adequate snow cover) for traditional activities and travel to and from villages
and homesites. These ANILCA exceptions do not alone constitute a degradation of the
Undeveloped Quality.'®

' Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas Information Needs Assessment, 2011.

'’ Landres, P., Vagias, W. & Stutzman, S. Using wilderness character to improve wilderness stewardship. Park

Science, Volume 28, Number 3, Winter 2011-2012, ISSN 1090-9966, National Park Service, U.S. Department of

the Interior, Natural Resource Stewardship and Science, Office of Education and Outreach, Lakewood, Colorado.
'§ Note, however, that noise, lights and emissions from such modes of transportation may degrade outstanding

opportunities for solitude. Lower profile vehicles are more conducive to preserving wilderness character in this

ln —EeEeSESSSEES
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 20


experiences that result often forge deep connections to nature that inspire photographs and art.
Guides can help clients understand the regulations and ethics surrounding the viewing of wildlife
and the requirements of camping.

Freshwater Fishing

Freshwater fishing commercial service activities are necessary in the Tracy Arm - Ford’s Terror
and Chuck River Wilderness Areas.

Fishing guides in general can help realize the purposes of wilderness in most locations of Tracy
Arm - Ford’s Terror and Chuck River Wilderness Areas while preserving wilderness character.
Historically guided fresh water fishing activities have largely been day-use accessed from the
confluence with marine waters. Fishing is a traditional wilderness pursuit where guides can
teach skills and connect clients to nature in meaningful and memorable experiences that involve
self-reliance. Fishing groups are generally smaller and they seck solitude in order to avoid
competition with others. Fishing groups often spend more time in wilderness which enhances
their appreciation of scenery and affords more opportunity to study nature. Guides often practice
catch-and-release fishing, uphold state regulations pertaining to the harvest of fish and report
results to State officials who manage the harvest and consider effects upon populations. Fishing
guides do not typically realize historical purposes of wilderness in that clients don’t study
historic sites under agreement with archaeologists.

Hunting

Commercial hunting activities are necessary in the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas.

Hunting guides can realize most of the public purposes while preserving wilderness character.
Non-resident big game hunters are required under state regulation to be accompanied by a guide
or resident family member. The Tracy Arm — Ford’s Terror and Chuck River Wildernesses
feature accessible terrain that affords Outstanding Opportunities for Solitude or a Primitive and
Unconfined Type of Recreation to hunters. Hunting is a traditional pursuit that requires ample
solitude to watch, track and pursue ranging game. Skills developed during hunts often require
challenging decision making and self-reliance. Binoculars and viewing devices are normally
used and clients have abundant opportunities to enjoy scenery and to study nature. Guides
uphold state regulations pertaining to the pursuit and harvest of game and they must report
results to State officials who manage the harvest and consider effects upon populations. They
have the opportunity to involve clients in studies and connect clients to nature through education
described in their operating plans. Hunting guides do not help realize historical purposes of
wilderness in that clients don’t study historic sites under agreement with archaeologists.

rr eee
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 26


offset by the positive benefits to naturalness and the realization of conservation and education
purposes.

Untrammeled Character question:
Utcl - Are commercial service activities compatible with preserving unhindered natural
processes that are free from human control or manipulation?

Other Features of Value
The quality Other Features of Value pertains to distinct features fundamental to the wilderness
character that are not contained within the other qualities:

5. Other features. This aspect is based on the last clause of Section 2c in the 1964 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. While many different types of features
could be included, the intent is to include those that are significant or integral to the park and wilderness.
Features mentioned in park or wilderness enabling legislation would likely qualify, such as the historic sites
in Death Valley Wilderness and volcanoes in Katmai Wilderness. Likewise, significant cultural sites,
whether mentioned in enabling legislation or not, occur in most wildernesses and have scientific,
educational, scenic, or historical value.”!

The history of Tracy Arm — Ford’s Terror and Chuck River Wildernesses includes cultural sites
and subsistence uses intrinsic to the history and identity of its people. Former settlement sites
related to native Alaskans, miners and fox farmers have been identified in the Tracy Arm —
Ford’s Terror and Chuck River Wildernesses — and large areas still remain uninventoried by
archeologists. Subsistence opportunities exist for seal, mountain goat, bear, deer, smaller fur-
bearers, salmon, berries and other resources.

Professional outfitter-guides and properly managed commercial services may help protect
cultural sites and artifacts and uphold subsistence opportunities. Conversely, improperly
managed or conducted commercial operations may damage such sites or artifacts through
negligence or abuse. Guides may also impact subsistence opportunities if their operations result
in:

Reduction in resources available for subsistence

Major redistribution of resources

Substantial interference with access to resources

Major increases in the use of subsistence resources by nonrural residents”

Commercial services should only occur if they are compatible with upholding these Other
Features of Value for the Tracy Arm — Ford’s Terror and Chuck River Wilderness Areas.

*! Landres, P., Vagias, W. & Stutzman, S. Using wilderness character to improve wilderness stewardship, Park
Science, Volume 28, Number 3, Winter 2011-2012, ISSN 1090-9966. National Park Service, U.S. Department of
the Interior, Natural Resource Stewardship and Science, Office of Education and Outreach, Lakewood, Colorado.
» Region 10 Amendment 2090.23-2006-1, 2006, Forest Service Handbook 2090.23, Chapter Zero Code, page 5.

i CTSCSCCSC CC}
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 22


IV. WILDERNESS CHARACTER

In order to determine need, commercial outfitter-guide service activities must also be compatible
with the preservation of wilderness character as defined in the Wilderness Act. This assessment
describes the wilderness character for the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas and determines whether the outfitter-guide activities are compatible with their
preservation for future generations.

This assessment determines compatibility with the Wilderness Act and screens out inappropriate
activities; it does not analyze the effects of outfitter-guide activities on wilderness character.
That analysis is reserved for an environmental analysis, which will be used to define site specific
constraints (i.e. locations, group sizes, service days, time restrictions, etc.) to further define ‘the
extent necessary’ to preserve wilderness character.

Wilderness character is a complex idea. It considers a wide variety of qualities, local and
national, tangible and intangible. Federal land management agencies charged with administering
wilderness have identified five qualities that comprise wilderness character, largely taken from
the Wilderness Act Section 2(c):

1. Natural
Outstanding Opportunities for Solitude or a Primitive and Unconfined Type of
Recreation

3. Undeveloped

4, Untrammeled

5, Other features of value

In order to preserve wilderness character, the characteristics and values of the individual
wilderness area must also be further defined and sustained. The characteristics and values which
articulate wilderness character for the Tracy Arm - Ford’s Terror and Chuck River Wilderness
Areas are described in ANILCA Section 101(b):

It is the intent of Congress in this Act to preserve unrivaled scenic and geological values associated with
natural landscapes; to provide for the maintenance of sound populations of, and habitat for, wildlife species
of inestimable value to the citizens of Alaska and the Nation, including those species dependent on vast
relatively undeveloped areas; to preserve in their natural state extensive unaltered arctic tundra, boreal
forest, and coastal rainforest ecosystems, to protect the resources related to subsistence needs; to protect
and preserve historic and archeological sites, rivers, and lands, and to preserve wilderness resource values
and related recreational opportunities including but not limited to hiking, canoeing, fishing, and sport
hunting, within large arctic and subarctic wildlands and on freeflowing rivers; and to maintain opportunities
for scientific research and undisturbed ecosystems.

This assessment is organized to consider the wilderness character for the Tracy Arm - Ford’s
Terror and Chuck River Wilderness Areas under each nationally defined quality. Like the
previous section, each wilderness character quality will conclude with a screening question used
to determine the need for commercial service activities.

'S The Alaska National Interest Lands Conservation Act, 1980, Section 101(b).

Tt
Tracy Arm ~ Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 17


JI. COMMERCIAL SERVICE ACTIVITIES & PUBLIC PURPOSES

The Wilderness Act was redrafied sixty-five times with intense scrutiny on its wording. The
deliberate language of Section 4(d)6 reflects this extensive editing. An examination of its
specific language is merited.

The following sections interpret Section 4(d)6 of the Wilderness Act and discuss how it applies
to outfitter-guide services in the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas:

(1) Commercial services

(2) may be performed

(3) within the wilderness areas designated by this Act

(4) to the extent necessary

(5) for activities which are proper for realizing the recreational or other wilderness purposes of
the areas.

1) Commercial services
The Code of Federal Regulations provides guidance as to the scope of commercial services to be
considered under Section 4(d)6 by stating 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.

Outfitter-guide services addressed in this needs assessment include remote setting nature tours
(hiking, paddling, skiing, wildlife viewing, photography, exploring, sightseeing, cultural tours,
etc.), floatplane landing tours, camping, freshwater fishing, and hunting. These services
represent the range of activities currently popular with the public who visit the Tongass National
Forest. Not all of these activities are currently authorized within the Tracy Arm - Ford’s Terror
and Chuck River Wilderness Areas, but they represent reasonably foreseeable future demands
for services. Outfitter-guide activities that are currently not authorized by the Forest Service in
the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas include skiing and floatplane
landing tours.

(2) May Be Performed

The word “performed” means “to carry out or fulfill” and is accomplished by guide services
under permit from the Forest Service. The word “may” has a specific legal meaning: “action is
optional.” Hence the managing agency or authorized line officer may opt to permit or not to
permit commercial services, or to permit some services but not others.

(3) Within Wilderness Areas Designated By This Act

This language refers to the Wilderness Act and subsequent enabling wilderness legislation, such
as ANILCA, which designated the Tracy Arm - Ford’s Terror Wilderness, and the TTRA which
designated the Chuck River Wilderness as an amendment to ANILCA.

§ 36 CFR 293.8, Permanent structures and commercial services.
7 Forest Service Manual, 1110 Directives, exhibit 1110.8.

Tt
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 9




Tracy Arm-Fords Terror became part of the Tongass National Forest in the early 1900s. It was designated a
National Forest Scenic Area in 1960, after years as a tourist attraction. In 1970 it became a Wilderness
Study Area in recognition of its dramatic beauty and opportunities for solitude. In 1980, it was designated
wilderness as part of the Alaska National Interest Lands Conservation Act (ANILCA). The law put the area
under the authority of the 1964 Wilderness Act.

The wilderness surrounds Tracy Arm, Fords Terror and most of Endicott Arm and Holkham Bay. The
south shore of Holkham Bay and part of Endicott Arm’s south shore are part of the adjacent Chuck River
Wilderness, designated in 1991.

Chuck River Wilderness: The Promise of Wilderness

Chuck River reflects the rise of wilderness appreciation in modern society. The local Tlingit enjoyed the
bounty of nature by trapping and fishing in Windham Bay. Settlers arrived in the 1890’s seeking gold.
They dug mines into the mountains, laid roads through the forests and built structures along the shore. The
mining boom subsided around the 1920s, people moved on and their developments fell into disrepair. In
the 1980's, timber resources were marked and potential roads were staked. But before it was logged, the
American people embraced a new value - that of wilderness. In order to protect old-growth forest and
riparian habitat, Congress designated the Chuck River Wilderness in 1990. The section adjoining the
Tracy Arm — Ford's Terror Wilderness completes the protection of spectacular Endicott Arm. Today this
wilderness patiently re-wilds its weather-beaten ruins as people treasure it for tranquility, scenic beauty,
aged forests, healthy fish runs, hunting opportunities and protected anchorages.4

In whole, the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas currently has at
least 18 outfitter-guide operations that offer a wide variety of activities including remote setting
nature tours (hiking, paddling, exploring, wildlife viewing, etc.), camping, freshwater fishing,
and hunting. Currently outfitter-guides are allowed to operate on shore along the entire marine
coast of the wilderness area. Only one outfitter-guide, a mountain goat hunting guide, is
authorized to operate within the interior lands (generally % mile or more from mean high tide) or
lakes of the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas due to lack of market
demand and appropriate environmental analysis.

The Wilderness Act and the Alaska National Interest Lands Conservation Act

The Wilderness Act authorizes Congress to designate wilderness areas amidst public lands
managed by federal agencies. The goal of the Wilderness Act is to secure for present and future
Americans the benefits of an enduring wilderness resource, The law achieves this goal by
affirming qualities for which wilderness is to be administered and by limiting uses that degrade
those qualities.

The passage of ANILCA established 14 wilderness areas on the Tongass National Forest
including the Tracy Arm - Ford’s Terror Wilderness. The Chuck River Wilderness was
designated as part of an amendment to ANILCA passed under the Tongass Timber Reform Act
of 1990, ANILCA includes exceptions to the Wilderness Act that apply to Alaskan wildemess
areas. Specific sections that apply to the Tracy Arm - Ford’s Terror and Chuck River Wilderness
Areas and this assessment include:

¢ Section 1110(a) allows for the use of airplanes, motorboats, and snowmachines (during

* IRD Wilderness program specialists’ descriptive statement for the Chuck River Wilderness Area.

EES EEE
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 6


II. TRACY ARM - FORD’S TERROR AND CHUCK RIVER WILDERNESS
AREAS

Tracy Arm - Ford’s Terror Wilderness: A Primeval Sanctuary

Behold primordial time itself: a glacier reminding us of an ice age that began over a million years ago.
Across the millennia this condensed ice flowed down from the mountains grinding granite into flour.
Today, the glacier retreats as it calves icebergs into the sea and continues its centuries-old unveiling of the
dramatic fjord it has sculpted. Ancient crumbling ice supports precious new life: a harbor seal pup born
minutes ago flops on an iceberg. Eagles descend on the afterbirth and possibly the hapless pup itself. The
mother seal squirms to protect her vulnerable newborn. Then she pushes her pup into the water and
follows, their awkwardness on ice transformed into aquatic grace.

The fjords of Tracy Arm and Endicott Arm comprise a primeval sanctuary where the ageless cycles of rock
and ice and seals and eagles challenge our perceptions. Time is brief and yet eternal. Life is frail yet
resilient. The only constant in nature is impermanence.

From Human and Natural History in Tracy Arm — Ford’s Terror Wilderness;?

The Tracy Arm-Ford’s Terror Wilderness is about forty-five miles southeast of Juneau. It encompasses
653,179 acres of the rugged Coast Mountains bordering Holkham Bay, on the east side of Stephens
Passage. It surrounds three dramatic glacial fjords—Tracy and Endicott Arms and Ford’s Terror—and
extends eastward to the glaciers and high mountains of the Canadian border,

Tracy Arm-Ford’s Terror is mountainous and heavily glaciated, with most of its terrain above treeline.
Although a few low valleys host mature forest, most land along shore is covered in an early-successional
mix of alder, willow and young spruce. Steep shores, swift streams, cliffs, narrow gorges, glaciers and thick
vegetation make travel on land difficult. The wilderness has no cabins or maintained trails. However,
protected waters, spectacular scenery and small beaches contribute to ideal sea kayaking, if you can stand
the rain.

For many visitors this wilderness is all about glaciers, both present and past. In addition to three tidewater
glaciers that regularly calve ice bergs into the ocean, its surrounding mountains tell a dramatic story of
Pleistocene glaciation, with rounded domes, sheer walls and deep, U-shaped valleys.

Traveling Tracy or Endicott Arms, both about thirty miles long, is like taking a trip back to the Pleistocene
Epoch, when huge glaciers covered southeast Alaska. In Holkham Bay, where the arms begin, mature rain
forest lines steep shores that have been de-glaciated for thousands of years. Permanent snowfields and a
few glaciers cover mountaintops high above the bay. But within the fjords, the snow and ice increase and
the forest is noticeably younger, a result of more recent glaciation, Instead of mature spruce and hemlock,
thickets of alder and willow dominate the thin soil. A few spruce rise above the thickets, pioneers of the tall
forests that will eventually fill the valleys. At the ends of the arms, close to the glaciers, even the alders and
willows are rare. The developing soils only support clusters of pioneer plants such as lupine and fireweed.
In this raw landscape, the receding glaciers uncover more bare rock and gravel each year.

The landscape also grows more dramatic within the fjords, which reach deep into the Coast Mountains.
Some peaks exceed 7,000 feet a little more than a mile from shore, Pleistocene glaciers sculpted them into
dramatic nunataks, horns and domes. Most stil] host permanent snow fields and alpine glaciers.

? JRD Wilderness program specialists’ descriptive statement for the Tracy Arm - Ford’s Terror Wilderness Area.
3 By Tim Lydon, USFS wilderness ranger.

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment ‘Page 5


Natural

The natural quality refers to the condition of the biotic and environmental elements of

wilderness:
1, Natural. Wilderness ecological systems are substantially free from the effects of modern civilization.
This quality is degraded by many things, such as loss of indigenous species, occurrence of nonindigenous
species, alteration of ecological processes such as waterflow and fire regimes, effects of climate change,
loss of dark skies, and occurrence of artificial sounds. It is preserved or improved, for example, by
controlling or removing nonindigenous species or restoring ecological processes. "

The Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas covers ecosystems from the
austere Stikine Icefield to old growth forests, Wildlife populations range from terrestrial
mammals such as black and brown bear, Sitka black-tailed deer, mountain goat, gray wolf and
river otter to sea birds, waterfowl and shorebirds such as marbled and Kittzlitz murrelets, loons,
scoters, oystercatchers, arctic terns and gulls to fish including all five salmon plus cutthroat and
steelhead trout to amphibians such as boreal toads and various newts. Marine mammals plying
the adjoining waters include humpback whales, orca, harbor seals, Steller sea lions and harbor
porpoises.

Key ecological processes include:

¢ Harbor seals returning to Tracy and Endicott Arms in the hundreds every summer to haul
out in front of the glaciers on ice floes to birth and nurse pups and to molt.

e Arctic terns returning each summer to nest in colonies in the gravelly moraines of the
glaciers.

e Oystercatchers nesting on the ground and gulls nesting in cliff colonies.

¢ Bears feeding in the intertidal zone in late spring to get calories after the long winter and
before the vegetation returns and then feeding on salmon runs in the late summer.

There may be plant species that are officially listed as threatened and endangered in the Tracy
Arm — Ford’s Terror wilderness areas, but none have been found yet: Invasive plants are limited
to localized patches in areas of historic human settlement.

Absent human influence, air quality is high. Stream water quality is believed to be high.
Undeveloped watersheds, continuous flushing from rainfall and freezing winter temperatures
contribute to purity. Soils range from recently de-glaciated bare rock to newly established thin
soils to thick organic soils in the older forests.

Challenges to naturalness include:
¢ Tourism operations interfering with wildlife by getting too close.
¢ Powered vessels impairing air quality and the natural soundscape.
¢ Denuding of thin soil bases in recently de-glaciated areas by concentrated use.
¢ Climate change impacts altering ecosystems (e.g. glacial wasting; yellow cedar dying off;
warming rivers no longer supporting salmon reproduction)

4 Landres, P., Vagias, W. & Stutzman, S. Using wilderness character to improve wilderness stewardship. Park
Science, Volume 28, Number 3, Winter 2011-2012, ISSN 1090-9966. National Park Service, U.S. Department of
the Interior, Natural Resource Stewardship and Science, Office of Education and Outreach, Lakewood, Colorado.

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 18


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. 5

5 Wilderness Act, 16 USC 1133(d)(5).

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 8


V. © DETERMINATION OF NEED FOR COMMERCIAL SERVICE
ACTIVITIES

The following section examines the commercial services by activity for the Tracy Arm - Ford’s
Terror and Chuck River Wilderness Areas. Each activity was subjected to the public purpose
and wildemess character screening questions. In order for a positive determination of need, the
recreation commercial service activity must realize recreation or other wilderness purposes and
be compatible with preserving wilderness character. Appendix 1 provides a compilation of all the
screening questions and a matrix that displays the results of the screening questions by activity.

Remote Setting Nature Tours

Remote setting nature tour commercial service activities are necessary in the Tracy Arm - Ford’s
Terror and Chuck River Wilderness Areas.

Hiking, wildlife viewing, photography and sightseeing are popular activities, especially along the
marine shorelines of Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas. The glacial
fjords offer world class opportunities to witness tidewater glaciers, sculpted fjords and how life
succeeds an ice age. Scenic vistas and wildlife observations are normally the highlights of such
trips, and clients are often given opportunities to contemplate and appreciate nature. The
experiences that result often forge deep connections to nature that inspire photographs and art.
Guides can help clients understand the regulations and ethics surrounding the viewing of
wildlife. Commercially guided trips sometimes involve archaeologists or historians to connect
human habitation to the broader ecology. Hiking is a traditional pursuit that requires elements of
risk and challenge, especially off-trail. It encourages self-reliance and helps strengthen
independent decision-making. Hiking guides can also help preserve wilderness through
avoidance of motorized equipment and mechanical transport, and by not competing for
subsistence resources. Remote setting nature tour commercial service activities fulfill the public
purposes and are compatible with preserving the wilderness character as defined by the
Wilderness Act.

Floatplane Landing Tours

Floatplane landing tour commercial service activities are not necessary in the Tracy Arm - Ford’s
Terror and Chuck River Wilderness Areas.

Floatplane landing tour activities are common in other parts of the Tongass National Forest, but
are not traditional or currently authorized within the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas. A floatplane landing tour is defined in this assessment as a day-use activity
that predominantly involves viewing natural features by air and landing once or multiple times
within the wilderness. The definition of floatplane landing tours does not include point-to-point
floatplane services that are provided as an ancillary service to other guides who are permitted for
other activities or for services to individuals who hire these services to provide access to these
areas for their recreation needs, such as using a cabin, or shuttle services to and from a
community,

CSC)
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 24


Tracy Arm - Ford’s Terror & Chuck River
Wilderness Commercial Needs Assessment

Juneau Ranger District

Tongass National Forest

Submitted by: ke Hed Sra

Kevin Hood Date |
Wilderness Manager, Juneau Ranger District

Reviewed by: Sansuf.ut Bur Gin _ e/a

Jenifer Berger Date
Wilderness/Recreation/Heritage/Lands Staff Officer
Juneau Ranger District

Approved by: Lael Dan s/3/t4

Brad Orr Date
District Ranger, Juneau Ranger District


¢ Commercial Outfitter and Guide Service Activities
¢ Recreational or Other Wilderness Purposes

Commercial Outfitter and Guide Service Activities

Activities considered in this needs assessment are those that occur above mean high tide on
National Forest System lands. Not included are strictly point-to-point transportation services
that are not a tour or part of a package trip. Many activities that take place within the Tracy Arm
- Ford’s Terror and Chuck River Wilderness Areas above mean high tide are done in
combination with activities outside the wilderness on state jurisdiction submerged lands and
marine waters. The activities considered in this needs assessment include: 1) remote setting
nature tours; 2) floatplane landing tours; 3) camping; 4) freshwater fishing, and 5) hunting.

Remote setting nature tours encompass, but are not limited to, a wide variety of day use activities
such as hiking, paddling, skiing, wildlife viewing, photography, exploring, sightseeing, and
cultural tours. All of these activities, except skiing, are popular with wilderness visitors and
offered by commercial service providers within the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas. The size of these day use groups tends to be the largest of all activities (group
size in wilderness is capped at a maximum of 12 people per group). Visitors may spend from
one to several hours participating in these activities. Desirable attributes for these activities
include accessible sections of shoreline and unique features of geological, ecological or cultural
interest. Specific areas within the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas
that are popular for these activities include the shores near the Dawes Glacier, North Dawes
Inlet, Sanford Cove, Wood Spit and the south shore of Holkham Bay, with other shores, streams
and bays attracting occasional interest. Access to the wilderness and along adjacent marine
waters is achieved by boat, aircraft or paddle craft. Travel within the wildemess is typically by
foot.

Floatplane landing tour activities are common in other parts of the Tongass National Forest, but
are not traditional or currently authorized within the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas. A floatplane landing tour is defined in this assessment as a day-use activity
that predominantly involves a substantial portion of the tour viewing natural features by air and
landing once or multiple times within the wilderness and returning back to its point or vessel of
origin. It typically involves a party of six to twelve people who spend little time on land and
most of the time in the air flightseeing. The definition of a floatplane landing tour does not
include point-to-point floatplane transport.

Camping is defined as overnight use within the wilderness. Daytime activities associated with
camping 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 and so on. Popular camping locations feature accessible marine
shoreline which can be severely limited by steep-walled fjords or sheer shorelines. This limited
geographic availability combined with commonly desired destinations (e.g. glaciers, bays,
islands) concentrates camping use in certain sites. This concentration of use creates impacts to
the natural resource and to the areas’ outstanding opportunities for solitude. Camping use within
the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas can be characterized as

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 11


(4) To The Extent Necessary

The overriding constraint on commercial services (and all types of visitor use) in wilderness is
the mandate to preserve wilderness character. Human influences that impair wilderness
character are to be minimized so that the natural conditions are protected, and the benefits of the
wilderness resource (social, biological, and physical) are available to future generations. The
phrase “to the extent necessary” has been subject to court arguments where the prevailing ruling
mandates this to be a minimizing provision, which aligns with the overall limitations on
commercialism instituted by the Wilderness Act.

“Extent” means “scope” or “magnitude.”* The scope or magnitude of commercial services can
be gauged quantitatively (the number of permits issued; the number of commercial clients
authorized), spatially (where operations are necessary or authorized) and temporally (when
operations are authorized). Extent is further defined and constrained by the capacity or
capability of the wilderness to support the activity without impairment to wilderness character.

Commercial service activities are “necessary” if they are found to achieve the public purposes of
wilderness without impairment of wilderness character.

(5) For Activities Which Are Proper for Realizing the Recreational or Other Wilderness
Purposes of the Areas

Proper activities are those that are compatible with the goals of the Wilderness Act. The
paramount goal is the preservation of wilderness character. This includes the use and enjoyment
of wilderness by present and future generations. Commercial services can fulfill both
stewardship and service roles by engaging in proper and purposeful activities.

Activities conducted responsibly would preserve the integrity of the wilderness resource. At a
minimum, such activities would embrace outdoor ethics to minimize impacts and avoid
prohibited means that degrade wilderness character, excepting allowable ANILCA stipulations.
The stewardship role can be filled further by actively educating clients regarding conservation
issues and the benefits of wilderness,, as well as by actively involving clients in citizen science
projects to help administer wilderness,

Activities enhance people’s use and enjoyment of wilderness when wilderness or recreation
purposes are realized. Regarding the commercial service activities, this needs assessment
examines five broad categories that encompass the spectrum of commercial outfitting and
guiding operations: remote setting nature tours; floatplane landing tours; camping; hunting, and
freshwater fishing. These activities may be provided if determined to be compatible with the
outstanding opportunities for solitude or a primitive and unconfined type of recreation the
Wilderness Act seeks to provide. Outfitter-guides play a meaningful role in teaching the skills
necessary to enjoy historic and recreational pursuits, in interpreting the scenic, scientific,
educational, conservation and historical values of the visited wilderness area and in training
visitors to be good stewards of wilderness.

This section concludes with examining in greater detail:

5 Webster’s 9"" New Collegiate Dictionary, 1990, page 440.

——ESEoOoO)Ueee Eee
Tracy Arm ~ Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 10


periods of adequate snow).

© Section 1303(b)(3) allows for the establishment and continued use of existing
administrative sites and visitor facilities.

¢ Section 1307(a) allows for the continuance of visitor services that were operating on
January 1, 1979 in designated conservation system areas (including the Tracy Arm -
Ford’s Terror and Chuck River Wilderness Areas); however, there are no present day
commercial operations that were authorized use within the bounds of the Tracy Arm -
Ford’s Terror and Chuck River Wilderness Areas on that date.

e Section 1315(d) allows for construction of new cabins if necessary for the protection of
public health and safety.

¢ Section 1316 (a) allows, subject to reasonable regulation to insure compatibility, for
existing uses and future establishment, and use, of temporary campsites, tent platforms,
shelters, and other temporary facilities and equipment directly and necessarily related to
taking of fish and wildlife.

« 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.

Other than the exceptions expressed in ANILCA, commercially guided uses within Tracy Arm -
Ford’s Terror and Chuck River Wilderness Areas are administered according to the Wilderness
Act of 1964 (ANILCA Section 707).

The principle administrative charge of the Wilderness Act is to preserve wilderness character.
Agencies have defined wilderness character using the descriptive aspects found within the law:

untrammeled

undeveloped

natural

outstanding opportunities for solitude or a primitive and unconfined type of recreation,
and

© unique features of ecological, geological or other features of scientific, educational,
scenic or historical value.

Generally speaking, actions or uses that are compatible with these qualities may be allowed in
wilderness.

The Wilderness Act also limits uses that would degrade the qualities of wilderness character.
With specific exceptions, it prohibits commercial enterprise, permanent roads, and except as
necessary to meet minimum requirements for the administration of the area for the purpose of
this Act, temporary roads, motor vehicles, motorized equipment or motorboats, landing of
aircraft, other forms of mechanical transport, or installations and structures.

Commercial services, the subject of this needs assessment, are one of the possible exceptions to
the prohibition on commercial enterprise per Section 4(d)6 of the Wilderness Act:

sneneeeanarenemenmmammnsees —
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 7



Indicators for the Undeveloped Quality relate to the presence/absence of constructs and uses
reflecting modern development rather than primeval wilderness. In terms of structures and
installations on national forest system land, the Tracy Arm — Ford’s Terror and Chuck River
wilderness areas are largely undeveloped save for ANILCA-allowed navigational aids and
scattered USGS survey markers,!? The Beezer Mountain radio repeater lies just outside the
wilderness boundary and the communication site on Dry Mountain is also outside of wilderness.

Regarding inholdings, there are a few areas of non-national forest land in the Tracy Arm —
Ford’s Terror wilderness area that could potentially be developed to the detriment of the
wilderness character. The Chuck River wildemess area has several developed inholdings,
including a waterfront lodge. The Forest Service has acquired some inholdings from willing
sellers; however new owners with strong tourism industry connections have recently purchased.
the lodge. Renovation and new construction could further impair the Undeveloped Quality of
the surrounding area (and associated use and effects might comprise additional impacts, as well
as afford new opportunities to realize educational, recreational and experiential benefits).

Undeveloped character screening question:

Ucl - Are commercial services activities compatible with the preserving the undeveloped
character by not relying on developments or motorized equipment and mechanical
transport not specifically allowed under ANILCA?

Untrammeled
“Untrammeled” is also defined as “unfettered”:

4. Untrammeled. Wilderness is essentially unhindered and free from the actions of modern human control
or manipulation. This quality is influenced by any activity or action that controls or manipulates the
components or processes of ecological systems inside the wilderness. Management actions that are not
taken support or preserve the untrammeled quality, while actions that are taken degrade this quality, even
when these actions are taken to protect resources, such as spraying herbicides to eradicate or control
nonindigenous species or reducing fuels accumulated from decades of fire exclusion.”

ANILCA allows a few exceptions for actions that may impair the untrammeled wilderness
character quality, such as fish habitat enhancement.

Regarding the Tracy Arm — Ford’s Terror and Chuck River wilderness areas, outfitter-guides
generally do not intentionally control or manipulate ecological systems or their constituents.
Commercial operators may affect wildlife, vegetation, air quality and other natural aspects, but
these impacts are considered under the natural quality of wilderness character.

Some commercial operators have expressed interest in assisting in USFS-led weed pulls to
eradicate invasive weeds. Such instances would impinge the untrammeled quality, but likely be

regard. This is not much different than noting that while people may visit wilderness, at a certain magnitude (of
numbers or concentration), crowdedness degrades solitude.

© Recreational structures and installations are considered under Outstanding Opportunities for Solitude or a
Primitive and Unconfined Type of Recreation.

97 andres, P., Vagias, W. & Stutzman, S. Using wilderness character to improve wilderness stewardship. Park
Science, Volume 28, Number 3, Winter 2011-2012, ISSN 1090-9966, National Park Service, U.S. Department of

the Interior, Natural Resource Stewardship and Science, Office of Education and Outreach, Lakewood, Colorado.
_—

Tracy Arm —Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 21


APPENDIX 1: Screening questions and conclusions of screening questions sorted by activity

Public Purpose Screening Questions:

Rp! - Do the commercial service activities require an extraordinary degree of specialized skill, equipment
and involve challenges that inhibit access and enjoyment by the majority of the general public?
Rp2 - Do the commercial service activities align with traditional wilderness pursuits?

Spl - Do the commercial service activities enhance clients’ appreciation of the aesthetics of the
wilderness?

Sp2 - Do the commercial service activities invoke opportunities for inspiration and/or allow for deep
connections with nature uninhibited by modern civilization?

Sep1 - Do the commercial service activities provide opportunities to assist with scientific studies or
involve the scientific process of studying nature?

Ep1 - Do the commercial service activities offer opportunities for education and interpretation about
certain values of the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas such as cultural,
ecological or geological in a way that fosters connections to nature?

Cp1 - Do the commercial service activities adhere to laws, regulations and outdoor ethics that protect and
support wilderness character?

Cp2 - Do the commercial service activities provide opportunities for clients to learn why certain laws,
regulations and ethics are in place for conservation concerns?

Cp3 - Do the commercial service activities offer opportunities to engage in citizen stewardship projects
and/or provide context to larger world conservation concerns?

Hp1 - Do the commercial service activities offer opportunities to foster a connection between local
human habitation and use of the wilderness and its other ecological values?

Wilderness Character Screening Questions:

Nel - Are commercial service activities compatible with preserving the natural character of Tracy Arm -

Ford’s Terror and Chuck River Wilderness Areas?

Ocl - Are commercial services activities compatible with preserving opportunities for solitude, challenge,
decision-making and self-reliance?

Oc2 — Are commercial service activities compatible with preserving primitive or unconfined type of

recreation experiences?

Ucl - Are commercial services activities compatible with the preserving the undeveloped character by not
relying on developments or motorized equipment and mechanical transport not specifically
allowed under ANILCA?

Utcl - Are commercial service activities compatible with preserving unhindered natural processes that are
free from human control or manipulation?

Ovcl - Are commercial service activities compatible with the preservation of cultural values, sites and
subsistence activities?

Ove2 — Are commercial service activities compatible with the preservation of prominent ecological,
geological and scenic features identified in the Tracy Arm — Ford’s Terror and Chuck River
Wilderness Areas?

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 27



I. INTRODUCTION

This document is a wilderness commercial needs assessment for the Tracy Arm - Ford’s Terror
and Chuck River Wilderness Areas. It applies criteria of the Wilderness Act of 1964
(Wilderness Act) to determine which recreation commercial service activities may be necessary
in the Tracy Arm — Ford’s Terror and Chuck River Wildernesses.

The need for commercial services is determined by assessing the ability of activities to fulfill the
recreational or other wilderness purposes of the Wilderness Act. In addition, commercial service
activities must be compatible with preserving wilderness character. A determination of need
may be found where activities fulfill public purposes of the Wilderness Act and are compatible
with preserving wilderness character. The preservation of wilderness character will also be a
critical factor in further defining site-specific constraints in capacity allocation decisions when
determining “the extent necessary” for commercial service activities.

This needs assessment is part of a sequential process of administering recreation commercial use
on National Forest System lands within wilderness. It only pertains to recreation commercial
activities and does not apply to other commercial or non-commercial uses. Other aspects of
administering recreation commercial use outside the scope, but tiered to this assessment include:

National Environmental Policy Act (NEPA) requires analysis of any proposed commercial
outfitter and guide allocation of the overall recreation capacity. This analysis culminates in a
decision that establishes mitigation measures that balance use with protection of the National
Forest resource. The decision would define the extent and amount of commercial recreation
use to be authorized. This process informs 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 respond to the criteria.

Special uses permits authorize individual outfitter-guides within the determined allocation
and according to established mitigation measures.

This needs assessment:

1. Determines the need for various activities of commercial outfitter-guides based on
fulfilling public purposes of the Wilderness Act and compatibility with preserving
wilderness character within the Tracy Arm - Ford’s Terror and Chuck River Wilderness
Areas.

2. Is an internal analysis.

3. Does not analyze or mitigate potential environmental impacts from commercial outfitting
and guiding activities.

4. Does not determine the extent and amount of recreation commercial use that may be
authorized.

The assessment considers the entirety of both the Tracy Arm - Ford’s Terror and Chuck River

‘renee erence
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 3


activities within Alaska wilderness areas. Outfitter-guides offer the opportunity to fulfill the
recreation purposes of the Wilderness Act by providing services that assist in overcoming
extraordinary challenge and allow the general public to access recreation opportunities. Aspects
to consider are the technical and specialized needs to access wilderness and the distance from
population centers,

Recreational purpose screening questions:

Rp1 - Do the commercial service activities require a substantial degree of specialized skill,
equipment and involve challenges that inhibit access and enjoyment by the majority of the
general public?

Rp2 - Do the commercial service activities align with traditional wilderness pursuits?

Scenic

The scenic purpose covers appreciation of the natural grandeur of the wilderness, including
landscape, soundscape, flora and fauna. Commercial services may offer activities that support
this purpose by allowing clients to appreciate these wild sights and sounds on their own terms.
The opportunity to view these natural wonders often invokes a sense of inspiration within. It
allows visitors to experience being a part of something much bigger, more complex and
intangible.

Scenic purpose screening questions:
Spl - Do the commercial service activities enhance clients’ appreciation of the aesthetics of the
wilderness?
Sp2 - Do the commercial service activities invoke opportunities for inspiration and/or allow for
deep connections with nature uninhibited by modern civilization?

Scientific .
Activities offered by commercial outfitter-guide services may be able to assist with research
studying wildlife, vegetation, geology or other aspects of wilderness. “Citizen Science” trips
embody this purpose well. Outfitter-guide activities might assist State Fish & Game
Departments or other organizations with animal studies, either reporting field observations or
providing mandatory or voluntary harvest information. Activities should offer clients the
opportunity to be involved in scientific study to the greatest degree possible.

Scientific purpose screening questions:
Scp1 - Do the commercial service activities provide opportunities to assist with scientific studies
or involve the scientific process of studying nature?

Educational

A key role of the outfitter-guidé is to enhance client enjoyment and use of wilderness. This
entails a teacher-student relationship that imparts knowledge and skills from the outfitter-guide
to clients, and includes interpretation which forges emotional connections between clients and
nature.

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Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment , Page 14



Citizen stewardship activities realize the conservation purpose to an even greater degree by
participating in wilderness stewardship. These can range from beach clean-ups to treating
invasive weeds to trail maintenance to monitoring solitude. There are numerous ways in which
commercial service activities can assist agency wilderness stewardship objectives.

Conservation purpose screening questions:
Cp] - Do the commercial service activities adhere to outdoor ethics that protect and support
wilderness character?
Cp2 - Do the commercial service activities provide opportunities for clients to learn why certain
laws, regulations and ethics are in place for conservation concerns?
Cp3 - Do the commercial service activities offer opportunities to engage in citizen stewardship
projects and/or provide context to larger world conservation concerns?

Historical

Commercial service activities may realize the historical purpose of wilderness in two manners:
by assisting with archeological endeavors and/or by connecting people to the human roots of an
area. Participating in archeological endeavors should always involve authorized archeologists,
It could include projects such as restoring a historical site or methodically inventorying and
recording an area for signs such as pictographs or petroglyphs. It should be recognized that it is
important to respect local and/or indigenous concerns and that it is inappropriate to publicize
certain archeological sites.

Regarding connecting people to their roots, activities can offer clients opportunities to learn
about the human history of an area, from the indigenous peoples to explorers to settlers to
contemporary locals. History can be taught through lectures, story-telling, books, maps and
photos or local experts. Additionally, for those historic sites protected from disturbance which
are visited by commercial operations, the outfitter-guides take a stewardship role to preserve the
integrity of the site by protecting site qualities and reporting any disturbances.

Historical screening questions:
Hp1 — Do the commercial service activities offer opportunities to foster a connection between
local human habitation and use of the wilderness and its other ecological values?

eee
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 16


¢ Floatplane landing tour commercial service activities are not necessary in the Tracy Arm
- Ford’s Terror and Chuck River Wilderness Areas.' :

© Camping commercial service activities are necessary in the Tracy Arm - Ford’s Terror
and Chuck River Wilderness Areas.

¢ Freshwater fishing commercial service activities are necessary in the Tracy Arm - Ford’s
Terror and Chuck River Wilderness Areas.

e Hunting commercial service activities are necessary in the Tracy Arm - Ford’s Terror
and Chuck River Wilderness Areas.

Commercial services may only occur to the extent necessary as mandated by Section 4(d)6 of the
Wilderness Act. Subsequent site specific commercial use allocation decisions under the National
Environmental Policy Act will further define commercial service activities (locations, timing of
use, numbers of visitors, etc.) to ensure the preservation of wilderness character.

' See p.9 for definition of floatplane landing tour.

rrr EEE
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 2


The determination of no need was concluded based on Public Purpose Screening Questions Rp2-
Traditional, Sp2-Inspirational and Cp3-Stewardship; and Wilderness Character Screening
Questions Nc1-Natural, Ocl-Solitude and Oc2-Primitive. Compared to other activities examined
in this assessment, floatplane landing tours realize fewer public purposes and degrade wilderness
character.

This activity primarily accesses freshwater lakes or marine waters. There are few suitable lakes
within the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas and they afford
outstanding opportunities for solitude that have been lost along the accessible marine corridors
penetrating the wilderness. There is no need to introduce floatplane landing tours along the well-
trafficked marine waters to access sites already used by boat-based tourism. In addition, this
activity is not considered a traditional wilderness pursuit, as it predominantly involves viewing
natural features from the air and landing for only short periods of time within the wilderness
(question Rp2). This activity generally does not allow opportunities for visitors to forge deep
connections with nature uninhibited by modern civilization. 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 dominated by modern mechanization and convenience
(flying) and does not fulfill the scenic purposes of wilderness (question Sp2). This activity, with
brief visits in wilderness but primarily focused on flying, does not offer an in-depth experience
that supports participation in citizen stewardship projects; nor does it provide sufficient context
for larger world conservation concerns (question Cp3). Therefore, this commercial service
activity is not necessary to achieve the recreation public purposes of the Wilderness Act.

Floatplane landing tours are not compatible with preserving wilderness character, in particular,
with regards to naturalness and to outstanding opportunities for solitude or a primitive and
unconfined type of recreation, specifically Wilderness Character Screening Questions Nel, Ocl
and Oc2. The confined fjords with granite walls and marine floors project aircraft noise for
many miles. This activity would occur on lakes that afford degrees of solitude rare elsewhere in
the wilderness and would degrade opportunities for those visitors to experience solitude and
primitive recreation. Therefore this commercial service activity is not necessary due to its
incompatibility with preserving outstanding opportunities for solitude or a primitive and
unconfined type of recreation.

Camping

Camping commercial service activities are necessary in the Tracy Arm - Ford’s Terror and
Chuck River Wilderness Areas.

Outfitted and guided camping services are currently a small component of commercial use in the
Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas, but significant in the rich
experiences they afford visitors. The majority of camping services occur in connection with
multiple day marine based kayak trips along the shoreline. Camping involve skills that embrace
traditional techniques and require elements of risk and challenge, especially for those new to the
activity. It encourages self-reliance and helps strengthen independent decision-making. Scenic
vistas and wildlife observations are normally the highlights of such trips, and clients are often
given opportunities for quiet time to contemplate and appreciate nature. The multiple day

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 25


Tracy Arm — Ford’s Terror & Chuck River
Wilderness Commercial Needs Assessment
Juneau Ranger District
Tongass National Forest

Executive Summary

This document applies criteria of the Wilderness Act to determine which recreation commercial
service activities may be necessary in the Tracy Arm - Ford’s Terror and Chuck River
Wilderness Areas. Section 4(d)6 of the Wilderness Act reads:

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,

The preservation of wilderness character is a requirement of Sections 2(a) and 4(b) of the
Wilderness Act, and is a critical element in determining which commercial service activities may
or may not be compatible in these wilderness areas. There cannot be a need for commercial
services that degrades wilderness character: preservation of wilderness character takes
precedence as the paramount purpose of the Wilderness Act. Section 2(c) of the Wilderness Act
defines wilderness and presents the terms that depict wilderness character.

Section 4(d)6 requires commercial services to realize purposes listed by the Wilderness Act that
categorize beneficial uses of wilderness. These purposes, called the public purposes or
recreation and wilderness purposes, are listed under Sections 2(c) and 4(b). Section 4(b) affirms
that these purposes are subordinate to the primary purpose of preserving wilderness character. A
positive determination of need for a recreation commercial service requires the activity realize
public purposes while being compatible with preserving wilderness character.

This assessment pertains solely to recreation commercial service activities commonly referred to
as commercial outfitting and guiding operations. It does not consider other commercial or
noncommercial uses. It concludes with a determination as to whether or not five categories of
recreation commercial services are necessary in the in the Tracy Arm -- Ford’s Terror and Chuck
River Wilderness Areas. Need was determined with 17 screening questions that assessed
commercial service activities against the public purposes and compatibility with preserving
wilderness character as defined in the Wilderness Act of 1964 and consistent with the Alaska
National Interest Lands Act of 1980 (ANILCA). If recreation or other wilderness purposes are
realized while wilderness character is upheld, commercial services may be deemed necessary.
The following summarizes the findings:

Determination of Need for Commercial Service Activities:

e Remote setting nature tour commercial service activities are necessary in the Tracy Arm
- Ford’s Terror and Chuck River Wilderness Areas.

Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 1



Findings for the Tracy Arm — Ford’s Terror and Chuck River Wilderness Areas

Remote Floatplane
‘ . . Freshwater .
Setting Landing Camping Fishin Hunting
Nature Tours Tours 8
Public Purposes
Recreational - oe oe a. _
{p1-Challenge _ Yes . No Yes | Yes Yes
Rp2-Traditional Yes No Yes Yes Yes
Scenic _. ee ee
_ Spl-Appreciation Yes Yes Yes Yes Yes
Sp2-Inspirational Yes No Yes Yes Yes
Scientific oe ee a ee
Scp1-Study Yes Yes Yes Yes Yes
Educational . ee ae
Ep1-Connections Yes Yes Yes Yes Yes
Conservation —__ - oe _
Cp1-Rules/ethics Yes _ Yes Yes Yes . Yes
Cp2-Values _ Yes. Yes Yes . ___ Yes J Yes
Cp3-Stewardship Yes No Yes Yes Yes
_ Historical . ee es
Hp1-Connections Yes Yes Yes Yes Yes
Wilderness Character
Natural _ 7 oe
Nel-Natural Yes No Yes Yes Yes
_ Outstanding _ . ee —
_Oc1-Solitude Yes No_ Yes | es Yes
Oc2-Primitive Yes No Yes Yes Yes
Undeveloped _ . _ .
Ucl-Undeveloped Yes Yes Yes Yes Yes
Untrammeled (| ee
Utcl-Untrammeled Yes Yes Yes Yes Yes
Other _ ae . . - ee ee
_... Ove -Cultural Yes of Yes | Yes tes X88
Ovc2-OtherFeatures Yes Yes Yes Yes Yes
Determination of Yes No Yes Yes Yes
Need

lee eee
Tracy Arm — Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment Page 28



moderate and concentrated. It should be noted that there is significant camping use by
noncommercial sea kayaking groups.

Freshwater fishing includes both catch-and-take and catch-and-release methods under state sport
fishing regulations (excludes commercial and subsistence fishing). This use depends on places
and times where anadromous and resident fish are located. Freshwater fishing activities may be
day use, or encompass multiple days. Anglers tend to seek out areas with more solitude and their
group sizes are typically smaller than those of remote setting nature tour user groups. There has
been almost no guided freshwater fishing in the Tracy Arm - Ford’s Terror Wilderness as there
are much better fishing options elsewhere than the glacial fjords. There has been slightly more
(but still little) guided freshwater fishing within the Chuck River Wilderness as this area has a
few rivers running out of old-growth forest.

Hunting includes the hunting of brown bear, black bear, mountain goats, deer, and waterfowl.
This use depends on places and times where game occur and must comply with state regulations.
State regulations require a registered guide or resident kin for nonresident big game hunters,
Additionally, hunting requires a high degree of solitude for safety and practical reasons
(undisturbed wildlife). This need for solitude combined with the limited number of sheltered
bays / safe anchorages in the Tracy Arm — Ford’s Terror and Chuck River Wilderness Areas
limits the number of commercial hunting guides that can operate at the same time without
impinging on each other’s or noncommercial users’ operations, Guided hunting use typically
reflects a boat-based guiding operation that thoroughly explores a bay, fjord or an expanded area
of marine shoreline for the duration of the hunt. Currently there is only one outfitter-guide
authorized to use an alpine camp as their base of operations. Groups tend to be smallest in size
(average of 1.8 clients per group) to minimize disturbance and competition and to maximize
chances of success. Hunting seasons vary by species but generally speaking are open for spring,
fall and some summer months and are closed the during the peak of summer and for the winter.

Recreational or Other Wilderness Purposes ;

Activities provided by outfitter-guides in wilderness must support the recreational or other
wilderness purposes as defined in the Wilderness Act and enabling legislation. The “recreationa]
or other wilderness purposes” clause refers to uses supported in the Wilderness Act:

Except as otherwise provided in this Act, wilderness areas shall be devoted to the public

purposes of recreational, scenic, scientific, educational, conservation, and historical use.”
[emphasis added]

Collectively, these purposes may be referred to as the public purposes of the Wilderness Act.
ANILCA describes similar purposes and values:

§101. (a) In order to preserve for the benefit, use, education and inspiration of present and future
generations certain lands and waters in the State of Alaska that contain nationally significant
natural, scenic, historic, archeological, geological, scientific, wilderness, cultural, recreational, and
wildlife values, and units described in the following titles are hereby established.

° Wilderness Act, 1964, 16 USC 1133(b).

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Commercial service activities may realize the educational purpose by educating clientele about
the purpose and value of wilderness. Tongass National Forest policy requires all wilderness
commercial service providers to educate their clients about the history, purpose and values of the
National Wilderness Preservation System as well as the specific wilderness area visited.

Effective teaching occurs with the realization that wilderness offers an array of educational
opportunities spanning the human and natural history of our country. Outfitter-guides can teach
their clients skills, arts, history, biology, geology and other topics during wilderness excursions.
Teaching occurs by connecting clients to nature, mentoring them and expanding their
understanding and appreciation.

Often, outfitter-guides use the art of interpretation to engage with clients about the natural
wonders. Interpretation is more than merely providing facts such as the names, elevations and
ages of distinct features. Interpretation seeks to forge emotional connections to nature through
direct experience that fosters appreciation of natural systems and by encouraging people to
record their appreciation through photos, paintings, writings or other expressions.

Educational purpose screening questions:
Ep1 - Do the commercial service activities offer opportunities for education and interpretation
about certain values of the Tracy Arm - Ford’s Terror and Chuck River Wilderness Areas
such as cultural, ecological or geological in a way that fosters connections to nature?

Conservation

The conservation purpose may be realized from activities that provide local and global
perspectives on conservation issues. The first ensures that activities are conducted in such a way
that the wilderness resource remains unimpaired for present and future generations. This can be
accomplished by adhering to laws and regulations and by practicing outdoor ethics that protect
the wilderness character. Outfitter-guide activities should offer opportunities to not only adhere
to regulations and ethics, but provide explanation as to why such regulations and ethics are in
place.

Examples of local conservation regulations and ethics include: state statutes that govern hunting
and fishing in order to maintain sound populations, permit requirements that prevent
overcrowding and resource damage, Leave No Trace practices, proper hunting and fishing ethics
and proper wildlife viewing ethics such as marine mammal viewing guidelines.

The second means of realizing the conservation purpose is to educate clients about the valuable
and positive role of wilderness on a planet experiencing climate change, mass extinction,
biodiversity loss, habitat fragmentation, pollution and other serious plights. The Tracy Arm -
Ford’s Terror Wilderness features some of the fastest wasting glaciers on earth; the Chuck River
Wilderness features old-growth forest once slated for logging and re-wilded settlements. These
provide opportunities to measure human impact on the environment and to contemplate nature’s
resiliency. Outfitter-guides may offer activities that educate their clients as to how the values of
wilderness extend beyond the immediate personal experience to benefit the broader world
community and future generations.

aera enna ae ACOA CAC TT
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