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 Kootznoowoo Wilderness includes notable wildlife populations of brown bear, nesting bald
eagles, and deer. Also important for the entire ecosystem, some of which are not within
wilderness, are marine species such as congregations of humpback whales, and haul-outs for sea
lion and harbor seal. The wilderness has exceptionally clean air and water that support the
abundance of salmon streams important to the island ecosystem,

However, some challenges to naturalness do exist with one salmon stream at Kanalku Bay with
depressed stocks of sockeye salmon due in part to human harvest. Other challenges to
naturalness include the presence of 18 known invasive plant species at 162 sites. Nesting birds
such as Black Oystercatchers (Haematopus bachmani) are sometimes disrupted by boaters and
paddlers who visit small islands. Some brown bear are impacted by the availability of human
garbage or the displacement caused by temporary encroachment into critical habitat (e.g.
estuarine sedge marshes during the spring).

Outfitter and guide services play an important role in protecting natural aspects of Kootznoowoo
Wilderness by helping clients to understand wildlife sensitivities, game laws, and best
management practices. Outfitter and guides can also prevent disturbance or over-harvest of fish
and game species, and they can educate about invasive species.

Natural character screening question:
Ncl - Are commercial service activities compatible with preserving the natural character of
Kootznoowoo Wilderness?

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.

'°T 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.
'T 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.

Kootznoowoo Wilderness Commercial Needs Assessment Page 16


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. Popular
guided freshwater fishing locations within the Kootznoowoo Wilderness include Wheeler Creek,
Salt Lake/Hasselborg Creek, King Salmon River, and other numerous streams accessed from the
marine shoreline. Currently there are no day use outfitter and guided fishing activities that
originate from freshwater access points (i.e. fly-in lakes).

Hunting includes the hunting of brown bear, deer, and waterfowl, although most guided hunting
in Kootznoowoo Wilderness is for brown bear. This use depends on places and times where
game occur and must comply with state regulations. State regulations require a registered guide
or next of kin for nonresident brown bear hunters. Additionally, hunting requires a high degree
of solitude for safety and practical reasons (undisturbed wildlife). This use typically reflects a
boat-based guiding operation that thoroughly explores a bay or an expanded area of marine
shoreline for the duration of the hunt. Currently there is only one outfitter and guide service that
utilizes an on-shore camp as their base of operations. Groups tend to be smallest in size (2.0
clients per group) to minimize disturbance and competition and to maximize chances of success.
The brown bear hunting season opens for a few weeks in the spring and fall and is closed the
remainder of the year.

Recreational or Other Wilderness Purposes

Activities provided by outfitters and guides in wilderness must support the recreational or other
wilderness purposes as defined in the Wilderness Act and enabling legislation, The “recreational
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.

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. Drawing a clear

5 Ibid, 16 USC 1133(b).

Kootznoowoo Wilderness Commercial Needs Assessment —_ - Page 10


V. DETERMINATION OF NEED FOR COMMERCIAL RECREATION
SERVICE ACTIVITIES

The following section examines the commercial recreation services by activity for the
Kootznoowoo Wilderness and finds whether or not they realize public purposes and are
compatible with preserving wilderness character. If recreation or other public purposes are
realized while wilderness character is upheld, commercial services may be necessary. Each
activity was subjected to the public purpose and wilderness character screening questions.

In order for a positive determination of need, the recreation commercial service activity must at a
minimum meet the recreation purpose and be compatible with preserving wilderness character.
Since this needs assessment focuses on commercial recreation services, it must at a minimum
meet the recreation purpose as defined. 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 Kootznoowoo
Wilderness.

Hiking, wildlife viewing, photography and sightseeing are popular activities, especially along the
marine shorelines of Kootznoowoo Wilderness. Pack Creek Bear Viewing Area is a world class
opportunity that offers unparalleled opportunities for being with bears in their natural
environment, 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 Kootznoowoo
Wilderness.

Floatplanes are a common and allowed method of transport for recreation use on the Tongass
NF. However, the authorization of floatplane landing tours on the Tongass is limited and has not
been authorized within the Kootznoowoo Wilderness. 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 and returning back to its point of origin.
This activity does not include point-to-point floatplane services that are provided as an ancillary

‘usr eseteteaseemenesennenneeneeseneaemensennnstnNnetenAeNn RANA
Kootznoowoo Wilderness Commercial Needs Assessment Page 20


I, INTRODUCTION

This document is a wilderness commercial needs assessment for recreation commercial services
in the Kootznoowoo Wilderness Area, Admiralty Island National Monument. It applies the
criteria of Section 4(d)6 of the Wilderness Act of 1964 (Wilderness Act) to determine which
recreation commercial service activities may be necessary in the Kootznoowoo Wilderness. This
document also applies other specific criteria of the Wilderness Act to determine the need for
commercial outfitter and guide activities.

The need for recreation 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 the recreation purpose or other
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) 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. A decision made in this analysis
would define the extent and amount of commercial recreation use to be authorized. 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 respond to the criteria.

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

This needs assessment:

1. Determines the need for various activities of commercial outfitter and guiding services
based on fulfilling the purposes of the Wilderness Act and compatibility with preserving
wilderness character within the Kootznoowoo Wilderness.

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.

Kootznoowoo Wilderness Commercial Needs Assessment


Kootznoowoo Wilderness contains approximately 1,500 square mile of wildland preserved in its
natural state. Opportunities for solitude or a primitive and unconfined type of recreation abound.
Certain discrete areas within the wilderness, such as the Pack Creek Zoological Area, marine
shoreline zone, and others with developed trails and cabins may offer fewer opportunities for this
type of experience. The Monument staff actively monitor for conditions of solitude. These areas
under threat of losing this aspect of wilderness character will be considered in future NEPA
decision making processes.

Outfitter and guide activities can enhance the wilderness experience quality for visitors,
contributing to people’s use and enjoyment of wilderness; and outfitter and guides can 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. As noted in a recent threat analysis prepared for Kootznoowoo
Wilderness “If not properly planned and managed, commercially guided recreation activities can
negatively affect outstanding opportunities for solitude, or primitive and unconfined experiences,
as well as other aspects of wilderness character. “{source: Kootznoowoo Wilderness Information
Needs Assessment, 2011)

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

character screening questions:

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?

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. '

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

" 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.

Kootznoowoo Wilderness Commercial Needs Assessment Page 17


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 challenge that inhibits access and enjoyment by the majority of the general public?

Rp2 - Do the commercial services align with recreation pursuits that are traditional within the
Kootznoowoo Wilderness?

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

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

Sep] - 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 Kootznoowoo Wilderness 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 Kootznoowoo
Wilderness?

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?

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

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



permits are required by visitors. The site has a high level of visitor controls in place for resource
protection 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 wildemess.
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.'*

One key aspect of Kootznoowoo Wilderness is its rich cultural value as manifested in sites and
subsistence uses intrinsic to the history and identity of its people. Both cultural sites and
subsistence activities reflect landscape features essential to the character of Kootznoowoo
Wilderness. In some cases, known heritage resources have been damaged or removed. Outfitters
and guides may contribute to the protection of these resources or they may inadvertently damage
them through negligence or abuse. Guides may also impact subsistence priorities if they bring
clients in sufficient numbers to compete for limited subsistence resources.

a
Other Wilderness Character screening question:
Ovel - Are commercial service activities compatible with the preservation of cultural values,

sites and subsistence activities?

'S 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.

Kootznoowoo Wilderness Commercial Needs Assessment Page 19


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 and 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?

Kootznoowoo Wilderness Commercial Needs Assessment Page 14


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:

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. 1

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

ET SERENE TM |
Kootznoowoo Wilderness Commercial Needs Assessment Page 6



Il. KOOTZNOOWOO WILDERNESS
Kootznoowoo Wilderness: The Bear Fort

Walk carefully here. The Tlingit people of Southeast Alaska have long known that
brown bear outnumber people by a large margin on the rainforest island
wilderness known as Kootznoowoo, the “bear fort.” Here the brown bear
confronts us with our fear of the primeval forest and serves as the ambassador for
all things wild. -If we followed the brown bear through the course of her year,
from her rocky alpine den to a coastal stream exploding with spawning salmon,
we'd discover a vast place known intimately by smell and taste. If we followed
her tracks along the edge of a meadow to her lingering scent on the bark of a
spruce tree, we'd inhale her secret message: “I am here, I walk this place”. It is
your place to feel the wild pulse of the earth, where the ambassador treads on
padded feet. Walk carefully.

-Kootznoowoo Wilderness Niche Statement

Admiralty Island has long been associated with the brown bear (Urus arctos). The original name,
The Bear Fort, indicates early Tlingit were well aware of the dense population of brown bear that
distinguishes this island from others, The northern edge of the Kootznoowoo Wilderness lays
just 12 boat-miles south of the capital city of Juneau, Alaska. From here, Kootznoowoo
Wilderness stretches another 81 miles south to Frederick Sound. Paddlers on the Cross
Admiralty Canoe Route cross six lakes and find abundant solitude as they traverse from the
traditional Tlingit village of Angoon to the historic homestead of Allen Hasselborg (the bear man
of Mole Harbor), a distance of 27 miles. Totaling 956,255 acres (about 1,500 square miles) this
wilderness supports approximately one bear per square mile by latest estimate, one of the densest
populations known.

Coastal forests of massive Sitka spruce and western hemlock dominate, and while Sitka black-
tailed deer stay well hidden in the dense forest, bald eagles are easily found in treetops along
most beaches. Harbor seals, Steller sea lions, and humpback whales feed near rafts of sea ducks
such as scoters and harlequins. The forest floor lays thickly covered with mosses and blueberry,
while muskegs open the tall forest canopy to sedge and sphagnum bogs. Rocky spires break
through along the island's high crest with peaks above 3,000 feet. Protected as Admiralty Island
National Monument in 1978, almost all but the northern end of the island was designated
Wilderness in 1980 under the Alaska National Interest Lands Conservation Act (ANILCA).
Additional lands around Admiralty Cove and Young Lake were added as wilderness in 1990
under the Tongass Timber Reform Act (TTRA).

Bear hunting is a traditional sport attracting international and local interest, especially in the
spring. Bear viewing is available during the summer at Pack Creek or in other remote bays
around the island. Sea kayaking is popular in the relatively protected waters of Seymour Canal
and in many other bays including Mitchell Bay near Angoon.

Residents of Angoon rely upon Kootznoowoo Wilderness for subsistence activities, particularly
along Chatham Strait. Kake and Petersburg residents hunt deer and brown bear at the southern

Kootznoowoo Wilderness Commercial Needs Assessment Page 3


The assessment considers the entire Kootznoowoo Wilderness Area. The Kootznoowoo
Wilderness Area includes all National Forest System lands above mean high tide and excludes
areas with reserved rights to Kootznoowoo Corporation for development of Thayer Creek Hydro
and quiet use and enjoyment of corridor lands in Mitchell, Kanalku and Favorite Bays.

This is intended to be a living document. It is recognized that wilderness conditions and factors
that affect them may change, as well as 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. Kootznoowoo Wilderness — provides brief overview of the wilderness qualities and
applicable laws.
Ill. Commercial Service Activities & Public Purposes — defines the commercial service
activities, 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.

Kootznoowoo Wilderness Commercial Needs Assessment Page 2


IV. WILDERNESS CHARACTER

In order to determine need, commercial outfitter and 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 Kootznoowoo Wilderness and determines
whether the outfitter and guide activities are compatible with its preservation for future
generations.

This assessment determines compatibility with the Wilderness Act and screens out inappropriate
activities; it does not analyze the environmental effects of outfitter and 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 Kootznoowoo Wilderness, Admiralty Island National
Monument are described in ANLCA Section 101(a) and Section 503(c).

Section [01(b)... 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;?

Section 503(c). Subject to valid existing rights and except as provided in this section, the National Forest
Monuments (hereinafter in this section referred to as the “Monuments”) shall be managed by the Secretary
of Agriculture as units of the National Forest System to protect objects of ecological, cultural, geological,
historical, prehistorical and scientific interest.

This assessment is organized to consider the wilderness character for the Kootznoowoo
Wilderness 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.

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

° ANILCA, 1980, 16 USC 3101

i TSSTSCCSC ETN
Kootznoowoo Wilderness Commercial Needs Assessment Page 15


© Section 506(3)(E) allows for the Kootznoowoo Corporation to consult and cooperate with
the Secretary of Agriculture in the management of Mitchell, Kanalku and Favorite Bays
and their immediate environs and enter into cooperative arrangements as may further the
purposes of ANILCA.

e Section 1110(a) allows for the use of airplanes, motorboats, and snowmachines (during
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 (of which Kootznoowoo
Wilderness is one); however, there are no present day commercial operations that were
authorized use within the bounds of the Kootznoowoo Wilderness Area on that date.
This section also provides a preference for providing visitor services within conservation
system units; except for fishing and hunting; to Native Corporations and local residents.

¢ Section 1315(c) allows for the permitting, maintenance, replacement, and continued use
of public use cabins.

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

¢ 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.

¢ Section 1316(b) allows for the denial of the temporary facilities if the use of equipment
or facilities is determined to be a significant expansion of existing uses or facilities which
would be detrimental to the purposes for which the Kootznoowoo Wilderness was
established, including the wilderness character.

Other than these exceptions expressed in ANILCA, commercially guided uses within
Kootznoowoo Wilderness 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 in the Wilderness Act, 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.



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.

The determination of no need was concluded based on;
1) Failure to realize the recreational purposes for the Kootznoowoo Wilderness (Rp1-
Challenge, Rp2-Traditional);
2) Failure to realize the scenic purposes for the Kootznoowoo Wilderness (Sp2-
connections);
3) Incompatibility with preserving wilderness character per Wilderness Character Screening
Questions Ocl-Solitude and Oc2-Primitive.

This activity primarily accesses freshwater lakes within the Kootznoowoo Wilderness. The vast
majority of freshwater lakes have developed trail access and public recreation cabins that do not
require an extraordinary degree of specialized skill, equipment and challenge that inhibits access
and enjoyment of the lakes by the majority of the general public (question Rp1). In addition, this
activity is not considered a traditional wilderness pursuit within the Kootznoowoo Wilderness, as
it predominantly involves viewing natural features from the air and landing for only short periods
of time within the wilderness (question Rp2). Therefore, this commercial service activity is not
necessary to achieve the recreation public purposes of the Wilderness Act.

This activity generally does not allow opportunities for visitors to forge deep connections with
nature uninhibited by modern civilization (question Sp2). 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 (flying)
and does not fulfill the scenic purposes of wilderness.

Floatplane landing tours are not compatible with preserving the wilderness character of
outstanding opportunities for solitude or a primitive and unconfined type of recreation,
specifically Wilderness Character Screening Question Ocl and Oc2. This activity occurring on
lakes that are predominantly accessed by visitors from traditional wilderness means, hiking and
paddling, degrades 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 Kootznoowoo Wilderness.

Outfitted and guided camping services are currently a small, but important, component of
commercial use in the Kootznoowoo Wilderness. The majority of camping services come in
connection with multiple day marine based kayak trips along the shoreline. Camping involves
skills that embrace traditional techniques and require elements of risk and challenge, especially
for those new to the sport. It encourages self-reliance and helps strengthen independent decision-
making. Scenic vistas and wildlife observations are normally the highlights of such trips, and

Kootznoowoo Wilderness Commercial Needs Assessment Page 21


Kootznoowoo Wilderness Commercial Needs Assessment

Admiralty Island National Monument

Tongass National Forest

Submitted by: f < iL) _ lof f 5 / a3

Kevin Hood Date
Wilderness Manager, Admiralty Island National Monument

Approved by: (LL. heh lof)

Chad VanOrmer Date
District Ranger, Admiralty Island National Monument


(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.

“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.

“Necessary” commercial services are those that serve the public’s need to experience wilderness
and support management objectives within the capability of the wilderness resource.
Commercial service activities are potentially necessary if they help achieve the public purposes
of wilderness without impairment of wilderness character.

Need for outfitter and guide commercial services can only occur to the degree where, when and
in numbers where wilderness character is unimpaired. Need is defined by a shortage of
opportunities for the public to experience wilderness and/or an agency need for assistance with
implementation of management objectives which can be addressed through commercial service
providers.

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

Proper activities are those which 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 in times of environmental stress, 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
exainines 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 and guides play a meaningful role in teaching the skills necessary to
enjoy historic and recreational pursuits and in interpreting the scenic, scientific, educational,
conservation and historical values of the visited wilderness area.

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

ootznoowoo Wilderness Comme:



Ill. COMMERCIAL SERVICE ACTIVITIES & PUBLIC PURPOSES

The Wilderness Act was redrafted sixty-five times with intense scrutiny on its wording. The
deliberate language of Section 4(d)6 reflects this extensive editing. As Section 4(d)6, in the
context of the whole law and its mandate to preserve wilderness character, forms the basis for
determining the need for commercial services, 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 and guide commercial services in the Kootznoowoo Wilderness:

(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 and 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 sought after by the public who visit the Tongass
National Forest. Not all of these activities are currently authorized within the Kootznoowoo
Wilderness, but represent reasonably foreseeable future demands for services. Outfitter and
guide activities that are currently not authorized by the Forest Service in the Kootznoowoo
Wilderness 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 Kootznoowoo Wilderness, and the TTRA which expanded the
wilderness area by amending ANILCA.

236 CFR 293,8, Permanent structures and commercial services.
5 Forest Service Manual, 1110 Directives, exhibit 1110.8.

rr cr rN
Kootznoowoo Wilderness Commercial Needs Assessment Page 7


edge of the island. Deer hunting in Seymour Canal and northern Admiralty Island is popular
with Juneau residents. Several private inholdings and 19 cabins under permit provide a few with
year-around homes and most others with seasonal camps.

The Pack Creek Zoological Area (PCZA), located in Windfall Harbor and Swan Cove was first
recognized in the 1997 Tongass Land and Resource Management Plan and subsequent revisions
as a special management area. The PCZA is famous for the incredible number of brown bears
that inhabit its exceptional and diverse landscape. People come from all over the United States
and around the world to view bears in this wilderness setting. A wilderness permit is required
for visitors to the Pack Creek Bear Viewing Area. The bear viewing area is cooperatively
managed with the Alaska Department of Fish & Game. The site allows a maximum of 24
visitors a day during the peak season, of which half are allocated to commercial recreation
service providers. A Prospectus for the bear viewing area and larger PCZA was completed in
2012. The PCZA currently has nine recreation commercial service providers that offer an array
of remote setting nature tours (wildlife viewing, photography) and camping.

In whole, the Kootznoowoo Wilderness currently has approximately 34 outfitter and 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 and guide service providers are allowed to operate on shore along the entire marine
coast of the wilderness area, except for within one mile of Admiralty Cove. The Admiralty Cove
area has been excluded from authorized outfitter and guide use due to its close proximity and
relatively easy access from Juneau. This area is already well used by the general public (non-
commercial users). In addition, there are no outfitter and guide service providers, except Thayer
Lake Lodge, authorized to operate within the interior lands (generally 4 mile or more from mean
high tide) or lakes of the Kootznoowoo Wilderness due to no requests to conduct this activity or
environmental analysis in place to authorize use. Point-to-point transport to more than 20 cabins
and shelters on lakes or along the shoreline can be provided by commercial floatplane operators
without a permit.

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 Kootznoowoo Wilderness (known at that time as “Admiralty Island National
Monument Wilderness”). ANILCA also included exceptions to the Wilderness Act that apply to
these wilderness areas . Specific sections that apply to the Kootznoowoo Wilderness and this
assessment include:

¢ Section 503(j) allows for the Thayer Lake Lodge special use permit to be renewed as
necessary for up to the lifetime of the permittee, or the surviving spouse or child of such
permittee, whoever lives longer.

Kootznoowoo Wilderness Commercial Needs Assessment Page 4


and homesites. These ANILCA exceptions do not alone constitute a degradation of the
Undeveloped Quality.

The Kootznoowoo Wilderness is primarily undeveloped, but does have some Forest Service
infrastructure to accommodate resource protection, public use and safety. The Kootznoowoo
Wilderness contains 28 miles of trail, 14 public use cabins, nine public use shelters, an
administrative camp in the PCZA and radio repeater on Windfall Mountain. In addition, other
non-Forest Service developments are permitted which include 19 private recreation cabins, one
resort, and three communication sites. There are no authorized permanent structures or
installations, aside from Thayer Lake Lodge, that support outfitter and guide activities.

Undeveloped character screening question:

Ucl - Are commercial services activities compatible with 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 again allows for exceptions to actions that may impair the untrammeled wilderness
character quality. Specific exceptions applicable to the Kootznoowoo Wilderness include the
taking of fish and wildlife, and fish habitat enhancement. Currently within the wilderness there
are three non-commercial activities authorized through ANILCA exceptions that include the
Kanalku fish weirs, Kanalku fish habitat enhancement and collaring bears within the PCZA.

For recreation commercial service activities, habituation of bears at the Pack Creek Bear
Viewing Area can be constituted as an activity that degrades the untrammeled character. The
habituated bears at Pack Creek are a consequence of its history prior to wilderness designation.
The viewing publics are required to follow strict procedures for movement and behavior that in
turn provides bears an expectation and reduces the natural threat of people. Habituation of the
bears at Pack Creek is an objective for a safe viewing experience for both visitors and bears.

In addition, the Pack Creek Bear Viewing area is cooperatively managed by the Forest Service
and Alaska Department of Fish & Game. The area is staffed on-site June through September and

8 Note, however, that noise, lights and emissions from such vehicles may degrade outstanding opportunities for
solitude. Lower profile vehicles are more conducive to preserving wilderness character in this 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.

TM 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.

Kootznoowoo Wilderness Commercial Needs Assessment Page 18


Remote Floatplane Freshwater
Setting Landing Camping Fishing Hunting
Nature Tours Tours :
Public Purposes Nei pgs eaissrudd :
Recreational _ pa oo a
Yes | Yes Yes Yes
Yes Yes Yes Yes
: ~ Yes_ Yes “Yes | Yes] Yes”
Sp2-Spiritual Yes No Yes Yes Yes
_ Scientific ee _ _
Scp1-Study Yes Yes Yess Yes
Educational _ ee ee
| ___Ep1-Connections Yes Yes Yes Yes __ Yes
__Conservation _ _ __
Yes Yes _ Yes
—n a a <a i _Yes Yes
Cp3-Stewardship Yes - Yes Yes |
Historical — 2 _
Hp1-Connections Yes Yes _ Yes Yes 7
Wilderness Character ee e at
Natural
_Nel-Natural Yes _No Yes _ Yes
Outstanding _ a —
Yes Yes Yes
- Yes Yes _ Yes
. Yes _ Yes “Yes Yes Yes
Untrammeled _ _ el
_ Utel-Untrammeled_ Yes Yes Yes Yes | Yes
Other _ i ee —
Ovel-Cultural [Yes Yes _ Yes Yes Yes
Determination of Yes No Yes Yes Yes
Need



Kootznoowoo Wilderness Commercial Needs Assessment Page ii


connection between commercial service activities and purposes is the basis of determining the
need for commercial services.

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 Kootznoowoo Wilderness follow.

Recreational

The recreational use purpose of wilderness includes participation and/or instruction in activities
that are traditional in the Kootznoowoo Wilderness such as hiking, backpacking, canoeing,
skiing, wildlife viewing, hunting, and fishing. 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

... [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 reereation.® [emphasis added]

This qualitative aspect is realized if outfitter and 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
activities within Alaska wilderness areas. Outfitter and 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:

Rp] - Do the commercial service activities require an extraordinary degree of specialized skill,
equipment and challenge that inhibits access and enjoyment by the majority of the general
public?

6 Wilderness Act, 1964, 16 USC 1131 (a).
7 Wilderness Act, 1964, 16 USC 1131(c).
® Title 36, Code of Federal Regulations, Part 293.2.

ct
Kootznoowoo Wilderness Commercial Needs Assessment Page 11


Often, outfitter and 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:

Ep] - Do the commercial service activities offer opportunities for education and interpretation
about certain values of the Kootznoowoo Wilderness 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 and 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, and the closure of bear hunting within the Pack Creek
Zoological Area, Outdoor ethics include: Leave No Trace practices, proper hunting and fishing
ethics and proper wildlife viewing ethics.

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 Kootznoowoo
Wilderness is recognized by the United Nations Education, Scientific and Cultural Organization
as part of an international network of Biosphere Reserves devoted to conservation of nature and
scientific research, It provides a standard against which can be measured the effects of man’s
impact on the environment. 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.

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 laws, regulations and outdoor ethics that
protect and support wilderness character?

SSC
Kootznoowoo Wilderness Commercial Needs Assessment Page 13


Kootznoowoo Wilderness Recreation Commercial Needs Assessment
Admiralty Island National Monument
Tongass National Forest

Executive Summary

This document applies the criteria of Section 4(d)6 of the Wilderness Act to determine which
recreation commercial service activities may be necessary in the Kootznoowoo Wilderness Area.

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 recreation commercial service activities. It does not consider
other commercial or noncommercial uses. The need for recreation commercial 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 five recreation commercial service
activities in the Kootznoowoo Wilderness. Need was determined with 16 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 Conservation Act of 1980 (ANILCA). If recreation or other
public purposes are realized while wilderness character is upheld, commercial services may be
deemed necessary. In order for a positive determination of need, the recreation commercial
service activity must at a minimum meet the recreation purpose and be compatible with
preserving wilderness character. The following summarizes the findings.

Determination of Need for Commercial Service Activities:

« Remote setting nature tour commercial service activities are necessary in the
Kootznoowoo Wilderness.

¢ Floatplane landing tour commercial service activities are not necessary in the
Kootznoowoo Wilderness.

¢ Camping commercial service activities are necessary in the Kootznoowoo Wilderness.

e Freshwater fishing commercial service activities are necessary in the Kootznoowoo
Wilderness.

¢ Hunting commercial service activities are necessary in the Kootznoowoo Wilderness.

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.

Kootznoowoo Wilderness Commercial Needs Page i


clients are often given opportunities for quiet time to contemplate and appreciate nature. The
multiple day 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. Outfitted and guided camping services
may be necessary at Forest Service shelters and cabins where access is difficult and public use of
the facilities is low.

Freshwater Fishing
Freshwater fishing commercial service activities are necessary in the Kootznoowoo Wilderness.

Fishing guides in general can help realize the purposes of wilderness in most locations of
Kootznoowoo Wilderness 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 seek 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 they must 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 Kootznoowoo Wilderness.

Brown bear and deer guides can realize most of the public purposes while preserving wilderness
character. Non-resident bear hunters are required under state regulation to be accompanied by a
guide or resident family member. Kootznoowoo features 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 ETE
Kootznoowoo Wilderness Commercial Needs Assessment Page 22




This section concludes with examining in greater detail:

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

Commercial Outfitter and Guide Service Activities

Activities considered in this needs assessment only include those that occur above mean high
tide on National Forest System lands. Also not included is strictly point-to-point transportation
services provided at a competitive fee that is not a tour or part of a package trip. Many activities
that take place within the Kootznoowoo Wilderness, 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, 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 currently sought after by wilderness
visitors and offered by commercial service providers within the Kootznoowoo Wilderness. The
size of these groups tends to be the largest of all activities with a maximum of 12 people at one
time. Visitors may spend from 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. Specific areas
within the Kootznoowoo Wilderness that are sought after for these activities include the Pack
Creek Zoological Area, Cross Admiralty Canoe Route, Brothers Islands, Seymour Canal,
Mitchell Bay and other numerous bays, inlets and waterways along the coast line. Access to the
wilderness is only achieved by boat or aircraft. Travel within the wilderness is typically by
paddle craft or foot.

Floatplanes are a common and allowed method of transport for recreation use on the Tongass
NF. However, the authorization of floatplane landing tours on the Tongass is limited and has not
been authorized within the Kootznoowoo Wilderness. 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 and returning back to its point of origin.
It typically involves a party of six to twelve people. Visitors typically spend only a few minutes
to several hours on land participating in a remote setting nature tour activity. This activity does
not include authorized point-to-point floatplane transport used as an ancillary service to another
commercial service provider for activities such as remote setting nature tours, hunting, fishing or
camping.

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. Popular camping locations include sections of
accessible marine shoreline, public use cabins, Pack Creek Zoological Area, and the Cross
Admiralty Canoe Route. Commercial camping use within the Kootznoowoo Wilderness can be
characterized as light, and primarily dispersed along the marine shoreline zone.
rE

Kootznoowoo Wilderness Commercial Needs Assessment Page 9


Rp2 - Do the commercial services align with recreation pursuits that are traditional within the
Kootznoowoo Wilderness?

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 spirituality within. It
allows visitors to experience being a part of something much bigger and more complex, but
intangible.

Scenic purpose screening questions:

Sp1 - Do the commercial service activities enhance clients’ appreciation of the aesthetics of the
wilderness?

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

Scientific

Activities offered by commercial outfitter and 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 and guided 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 and guide is to enhance client enjoyment and use of wilderness. This
entails a teacher-student relationship that imparts knowledge and skills from outfitter and guides
to clients, This also involves interpretation which attempts to forge emotional connections
between clients and nature.

Commercial service activities may realize the educational purpose by educating clientele as to
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. Outfitters and 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.