United States Department of Agriculture

Kake to Petersburg

Transmission Line Intertie

Project

Draft Record of Decision

Forest Service Tongass National Forest

Alaska Region Petersburg Ranger District R10-MB-765c June 2016
Acronyms and Abbreviations

AAC Alaska Administrative Code

ACHP Advisory Council on Historic 

Preservation

ADOT&PF Alaska Department of Transportation 

and Public Facilities 

AFRPA Alaska Forest Resources and 

Practices Act

AGL Above Ground Level

ANILCA Alaska National Interest Lands 

Conservation Act

APLIC Avian Power Line Interaction 

Committee

BA Biological Assessment

BMP Best Management Practices

CEQ Council on Environmental Quality

CFR Code of Federal Regulations

DEC Department of Environmental 

Conservation

DNR Department of Natural Resources

DP Dynamic Positioning

DPS Distinct Population Segment

EFH Essential Fish Habitat

EIS Environmental Impact Statement 

EPA U.S. Environmental Protection 

Agency

ESU Evolutionary Significant Unit

FHWA Federal Highway Administration

FLPMA Federal Land Policy and 

Management Act

FSH Forest Service Handbook

HDD Horizontal Directionally Drilled

IDT Interdisciplinary Team

KPI Kake to Petersburg Transmission 

Line Intertie 

kV kilovolts

LUD Land Use Designation

MBF thousand board feet

NEPA National Environmental Policy Act

NFMA National Forest Management Act

NFS National Forest System 

NMFS National Marine Fisheries Service

NOI Notice of Intent

NRHP National Register of Historic Places

NTP Notice to Proceed

PCE Power Cost Equalization

POG Productive Old Growth

R10 USDA Forest Service Region 10

RN Roaded Natural

RM Roaded Modified

ROD Record of Decision

ROS Recreation Opportunity Spectrum

SAFETEA-LU Safe, Accountable, Flexible, Efficient 

Transportation Equity Act: A Legacy 

for Users

SEAPA Southeast Alaska Power Agency

SHPO State Historic Preservation Officer

SOPA Schedule of Proposed Actions

SPM Semi-Primitive Motorized

SPNM Semi-Primitive Non-Motorized

TUS Transportation and Utility System

USC United States Code

VCU Value Comparison Unit

Kake to Petersburg Transmission Line Intertie 

Project

Draft Record of Decision

United States Department of Agriculture 

Forest Service Alaska Region

Lead Agency: USDA Forest Service

Tongass National Forest

Responsible Official: Earl Stewart, Forest Supervisor 

Tongass National Forest

Federal Building

 Ketchikan, Alaska 99901

For Information Contact: Tom Parker

Supervisory Resource Staff

Petersburg Ranger District 

12 North Nordic Drive

P.O. Box 1328

Petersburg, Alaska 99833-1328

(907) 772-3871

Abstract: 

The Responsible Official has selected Alternative 2 from the Kake to Petersburg Transmission Line 

Intertie Project (KPI Project) Final Environmental Impact Statement (FEIS). This decision authorizes 

the project applicant to construct an electric transmission line between Petersburg on Mitkof Island and 

the city of Kake on Kupreanof Island. The transmission line will be approximately 60 miles long and 

follow existing roads for 34 miles. Access for construction along the remaining sections of the route will

be via shovel trails supported by temporary matting panels. 
Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  iii

Table of Contents

Introduction .....................................................................................................................1

Decision ...........................................................................................................................1

Selected Alternative........................................................................................................1

Rationale for the Decision..............................................................................................2

Purpose and Need ........................................................................................................4

Significant Issues ..........................................................................................................4

Environmental Effects ...................................................................................................5

Public Comments ..........................................................................................................7

Consistency with the Forest Plan and other Applicable Laws and Regulations............8

Summary of Decision Rationale....................................................................................9

Alternatives......................................................................................................................9

Alternatives Considered in Detail ..................................................................................9

Alternative 1 – No Action...........................................................................................9

Alternative 2 – Proposed Action ................................................................................9

Alternative 3 – Northern Route with Submarine Cable............................................10

Alternative 4 – Center-South Route.........................................................................10

Environmentally Preferred Alternative.........................................................................10

Comparison of Alternatives .........................................................................................10

Alternatives Considered but Eliminated from Detailed Study......................................13

Public Involvement........................................................................................................13

Mitigation .......................................................................................................................14

Monitoring......................................................................................................................14

Project Record...............................................................................................................14

Map and Number Disclaimer........................................................................................14

Findings Required by Law............................................................................................15

Alaska National Interest Lands Conservation Act .......................................................15

Subsistence Evaluation and Findings (Section 810) ...............................................15

Bald and Golden Eagle Protection Act of 1940 (as amended)....................................15

Clean Air Act of 1970 (as amended) ...........................................................................15

Clean Water Act of 1977 (as amended)......................................................................15

Endangered Species Act of 1973 (as amended).........................................................16

Magnuson-Stevens Fishery Conservation and Management Act of 1996 ..................16

Marine Mammal Protection Act of 1972 ......................................................................16

2008 Tongass National Forest Land and Resource Management Plan......................17

National Historic Preservation Act of 1966 (as amended)...........................................17

Executive Orders.........................................................................................................17

Executive Order 11593 (Cultural Resources)..........................................................17

Executive Order 11988 (Floodplains)......................................................................17

Executive Order 11990 (Wetlands) .........................................................................17

Executive Order 12898 (Environmental Justice) .....................................................18

Executive Order 12962 (Aquatic Systems and Recreational Fisheries)..................18

Executive Order 13007 (Indian Sacred Sites) .........................................................18

Executive Order 13112 (Invasive Species) .............................................................18
iv  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Executive Order 13175 (Government-to-Government Consultation) ...................... 18

Executive Order 13443 (Hunting Heritage and Wildlife Conservation) ................... 19

Executive Order 13186 Migratory Birds .................................................................. 19

Process for Implementation......................................................................................... 19

Administrative Review – Opportunity to Object........................................................ 20

Implementation Date................................................................................................... 21

Contact Information..................................................................................................... 21

Responsible Official .................................................................................................... 21

References..................................................................................................................... 22

List of Exhibits

Exhibit R-1. Mitigation and Monitoring Measures

List of Figures

Figure R-1. Selected Alternative................................................................................. 3

List of Tables

Table R-1. Comparison of Alternatives.................................................................... 11
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  1

Kake to Petersburg Transmission Line

Intertie Project

Draft Record of Decision

Introduction

The Forest Service has prepared the Final Environmental Impact Statement (Final EIS) to analyze the 

potential impacts of authorizing the construction, operation, and maintenance of the proposed Kake to 

Petersburg Transmission Line Intertie (KPI) Project across National Forest System (NFS) lands. The 

Final EIS is in compliance with the National Environmental Policy Act 42 U.S. Code (USC) 4321 et 

seq. (NEPA), the Alaska National Interest Lands Conservation Act (16 USC 431 note) (ANILCA),

and all other applicable Federal and State laws and regulations. This draft Record of Decision (ROD) 

describes the Responsible Official’s decision to authorize the KPI Project. The decision is based on 

the EIS and the entire project record.

Decision

This ROD documents my decision to implement Alternative 2, hereafter referred to as the Selected 

Alternative, from the KPI Project Final EIS. 

In making this decision I considered:

• How best to meet the purpose and need for this project.

• The need to provide the community of Kake with a reliable, lower-cost source of energy.

• Issues raised during scoping.

• The relative environmental effects and outputs of the No Action Alternative and all three 

action alternatives described in the Final EIS.

• Public comments received for the project.

• Consistency with the 2008 Tongass National Forest Land and Resource Management Plan 

(Forest Plan). 

Selected Alternative

The Selected Alternative authorizes the Southeast Alaska Power Agency (SEAPA), the project 

applicant, to construct, operate, and maintain an electric transmission line that will extend from 

Petersburg on Mitkof Island to Kake on Kupreanof Island (Figure R-1). Originating at the existing 

SEAPA substation south of Petersburg, the transmission line would cross Frederick Sound and the 

mouth of the Wrangell Narrows via a horizontal directionally drilled (HDD) bore or buried submarine 

cable, and continue above ground north along Frederick Sound, and then west to Kake where it would 

terminate at a new substation located near the existing powerhouse. The transmission line right-ofway will be nominally 100 feet (50 feet either side of the center line) and trees within this area will be 

cleared. Trees located outside the right-of-way with the potential to strike the line were they to fall 

will also be removed. In locations where trees are 100 feet to 150 feet tall, trees could be cleared up to 

150 feet from the transmission line center line. As a result, the 20-year special use permit issued for 

this project will be for a 300 feet right of way (150 feet either side of the center line).
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2  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Built to transmit power at either 69 or 138 kV, the proposed transmission line will consist of three 

wires that carry electrical current (known as conductors) and a 24-strand fiber optic communication 

cable. The conductors and communication cable will be strung between single wood-pole structures 

with an average above-ground height of 55 feet, and an average span length between structures of 350 

to 400 feet. Construction access will be via existing roads, temporary shovel trails, temporary access 

spurs, and helicopter. 

The transmission line will be approximately 60 miles long, with approximately 34 miles following 

existing roads. In locations where poles will be located off the road by more than 20 feet, an access 

work pad will be created by extending the road fill to the site. Where the distance from the road 

makes this impractical, temporary matting will be used to gain access to the site during construction. 

The Selected Alternative will involve the use of an estimated 7.6 miles of these types of access work 

pads and/or temporary matting, referred to as “temporary access spurs” in this document.

Access for construction along the remaining 23.6 miles (41 percent) of the overhead portion of the 

route will be via shovel trails supported by temporary matting panels. Shovel trails will be used for an 

estimated 21.6 miles, with temporary matting used for 2.0 miles. Helicopters will be used to support 

construction activities, especially in areas without roads. Helicopter pads will be located about every 

0.25 mile along the 23.6 miles of the alternative that are not located adjacent to an existing road. 

Following construction, routine annual inspections and maintenance will be conducted via helicopter 

and existing access roads. 

The project applicant will determine the Wrangell Narrows crossing type (HDD boring or buried 

submarine cable) following the completion of a thorough submarine topographical survey and 

subsurface profile that will be completed to inform this decision and identify the best crossing route 

and associated terminal locations. This is discussed further in the Process for Implementation section 

below.

Rationale for the Decision

In making my decision, I considered the objectives to meet the purpose and need for this project as 

well as the issues and concerns that arose during scoping and comments on the Draft EIS, both in 

support of and opposition to this project. I considered Forest Plan direction relevant to this project and 

the competing interests and values of the public. I considered all viewpoints and incorporated them 

where feasible and consistent with the purpose and need of the project. I evaluated the trade-off 

between resource protection and social values. My decision to implement the Selected Alternative is 

consistent with the Forest Plan. The following subsections provide the context for my decision and 

discuss the purpose and need for the Project, significant issues, environmental effects, public 

comments, and consistency with the Forest Plan. A final subsection presents a summary of the 

preceding discussion and the decision rationale.
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Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  3

Figure R-1. Selected Alternative
Record of Decision

4  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Purpose and Need

Authorization of the Selected Alternative responds to the Forest Service’s purpose and need for the 

KPI Project by responding to SEAPA’s application under Title V of the Federal Land Policy and 

Management Act (FLPMA) (43 United States Code [USC] § 1701) for a right-of-way grant to 

construct, operate, maintain, and terminate a 69-kV or 138-kV electric transmission line and other 

appurtenant facilities on public lands in compliance with FLPMA, Forest Service Manual 2700, the 

2008 Forest Plan, and other applicable Federal laws. 

The community of Kake is presently served by an isolated electric system that depends upon high-cost 

diesel generation, resulting in a full retail cost of power in 2011 that was more than five times the 

corresponding rate in the communities of Petersburg, Ketchikan, and Wrangell (Fay et al. 2012a, 

2012b). The cost of electricity in Kake is currently subsidized for residential customers and public 

facilities through the State of Alaska’s Power Cost Equalization (PCE) program. Even after the 

receipt of PCE payments, residential and public facility rates are still twice as high in Kake as the 

corresponding rates in Petersburg, Ketchikan, and Wrangell, and disbursements are limited to 500 

kWh per month for residential customers and 70 kWh per resident for community facilities. These 

factors combined result in average residential consumption levels that are significantly below regional 

averages (Fay et al. 2012b).

Commercial customers are not eligible to participate in the PCE program and there is no comparable 

program for commercial customers, who pay the full retail cost for power in Kake. The high cost of 

electricity is not conducive to economic growth and may in fact impede economic development in 

Kake because the availability of reliable low-cost power strongly influences decisions to locate new 

commercial and industrial developments in Southeast Alaska (Alexander et al. 2010, Black & Veatch 

2012, Hittle 2014).

The Selected Alternative will enable the project applicant to build a new electric transmission line that 

will connect the existing isolated electric system in Kake with SEAPA’s network and provide access 

to relatively low cost electricity.

Significant Issues

As discussed in the Significant Issues section in Chapter 1 of the Final EIS, there were no significant 

issues evaluated in the Final EIS. Three significant issues with the potential to drive an alternative 

were identified during public scoping for the Project and are summarized as follows:

• Inventoried Roadless Areas – Access road construction in inventoried roadless areas (IRAs)

would reduce roadless acres within the project area and could affect roadless values. 

• Unroaded Character of the City of Kupreanof – Residents of the city of Kupreanof 

expressed concern about an earlier alternative (identified as the Northern Alternative, Option 2 

in the Public Scoping notice) that crossed Petersburg Creek and passed behind the city of 

Kupreanof. Many of the comments received from the public during scoping for the project 

were from Kupreanof residents concerned about the potential impact of the Northern 

Alternative, Option 2 on their community, as well as potential impacts to Petersburg Creek. 

• Petersburg Creek – As noted above, concern was expressed about potential impacts to 

Petersburg Creek, an important resource for fish and wildlife, recreation and tourism, and 

subsistence. 

These issues were addressed through the alternative development process, as follows:

• Inventoried Roadless Areas – The alternatives as initially proposed all included construction 

of a pioneer road along those sections of the proposed transmission line that do not follow 

existing roads, including locations within IRAs. The alternatives were modified during the 
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Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  5

alternative development process and pioneer roads are no longer proposed under any of the 

action alternatives, including the Selected Alternative.

• Unroaded Character of the City of Kupreanof – The Northern Alternative, Option 2 was

eliminated from further consideration, as discussed in the EIS Public Scoping section in 

Chapter 2 of the Final EIS. None of the action alternatives considered in this EIS pass behind 

or near the city of Kupreanof. 

• Petersburg Creek – As noted above, the Northern Alternative, Option 2 has been eliminated 

from further consideration. None of the action alternatives considered in this EIS cross 

Petersburg Creek. 

No other potentially significant issues were identified. More general concerns were expressed during 

public scoping about potential impacts to other resources, but these concerns were resolved or 

addressed through one or more of the following ways:

• Already addressed by the Forest Plan and Forest Plan Land Use Designations (LUDs)

• Addressed through implementation of Forest Plan Standards and Guidelines or best 

management practices (BMPs)

• Can be resolved through project-specific mitigation 

• Can be addressed during processes or impact analyses routinely conducted by the 

Interdisciplinary Team (IDT)

• Can be addressed through spatial modification of actions during alternative design 

• Used to drive or partially drive an alternative 

• Beyond the scope of the project

• Comment or opinion

• Other request

Under NEPA, the potential significance of the environmental effects of a proposed action determines 

whether an EIS must be prepared. In this case, preliminary analysis indicated the potential for 

significant effects on the environment, so we published a Notice of Intent (NOI) to prepare an EIS and 

conducted public scoping. Public scoping identified three significant issues that were all addressed 

through the alternative development process, as explained above. In cases where no significant issues 

are identified for a project, we would typically prepare an Environmental Assessment (EA) rather than 

an EIS, with the findings documented in a Finding of No Significant Impact (FONSI), rather than a 

ROD. In this case, given how far along we were in the EIS process, we had completed public scoping 

and prepared draft Resource Reports, we chose to continue with the EIS process that was already 

underway, rather than revise the process and prepare an EA and FONSI. Continuing with the EIS 

process also allowed us to present more detailed resource information for internal and external review 

and also entails a more rigorous public comment and review process.

Environmental Effects

The environmental effects of the Selected Alternative are summarized along with the other alternatives 

in Table R-1 below. The impacts for the Selected Alternative and Alternative 3 are almost identical in 

most cases, as both alternatives follow the same route corridor (the “Northern” route) for the majority 

of their lengths. The Selected Alternative and Alternative 3 are very similar in length, 59.9 miles 

versus 60.3 miles (Table R-1). The only difference between the two alternatives is the location of their 

approach to crossing Frederick Sound and the Wrangell Narrows. The Selected Alternative involves a 

1.2-mile-long HDD bore or buried submarine cable that extends from Outlook Park on Mitkof Island 

to Prolewy Point on Kupreanof Island, passing beneath the mouth of the Wrangell Narrows. 

Alternative 3 proposed to cross Frederick Sound by placing a submarine cable on the floor of 
Record of Decision

6  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Frederick Sound across the entrance to the Wrangell Narrows. The cable would have originated at 

Sandy Beach Park on Mitkof Island, extending 3 miles to come ashore near Prolewy Point on 

Kupreanof Island. The proposed crossing approaches for the Selected Alternative—the HDD bore or 

buried submarine crossing—are both less expensive than the 3.1-mile-long submarine cable proposed 

as part of Alternative 3. Further, the Wrangell Narrows entrance is a busy channel with potential 

issues related to anchor areas, fishing grounds, and dredging activities.

Alternative 4, which followed the other route corridor (the “Center-South” route), was 8 miles shorter 

than the Selected Alternative, 51.9 miles versus 59.9 miles, and followed about 3 more miles of 

existing road (36.6 miles of existing roads compared to 33.7 miles) (Table R-1). As a result, 

Alternative 4 has a smaller overall footprint than the Selected Alternative and results in fewer impacts 

for most of the selected environmental metrics summarized in Table R-1. However, shovel trails 

and/or temporary matting panels would cross more Class I and Class II streams under Alternative 4 

than under the Selected Alternative (and Alternative 3). Under Alternative 4, shovel trails and/or 

temporary matting panels would be required to cross 28 Class I streams and 14 Class II streams, 

compared to 10 Class I and 20 Class II streams that will be crossed by the Selected Alternative (Table 

R-1). While impacts are not expected to be significant under Alternative 4, higher numbers of stream 

crossings typically indicate a higher potential for short term sedimentation effects due to construction 

near a stream. 

Alternative 4 would affect fewer overall acres of wetlands, but this alternative is expected to require 

the use of substantially more temporary matting panels, with panels needed to support shovel trail 

access for an estimated 7.3 miles compared to 2.0 miles for the Selected Alternative (and Alternative 

3). Temporary matting panels would be installed in wetland areas where sufficient native materials 

(logs and slash) are not available for use as an underlayment to allow for the passage of wide tracked 

equipment. The 7.3 miles of temporary matting panels identified for Alternative 4 would be required 

to cross an extensive muskeg area west of the Duncan Canal crossing, with about 6 miles of panels 

required in a single continuous stretch (see Figure 2-3 in Chapter 2 of the Final EIS). The use of 

panels to span this type of distance is reportedly consistent with past uses, but more technically and 

logistically challenging than the type of use anticipated under the Selected Alternative.

Alternative 4 would also involve two marine crossings compared to one under the Selected Alternative 

(and Alternative 3). Viewed in terms of total marine crossing miles, the Selected Alternative requires 

the shortest marine crossing distance (1.2 miles) and Alternative 3 requires the most (3.1 miles), with 

Alternative 4 requiring a combined total of 1.5 miles of marine crossing. Alternative 4 involves two 

proposed submarine cable or HDD crossings at Wrangell Narrows and Duncan Canal. Alaska DNR 

commenting on the Draft EIS identified the presence of a commercial beam fishery in Duncan Canal 

that could potentially damage the proposed submarine crossing under Alternative 4. They also noted 

the potential for construction to overlap with the commercial Dungeness crab fishery in Wrangell 

Narrows and Duncan Canal.

One concern raised during scoping and public comment on the Draft EIS that pertains to the Selected 

Alternative (and Alternative 3) and not Alternative 4, is the potential visual impact of the portion of 

the transmission line that will extend north-northwest aboveground along the shoreline of Frederick 

Sound. Commenters felt that development of a new section of transmission line in this area would 

negatively affect the quality of the recreation and tourism experience for visitors. Based on the 

analysis presented in the Final EIS, parts of the single-pole wood structures that support the line will 

be visible from selected locations, with the proposed transmission line also likely visible as a linear 

break in the forest pattern when viewed from Frederick Sound, and where it would span the larger 

creeks that incise this stretch of shoreline. Views of the proposed project for ferry and cruise ship 

passengers will, however, likely be limited in duration as their respective vessels pass these specific 

locations. With this in mind, impacts will be limited and further minimized through the site-specific 
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Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  7

application of Forest Plan Standards and Guidelines and the project-specific mitigation measures 

identified in Table 2-3 in Chapter 2 of the Final EIS. 

Another identified concern that relates specifically to the Selected Alternative (and Alternative 3), 

involves the narrow area of land between Portage Bay and Duncan Canal that would be crossed by the 

Selected Alternative (and Alternative 3). This area, which separates the Lindenberg Peninsula from 

the rest of Kupreanof Island, has been identified as a pinch point that may restrict dispersal or 

migration of some land-based wildlife species. Old-growth forest in the vicinity of this area is 

naturally fragmented because it is interspersed between extensive areas of muskeg and other wetland 

complexes. Fragmentation has also occurred as a result of past timber harvest and to a lesser extent 

road development. Public comment on the Draft EIS also identified this area as an important flyway 

for migratory and resident waterfowl. The Selected Alternative is expected to have a moderate effect 

to connectivity in this area, with potential impacts reduced because the transmission line follows an 

existing road in this area. Potential risks of bird collision will be reduced through the application of 

the project-specific mitigation measures identified in Table 2-3 in Chapter 2 of the Final EIS.

The evaluation of potential environmental effects presented in the Final EIS indicates that the effects 

of the action alternatives would be broadly similar. Alternative 4 would, however, involve more Class 

I and II stream crossings, resulting in a higher potential for related effects than the other alternatives. 

Alternative 4 would also require more extensive use of temporary matting panels in a way that would 

be more technically and logistically challenging than the type of use anticipated under the Selected 

Alternative. Potential conflicts also exist between the commercial beam fishery in Duncan Canal and 

the submarine cable crossing option proposed under Alternative 4. In cases where the Selected 

Alternative has the potential for impacts that would not be incurred under Alternative 4, these impacts 

would be reduced through the site-specific application of Forest Plan Standards and Guidelines and the 

project-specific mitigation measures identified in Table 2-3 in Chapter 2 of the Final EIS. With these 

points in mind, I have selected Alternative 2 – Proposed Action from the Final EIS. 

Public Comments

The Forest Service received 88 unique written comment letters during public scoping for this proposed 

project. These letters combined included more than 280 individual comments. Many of these

comments were from Kupreanof residents concerned about the potential impact of the Northern 

Alternative, Option 2 on their community, as well as potential impacts to Petersburg Creek. Other 

concerns raised during public scoping are summarized in the Summary of Public Concerns section in 

Chapter 1 of the Final EIS. 

A total of 20 unique written comment letters were received from individuals, organizations, and 

government agencies during the 45-day comment period for the KPI Project Draft EIS. These letters 

combined included 144 individual comments. These comments are categorized, summarized, and 

addressed in Appendix A to the Final EIS. As indicated in Appendix A, some of these comments were 

related to environmental issues, others were concerned with broader procedural concerns. Two themes 

raised during public scoping relate to the potential development of localized alternative energy sources 

and the Kake Access Project. 

In making my decision, I recognize that potential localized sources of renewable energy, such as 

small-scale hydropower, wind, and solar energy continue to be explored as alternate sources of energy 

for the community of Kake. I understand that some members of the public would have liked to see 

one or more of these initiatives evaluated as a separate action alternative in the KPI Project EIS. A 

range of different renewable energy options have been suggested for Kake with varying degrees of 

feasibility analysis conducted to date. One or more of these options may be practical or feasible from 

a technical and economic standpoint, but this is not known based on the work conducted to date. From 

my perspective, the No Action Alternative is an alternative that would emphasize the development of 

alternative energy sources in place of the proposed transmission line. Under the No Action 
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8  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Alternative, future efforts to provide access to relatively low cost energy would be limited to 

alternative energy development in the immediate vicinity of Kake, with no opportunity for access to 

electricity generated elsewhere in the region. By authorizing the Selected Alternative, I expect that 

technical and economic feasibility of localized sources of energy will continue to be explored, but the 

option to develop the KPI Project and gain access to regional lower cost energy resources will also be 

available.

Many of the concerns raised during public scoping for this Project in 2010 were related to the 

possibility of a year-round road being constructed in conjunction with the KPI Project. Concern was 

expressed that a year-round road was either necessary for the construction of the KPI Project to move 

forward or would be facilitated by development of an electric transmission line. Much of this concern 

focused around the Northern route, which was identified as potential route for a year-round road. In 

January 2013, the Western Federal Lands Highway Division of the Federal Highway Administration 

(FHWA) and the Alaska Department of Transportation and Public Facilities (ADOT&PF) initiated the 

Kake Access Project EIS, which was intended to evaluate alternatives that would provide additional 

public access to Kake. As discussed in the EIS, there were some commonalities between the KPI 

Project and the Kake Access Project, with both projects evaluating the potential use of the Northern 

Route and Center-South route corridors, but the Kake Access Project also included other potential 

road locations, as well an alternative that would improve ferry service only. As a result, it was 

recognized that the best solution for each project may not involve action taken at the same place, and 

the two projects have been pursued independently. 

Since the Draft EIS for the KPI Project was published, FHWA and ADOT&PF have conducted 

additional studies to gauge support for the project, and solicited public input to help refine the Purpose 

and Need statement for the Kake Access Project EIS (FHWA 2015). However, in February 2016, 

citing a lack of federal funding and the high cost of operating and maintaining a shuttle ferry service 

across the Wrangell Narrows, the ADOT&PF formally notified the City of Kake and other 

communities via letter of their decision to “close-out the Kake Access federal project in order to 

investigate a more cost-effective project” (Luiken 2016). FHWA subsequently published a Notice to 

rescind the NOI for the KAP in the Federal Register on April 7, 2016 (Volume 81, Number 71). 

ADOT&PF has indicated that they plan to provide road access to Kake following the State’s 300-footwide right-of-way easement from Kake to Petersburg (ADOT&PF 2016). In a letter dated May 16, 

2016, ADOT&PF stated that “[u]nder the authorities of Section 4407 of Public Law 109-59 and the 

subsequent Memorandum of Understanding (MOU) dated September 29, 2006 between the State of 

Alaska and the Forest Service, the ADOT&PF has received a “D-1” planning easement from the 

Forest Service. This easement is for the planning and engineering of a proposed road and utility 

corridor connecting Kake and Petersburg. ... ADOT&PF is currently in the planning stages of 

designing a road alignment along this corridor. ... It is anticipated that much of the final roadway will 

be aligned in substantial proximity to existing logging road centerlines, when available.” The Forest 

Service believes that a Kake road project along this easement is reasonably foreseeable for the 

purposes of the cumulative effects analysis for KPI.

Consistency with the Forest Plan and other Applicable Laws and 

Regulations

This decision and the KPI Project Final EIS are consistent with the 2008 Forest Plan. The Selected 

Alternative follows a route that is identified as a Potential Power Transmission Corridor on the Land 

Use Designation (LUD) map that accompanied the ROD for the 2008 Forest Plan. Potential Power 

Transmission Corridor is one of four categories that comprise the Transportation and Utility System 

(TUS) LUD. The goal of the TUS LUD is to “provide for, and/or facilitate the development of, 

existing and future major public Transportation and Utility Systems, including those identified by the 

State of Alaska and the Alaska Energy Authority.” 
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  9

The KPI Project Final EIS and this decision are in compliance with NEPA, ANILCA, and all other 

applicable Federal and State laws and regulations. This ROD describes my decision to authorize the 

KPI Project, which is based on the EIS and the entire project record.

Summary of Decision Rationale

The Selected Alternative will enable the construction of a new electric transmission line that will 

connect the existing isolated electric system in Kake with SEAPA’s existing network and provide 

access to relatively low cost electricity.

Public scoping and internal review identified three potentially significant issues for evaluation in the 

EIS. These issues were resolved through the alternative development process by modifying the 

alternatives carried forward for detailed evaluation and dropping the Northern Alternative, Option 2 

from further consideration. The detailed resource-specific analyses presented in the EIS found that the 

overall magnitude and types of impact are broadly similar with no significant impacts expected under 

the Selected Alternative or Alternatives 3 and 4. Alternative 4 would, however, involve more Class I 

and II stream crossings, resulting in a higher potential for effects than the other alternatives. 

Alternative 4 would also require more extensive use of temporary matting panels in a way that would 

be more technically and logistically challenging than the type of use anticipated under the Selected 

Alternative. Potential conflicts also exist between the commercial beam fishery in Duncan Canal and 

the submarine cable crossing option proposed under Alternative 4. Alternative 3 would be more 

expensive than the Selected Alternative and involves a longer (3.1-mile) submarine crossing near the 

entrance to the Wrangell Narrows. 

With the above points in mind, I have selected Alternative 2 – Proposed Action from the Final EIS. 

My decision was also influenced by the fact that the Selected Alternative was the project proposed by 

the project applicant. The effects of the action alternatives would be broadly similar and directing the 

project applicant to construct the project along an alternate route (Alternative 4 from the Final EIS) 

would not result in substantially lower environmental impacts.

Alternatives

Alternatives Considered in Detail

Four alternatives were considered in detail in the EIS released for public comment. All alternatives, 

with the exception of Alternative 1, respond to the purpose and need. The Final EIS analyzed the 

following alternatives in detail: 

Alternative 1 – No Action

Alternative 1 is the No Action Alternative and is analyzed to provide a baseline for evaluation of the 

impacts associated with the action alternatives. Under this alternative, the Forest Service would not 

provide authorization for the proposed project and a new electric transmission line would not be built. 

The city of Kake would continue to be served by the existing, isolated electric system, which depends 

upon high-cost diesel generation. In the absence of the KPI Project, future efforts to reduce the cost of 

electricity would be limited to relatively small-scale renewable energy projects in the immediate 

vicinity and distributed power options, such as solar panels. 

Alternative 2 – Proposed Action

Alternative 2 is the Selected Alternative. This alternative is summarized above in the Selected 

Alternative section.
Record of Decision

10  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Alternative 3 – Northern Route with Submarine Cable

Alternative 3 is very similar to the Selected Alternative and slightly longer, 60.3 miles long versus 

59.9 miles long. Both alternatives originate at the existing SEAPA substation south of Petersburg, and 

staying south of Petersburg, follow an existing gravel road 3.5 miles east-northeast to Frederick 

Sound. The only difference between the two alternatives is their approach to crossing Frederick 

Sound and the Wrangell Narrows. Alternative 3 would cross Frederick Sound via a 3.1-mile-long 

submarine cable that would originate near Sandy Beach Park on Mitkof Island and come ashore near 

Prolewy Point on the eastern shore of Kupreanof Island. 

The Selected Alternative will, in contrast, continue northwest from Sandy Beach Park along Sandy 

Beach Road to Outlook Park. The portion of the line extending along Sandy Beach Road will be 

placed underground. From Outlook Park, the transmission line will cross Frederick Sound and the 

mouth of the Wrangell Narrows via a 1.2-mile-long HDD bore that will involve placing a cable 

beneath the channel or placement of a 1.2-mile-long buried submarine cable. 

From Prolewy Point, Alternative 3 would continue above ground following the same route as 

Alternative 2, north along Frederick Sound, and then west to Kake where it would terminate at a new 

substation located near the existing powerhouse. 

Alternative 4 – Center-South Route

Alternative 4 is 51.9 miles long. The majority of the transmission line (50.4 miles) would be above 

ground, with the remaining 1.5 miles located under Wrangell Narrows and Duncan Canal in two 

separate submarine cable or HDD crossings. The transmission line would have the same capacity and 

design features under all three action alternatives, including Alternative 4. Alternative 4, as proposed, 

would connect with the existing Tyee-Wrangell-Petersburg transmission line approximately 8 miles 

south of Petersburg, via a new tap or small switchyard that would be constructed at the selected 

connection location. Proceeding west, the proposed transmission line would cross the Wrangell 

Narrows and Duncan Canal via submarine cable or HDD crossings, approximately 0.6 mile and 0.9 

mile in length, respectively. Once across Duncan Canal, the transmission line route would continue 

across the South Lindenberg IRA to connect with existing Forest Roads, which it paralleled to Kake. 

Like Alternatives 2 and 3, this alternative would follow existing roads where possible (36.6 miles) and 

require the use of temporary access spurs (6.2 miles), shovel trails (6.5 miles), and temporary matting 

panels in some wetland areas (7.3 miles), with helicopters used to support construction activities,

especially in areas without roads.

Environmentally Preferred Alternative

Under Alternative 1 – No Action, the Forest Service would not authorize the KPI Project and a new 

electric transmission line would not be built. Alternative 1 would result in no Project-related 

environmental disturbance and is, therefore, the environmentally preferred alternative from a ground 

disturbance perspective. However, as noted above, under Alternative 1, the city of Kake would 

continue to be dependent on fossil fuel generation, which is less preferable than renewable energy 

sources, which could be used following completion of the KPI Project. 

Comparison of Alternatives

Table R-1 provides a summary of the proposed alternatives and the associated environmental effects 

assessed in the Final EIS. The effects are summarized from Chapter 3 of the Final EIS, which should 

be consulted for a full understanding of these and other environmental consequences.
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  11

Table R-1. Comparison of Alternatives

Unit of Measure

Alternative

1 - No 

Action

2 – Selected 

Alternative

3 – Northern 

Route with 

Submarine 

Cable

4 – CenterSouth Route

Project Description

Total Length (miles) 0 59.9 60.3 51.9

Miles on NFS Lands 0 48.9 50.6 45.9

Voltage 0 69 or 138 kV 69 or 138 kV 69 or 138 kV

Primary Structure Type 0 Single wood pole Single wood pole Single wood pole

Average Structure Height (feet) 0 55 55 55

Estimated Number of Structures 0 813 813 748

Average Span Length Between Structures 

(feet)

0 350 to 400 350 to 400 350 to 400

Overhead Length (miles) 0 57.3 57.3 50.4

 - Length along Existing Roads (miles) 0 33.7 33.7 36.6

 - Length along Existing Roads (%) 0 59% 59% 73%

Marine Crossings (miles) 0 1.2 3.1 1.5

 - Submarine Cable (miles)1/2/ 0 1.2 3.1 1.5

 - HDD Bore (miles)1/2/ 0 1.2 -- 1.5

Underground Length (miles) 0 1.4 -- --

Environmental Effects

Soils and Geology

New Detrimental Soil Disturbance:

- On NFS Lands (acres) 0 110 110 89

Cumulative Detrimental Soil Disturbance:

- On NFS Lands (acres) 0 159 159 170

Aquatic Resources

Subwatersheds with more than 20% of 

Basin Area Harvested Since 1984

(number)3/

0 0 0 0

Number of Proposed Stream Crossings by Shovel Trail/Matting Panel:

- Class I 0 10 10 28

- Class II 0 20 20 14

- Class III 0 16 16 4

Number of Proposed Stream Crossings by Temporary Access Spur:

- Class I 0 6 6 0

- Class II 0 5 5 6

- Class III 0 0 0 1
Record of Decision

12  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Table R-1. Comparison of Alternatives (continued)

Unit of Measure

Alternative

1 - No 

Action

2 – Selected 

Alternative

3 – Northern 

Route with 

Submarine 

Cable

4– Center- South 

Route

Timber

Total Productive Forest Land Disturbed 

(acres)

0 358 358 496

Total Suitable Forest Land Disturbed (acres)4/ 0 135 135 253

Removal of Timber from the Regional Timber 

Base (Net Sawlog Volume) (MBF)

0 1,524 1,524 1,693

Botany - Rare Plants

Sensitive Plants with Potential to Occur (risk)5/

- Large yellow lady’s slipper orchid 0 Low to Moderate Low to Moderate Low to Moderate

- Lobaria amplissima 0 Low to Moderate Low to Moderate Low to Moderate

- Alaska rein orchid 0 Low to Moderate Low to Moderate Low to Moderate

- Lesser round-leaved orchid 0 Low to Moderate Low to Moderate Low to Moderate

Invasive Plants

Total Acres Disturbed 0 891 873 739

Risk of Spread (Relative)6/ 0 Highest Second Highest Lowest

Wetlands

Project-Related Disturbance to Wetlands (acres):

 - Forested Wetlands 0 166 157 106

 - Emergent Short-sedge Wetlands 0 4 4 4

 - Moss Muskegs 0 95 93 67

 - Forested Wetland/Emergent Sedge 

Complex

0 238 238 116

Total Wetland Disturbance (acres)7/ 0 502 491 293

Wildlife and Subsistence

Impacts to Total POG (acres) 0 327 324 296

Impacts to High-Volume POG (acres) 0 99 97 51

Impacts to Large-Tree POG (acres) 0 12 12 3

POG affected within Beach Fringe and 

Riparian Buffers (acres)

0 182 178 130

Impacts to Deep Snow Winter Range for Deer 

(acres)

0 15 10 7

Deer Habitat Capability as Percent of 1954 

Values

0 84 83 83

Transportation

Total Unroaded Length (miles) 0 23.6 23.6 13.8

 - Length of Shovel Trails (miles) 0 21.6 21.6 6.5

 - Length of Temporary Matting (miles) 0 2.0 2.0 7.3

Length of Temporary Access Spurs (miles) 0 7.6 7.6 6.2

Number of Helicopter Pads 0 83 83 47

Scenery

Total Disturbance (acres) in:

- Distinctive Scenic Attractiveness Class 0 0 0 0

- Foreground Distance Zone 0 325 307 132

- Areas with Very High Existing Scenic 

Integrity

0 309 309 222
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  13

Table R-1. Comparison of Alternatives (continued)

Unit of Measure

Alternative

1 - No 

Action

2 – Selected 

Alternative

3– Northern 

Route with 

Submarine 

Cable

4– Center- South 

Route

Recreation

Net change from SPNM, SPM, or RN ROS 

settings to RM (acres)

0 417 417 241

Inventoried Roadless Areas

Total Disturbance by IRA (acres):

- North Kupreanof (211) 0 157.3 157.3 0

- Missionary (212) 0 5.2 5.2 0

- Five Mile (213) 0 233.8 233.8 0

- South Kupreanof (214) 0 0 0 279.1

- Total IRA Disturbance 0 396.3 396.3 279.1

Cultural Resources

Effects on NRHP Eligible Cultural Resource 

Sites

None None None None

Notes:

HDD = horizontal directionally drilled

MBF = thousand board feet

POG = Productive Old-Growth

ROS = Recreation Opportunity Spectrum; SPNM = Semi-Primitive Non-Motorized; SPM = Semi-Primitive Motorized; RN = 

Roaded Natural; RM = Roaded Modified

NRHP = National Register of Historic Places

1/ The Selected Alternative would cross Frederick Sound and the mouth of the Wrangell Narrows via HDD bore or buried 

submarine cable depending on geophysical survey results.

2/Alternative 4 would cross Wrangell Narrows and Duncan Canal using a buried submarine cable or HDD bore depending on 

geophysical survey results. Different approaches could be used for each crossing depending on geophysical conditions.

3/ Estimates since 1984 include estimated disturbance by alternative.

4/ Totals include both old-growth and young-growth suitable forest land.

5/ A low to moderate rating here means that the action alternatives may adversely impact individuals, but are not likely to 

result in a loss of viability of these plant species in the analysis area, nor cause a trend toward federal listing. None of the 

alternatives would have direct or indirect effects on known populations of sensitive plant species. This rating is based on 

potential effects to undetected populations and potential habitat.

6/ Risk of invasive plant spread is directly related to total acres disturbed, which is reflected in the relative ranking in this 

table.

7/ Project disturbance totals include potential right-of way clearing. Totals may not sum due to rounding.

Alternatives Considered but Eliminated from Detailed Study

A transmission line that would connect Kake with Petersburg has been discussed for many years, with 

related studies dating back to the 1970s. The alternatives considered as part of these studies and the 

process that led to the identification of the “northern” and “center-south” routes are discussed in the 

Alternatives Considered but Eliminated from Detailed Study section in Chapter 2 of the Final EIS. 

Alternative sources of energy are also discussed in the Alternatives Considered but Eliminated from 

Detailed Study section in Chapter 2 of the Final EIS. 

Public Involvement

To seek input on the KPI Project, the Forest Service employed public meetings, Federal Register 

notices, newspaper ads, government-to-government consultation, group and individual meetings, and 

the Tongass National Forest Schedule of Proposed Actions (SOPA). 
Record of Decision

14  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

The Notice of Intent (NOI) to prepare an EIS for the KPI Project was published in the Federal Register 

on May 7, 2010. A corrected NOI (following changes to the Proposed Action) to prepare an EIS was 

published on July 28, 2014. The Draft EIS was published in December 2014, followed by a 45-day 

public comment period. A complete list of all members of the public, groups, and agencies that 

received a copy of the Draft EIS is located in Chapter 4 of the Final EIS. Responses to comments on 

the Draft EIS are in Appendix A of the Final EIS. 

Chapter 1 of the Final EIS provides more detailed information concerning public involvement, timing 

of activities, and consultation with Federal, State, and tribal entities. 

Mitigation

The analysis documented in the Final EIS discloses the possible adverse effects of implementing the 

actions proposed under each alternative. Mitigation measures are guided by Forest-wide goals and 

objectives, applicable LUD management prescriptions, and Forest Plan Standards and Guidelines.

Site-specific measures designed to avoid or minimize adverse impacts are summarized in Table 2-3 in 

Chapter 2 of the Final EIS. These measures address activities associated with structure installation, 

shovel trails, use of matting, temporary access spurs, helicopter pads, right-of-way clearing, and 

system operation and maintenance. In addition to the mitigation measures included in Table 2-3, all 

appropriate Forest Service Region 10 (R10) BMPs, updated Forest Service National Core BMPs 

(USDA Forest Service 2012a), and State of Alaska BMPs (Alaska Department of Environmental 

Conservation [DEC] 2011) will apply and are further described in Chapter 2 of the Final EIS. These 

measures are included as Exhibit R-1 to this ROD.

Monitoring

Monitoring is a tool that involves gathering data and information and observing the results of 

management activities as a basis for evaluation. Monitoring activities can be divided into projectspecific monitoring and Forest Plan monitoring. The National Forest Management Act (NFMA)

requires national forests to monitor and evaluate their Forest Plans (36 CFR 219.110). Chapter 6 of 

the Forest Plan includes the monitoring activities to be conducted as part of the Forest Plan 

implementation. Monitoring of the Selected Alternative will be done during implementation. Specific 

monitoring items are outlined in the Monitoring section in Chapter 2 of the Final EIS and included in 

Exhibit R-1 to this ROD. These monitoring items a will be included in the construction stipulations 

that are part of the special use permit. The project applicant will be required to comply with all terms 

and conditions of the permit. 

Project Record

The project record includes the Draft EIS and Final EIS, Forest Plan, all material incorporated by 

reference, and other critical materials produced during the environmental analysis of this project. The 

project record is available for review at the Forest Service, Petersburg Ranger District in Petersburg, 

Alaska.

Map and Number Disclaimer

All map products in this document are reproduced from geospatial information prepared by the Forest 

Service. Geographic information system (GIS) data and product accuracy may vary. Using GIS 

products for purposes other than those for which they were created may yield inaccurate or misleading 

results. The Forest Service reserves the right to correct, update, modify, or replace GIS products 

without notification. For more information, contact the Petersburg Ranger District. 
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  15

In addition, the accuracy of calculations made from GIS layers varies with the quality of the mapping

itself. Numbers presented in tables in this document may not sum correctly due to rounding. Other 

slight anomalies due to rounding may also occur. Therefore, all numbers should be considered as 

approximate. 

Findings Required by Law

Alaska National Interest Lands Conservation Act

Subsistence Evaluation and Findings (Section 810)

A subsistence evaluation was conducted in accordance with ANILCA Section 810. Based on this 

evaluation, the EIS concluded that none of the proposed alternatives would present “a significant 

possibility of a significant restriction” of subsistence uses for any subsistence resources (fish and 

marine invertebrates, food plants, personal use timber, upland game birds and waterfowl, furbearers, 

big game, and marine mammals). 

Bald and Golden Eagle Protection Act of 1940 (as amended)

The Bald and Golden Eagle Protection Act provides for the protection of the bald eagle and the golden 

eagle by prohibiting, except under certain specified conditions, the taking, possession and commerce 

of such birds. One known bald eagle nest is within 660 feet of a proposed harvest unit, and timing 

restrictions for harvest will be implemented if the nest is found to be active to comply with the Bald 

and Golden Eagle Protection Act. Should an active nest be found adjacent to any proposed activity, 

appropriate nest site buffers and timing restrictions will be implemented. Bald eagles are managed by 

the U.S. Fish and Wildlife Service under the National Bald and Golden Eagle Protection Act and 

through the Bald Eagle Take Permit Program.

Clean Air Act of 1970 (as amended)

Emissions from implementation of the Selected Alternative will be of short duration and are not 

expected to exceed State of Alaska ambient air quality standards (18 Alaska Administrative Code 

[AAC] 50).

Clean Water Act of 1977 (as amended)

Project activities meet all applicable State of Alaska Water Quality Standards. Congress intended the 

Clean Water Act of 1972 (Public Law 92-500) as amended in 1977 (Public Law 95-217) and 1987 

(Public Law 100-4) to protect and improve the quality of water resources and maintain their beneficial 

uses. Section 313 of the Clean Water Act and Executive Order 12088 of January 23, 1987 address

Federal agency compliance and consistency with water pollution control mandates. Agencies must be 

consistent with requirements that apply to "any governmental entity" or private person. Compliance is 

to be in line with "all Federal, State, interstate, and local requirements, administrative authority, and 

process and sanctions respecting the control and abatement of water pollution."

The Clean Water Act (Sections 208 and 319) recognized the need for control strategies for nonpoint 

source pollution. The National Nonpoint Source Policy (December 12, 1984), the Forest Service 

Nonpoint Strategy (January 29, 1985), and the U.S. Department of Agriculture (USDA) Nonpoint 

Source Water Quality Policy (December 5, 1986) provide a protection and improvement emphasis for 

soil and water resources and water-related beneficial uses. Soil and water conservation practices (also 

called BMPs) are recognized as the primary control mechanisms for nonpoint source pollution on NFS 

lands (USDA Forest Service 2006, 2012). The U.S. Environmental Protection Agency (EPA) supports 

this perspective in their guidance, "Nonpoint Source Controls and Water Quality Standards" (August 

19, 1987).
Record of Decision

16  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Endangered Species Act of 1973 (as amended)

There are 16 species identified as potentially occurring in the project area, 14 of which are fish 

species. All 16 of these species are addressed in the Biological Assessment (BA) prepared for this 

project (Tetra Tech, Inc. 2015). None of the listed fish species occur in the project area, and the 

project would not adversely affect listed wildlife species or their habitats, nor would they be likely to 

result in a trend toward Federal listing or a loss of viability for any sensitive species. The BA prepared 

for the project was sent to the NOAA Fisheries as part of Section 7 consultation under the Endangered 

Species Act. On January 4, 2016, NOAA Fisheries concurred with the finding of “not likely to 

adversely affect” humpback whales, the western Distinct Population Segment (DPS) of the Steller sea 

lion, six Chinook salmon Evolutionary Significant Units (ESU's), five ESUs of Steelhead trout, Snake 

River sockeye salmon ESU, Hood Canal summer-run chum salmon ESU, or Lower Columbia River 

Coho salmon ESU. Mitigation measures outlined in their concurrence letter have been incorporated 

into the Draft ROD. The BA is included in the project record. 

Magnuson-Stevens Fishery Conservation and Management Act of 

1996

The potential effects of the project on Essential Fish Habitat (EFH) were evaluated in the Aquatic 

Resources section in Chapter 3 of the Draft EIS. This discussion includes reference to the MagnusonStevens Fisheries Conservation Act that requires the Forest Service to consult with the National 

Marine Fisheries Service (NMFS) on projects that may affect EFH. The assessment also described the 

proposed action and assessed the potential effects of the action alternatives on freshwater and marine 

EFH. The Forest Service determined that the KPI Project may adversely affect EFH because fish 

streams are directly or indirectly affected by forest clearing and disturbance, timber transport and 

processing, and submarine cable crossings. The Selected Alternative will result in minor effects on 

water quality and aquatic habitat. By following the Standards and Guidelines in the Forest Plan, all 

appropriate R10 BMPs, updated Forest Service National Core BMPs (USDA Forest Service 2012), 

State of Alaska BMPs (Alaska Department of Environmental Conservation [ADEC] 2011), and the 

project-specific mitigation measures outlined in Exhibit R-1, the effects on EFH will be minimized.

The Draft EIS was provided to the National Marine Fisheries Service to formally initiate the 

consultation process according to the agreement dated June 26, 2007 between the Forest Service and 

NMFS. NMFS did not provide any comments. 

Information on the mitigation measures and applicable Forest Plan Standards and Guidelines to 

minimize effects to EFH are discussed in Chapter 2 of the Final EIS. A copy of the Final EIS and 

ROD were sent to NMFS. This satisfies the EFH consultation requirement based on the 2007 

agreement with NMFS.

Marine Mammal Protection Act of 1972

Actions authorized as part of the Selected Alternative will adhere to the requirements of the Marine 

Mammal Protection Act. Marine mammal viewing guidelines administered by NMFS and enforced by 

the Coast Guard are sufficient for their protection. Contractors and employees will be required to 

follow provisions on marine wildlife guidelines, including special prohibitions on approaching 

humpback whales in Alaska as defined in 50 CFR 224.103. NMFS administers the Marine Mammal 

Protection Act, which prohibits “take” of all marine mammal species in U.S. waters. “Take” is 

defined as “to harass, hunt, capture, or kill, or attempt to harass, hunt, capture, or kill any marine 

mammal.” Harassment is defined as “any act of pursuit, torment, or annoyance which has the 

potential to injure a marine mammal or marine mammal stock in the wild; or has the potential to 

disturb a marine mammal stock in the wild by causing disruption of behavior patterns, including, but 

not limited to, migration, breathing, nursing, breeding, feeding, or sheltering.”
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  17

2008 Tongass National Forest Land and Resource Management 

Plan

This decision and the KPI Project Final EIS are consistent with the 2008 Forest Plan. The Selected 

Alternative follows a route that is identified as a Potential Power Transmission Corridor on the LUD 

map that accompanied the ROD for the 2008 Forest Plan. Potential Power Transmission Corridor is 

one of four subcategories that comprise the TUS LUD. The goal of the TUS LUD is to “provide for, 

and/or facilitate the development of, existing and future major public Transportation and Utility 

Systems, including those identified by the State of Alaska and the Alaska Energy Authority.” 

National Historic Preservation Act of 1966 (as amended)

Cultural resource surveys of various intensities were conducted in the analysis area to ensure that the 

procedural requirements of 36 CFR 800 were met and in accordance with the Programmatic 

Agreement (2010) among the Forest Service Alaska Region, the Advisory Council on Historic 

Preservation (ACHP), and the State Historic Preservation Officer (SHPO). A finding of “no historic 

properties affected” was recommended for all alternatives for the KPI Project. Under the terms of the 

existing Programmatic Agreement with the Alaska State Historic Preservation Officer and the 

Advisory Council on Historic Preservation (USDA Forest Service 2002, as amended 2010) “the Forest 

may proceed with the undertaking in lieu of a consensus determination of eligibility pursuant to 36 

CFR 800.4.” The Forest Service engaged in consultation regarding our determination 

recommendations with the Alaska State Historic Preservation Officer and received concurrence with

our finding of no historic properties affected determination in September 2015.

Executive Orders

Executive Order 11593 (Cultural Resources)

Executive Order 11593 directs Federal agencies to inventory cultural resources under their 

jurisdiction, to nominate to the National Register of Historic Places (NRHP) all federally owned 

properties that meet the criteria, to use due caution until the inventory and nomination processes are 

completed, and to assure that Federal plans and programs contribute to the preservation and 

enhancement of properties not federally owned. This project considered impacts to historic properties 

as part of the National Historic Preservation Act compliance and thus satisfies the requirements of 

Executive Order 11593. 

Executive Order 11988 (Floodplains)

Executive Order 11988 directs Federal agencies to take action to avoid, to the extent possible, the 

long- and short-term adverse effects associated with the occupancy and modification of floodplains. 

The numerous streams in the KPI Project area make it essentially impossible to avoid crossing all 

floodplains. Site-specific mitigation measure RMA 1 (see Table 2-3 in Chapter 2 of the Final EIS) 

requires that transmission line structures be sited to avoid floodplains to the extent possible. The 

measure continues that where this is not possible, BMPs and Forest Plan Standards and Guidelines 

will be implemented to reduce overall disturbance.

Executive Order 11990 (Wetlands)

Executive Order 11990 requires Federal agencies to avoid, to the extent possible, the long- and shortterm adverse effects associated with the destruction or modification of wetlands. Due to the extensive 

nature of wetlands and the interspersed nature of wetlands with uplands in the KPI project area, 

complete avoidance of all wetlands is not possible under any of the action alternatives. The Selected 

Alternative will permanently affect an estimated 86 acres of wetlands due to structure installation. 

The use of temporary access spurs and temporary shovel trails and matting panels will affect 
Record of Decision

18  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

approximately 28 more acres. Right-of-way clearing could also potentially affect wetland acres in 

cases where ground disturbance is required. An estimated 388 acres of the right-of-way for the 

Selected Alternative consist of wetlands that could be affected by the Selected Alternative. The

effects of the project on wetlands will adhere to State of Alaska BMPs (ADEC 2011) which include, at 

a minimum, the Federal baseline provisions in 33 CFR 323, application of Standards and Guidelines in 

the Forest Plan, and the project-specific mitigation measures outlined in Exhibit R-1 for RMA 2. 

Executive Order 12898 (Environmental Justice)

Executive Order 12898 directs Federal agencies to address whether a disproportionately high and 

adverse human health or environmental impact on minority populations, low-income populations, or 

Indian tribes is likely to result from the proposed action and any alternatives. Kake meets the White 

House’s Council on Environmental Quality’s (CEQ’s) definition of a minority community. Efforts 

were made during the public participation process to inform all parties of the project and its possible 

effects through notices in local papers, local meetings, and tribal government correspondence. No 

disproportionately high and adverse human health or environmental impacts were identified.

Executive Order 12962 (Aquatic Systems and Recreational Fisheries)

Executive Order 12962 requires Federal agencies to evaluate the effects of proposed activities on 

aquatic systems and recreational fisheries. The Selected Alternative minimizes the effects on aquatic 

systems through project design, application of Forest Plan Standards and Guidelines, BMPs, and sitespecific mitigation measures. Under the Selected Alternative, recreational fishing opportunities will 

remain essentially the same as the current condition because aquatic habitats are protected through 

implementation of R10 BMPs (12.6, 12.6a, and 13.16) and project-specific mitigation measures 

outlined in Exhibit R-1; particularly F1-F18.

Executive Order 13007 (Indian Sacred Sites)

Executive Order 13007, Indian Sacred Sites, provides presidential direction to Federal agencies to give 

consideration to the protection of American Indian sacred sites and allow access where feasible. In a 

government-to-government relationship, the tribal government is responsible for notifying the agency 

of the existence of a sacred site. A sacred site is defined as a site that has sacred significance due to 

established religious beliefs or ceremonial uses, and which has a specific, discrete, and delineated 

location that has been identified by the tribe. Tribal governments or their authorized representatives 

have not identified any specific sacred site locations in the project area. 

Executive Order 13112 (Invasive Species)

Executive Order 13112 requires Federal agencies (in part) to evaluate whether the proposed activities 

will affect the status of invasive species; and to not carry out activities that promote the introduction or 

spread of invasive species unless the agency has determined that the benefits of such action outweigh 

the potential harm caused by invasive species; and that all feasible and prudent measure to minimize 

risk of harm will be taken in conjunction with the actions. The Selected Alternative implements 

specific measures to minimize the introduction and spread of invasive species. 

Executive Order 13175 (Government-to-Government Consultation)

Executive Order 13175 directs Federal agencies to respect tribal self-government, sovereignty, and 

tribal rights, and to engage in regular and meaningful government-to-government consultation with 

tribes on proposed actions with tribal implications. The Forest Service conducted government-togovernment consultation with the Organized Village of Kake, Kake Tribal Corporation, and the 

Petersburg Indian Association. Input was sought from additional tribal groups that had the potential to 

be culturally affiliated with the project area. These groups include the Wrangell Cooperative 

Association, Sealaska Corporation, Sealaska Heritage, and the Central Council of the Tlingit and 
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  19

Haida Indian Tribes of Alaska. Tribal governments and organizations did not express any concerns 

about the KPI Project during initial consultation and discussions. Regular consultation will continue 

during the planning of this proposed project and beyond. Tribal consultation does not imply that the 

tribes endorse the Selected Alternative or any of the alternatives. 

Executive Order 13443 (Hunting Heritage and Wildlife Conservation)

Executive Order 13443 directs Federal agencies to facilitate the expansion and enhancement of 

hunting opportunities and the management of game species and their habitat. The analysis considered 

and disclosed the effects on hunting activities. The Selected Alternative will maintain current hunting 

opportunities by adhering to the Forest Plan Standards and Guidelines that maintain habitat for hunted 

species. 

Executive Order 13186 Migratory Birds 

The Migratory Bird Treaty Act of 1918 (amended in 1936 and 1972) prohibits the taking of migratory 

birds, unless authorized by the Secretary of Interior. The law provides the primary mechanism to 

regulate waterfowl hunting seasons and bag limits, but its scope is not just limited to waterfowl. The 

migratory species that may stay in the area utilize most, if not all, of the habitats described in the 

analysis for breeding, nesting, and raising their young. The effects on these habitats were analyzed for 

this project. The decision will not have a significant direct, indirect, or cumulative effect on any 

migratory bird species in the project area. The migratory bird species most likely to be adversely 

affected by the project are those that primarily nest in old-growth forests. Migratory birds would be 

most susceptible to impacts from vegetation removal occurring in suitable nesting habitat during the 

nesting/fledging period. The transmission line would be built to Avian Power Line Interaction 

Committee (APLIC) standards, thereby minimizing the risk of migratory birds potentially colliding 

with the transmission line and being electrocuted (APLIC 2006).

Process for Implementation

Under Title V of FLPMA, the Forest Service is responsible for processing right-of-way applications to 

determine whether, and under what terms and conditions, to authorize proposed transmission line 

projects on NFS land. 

My decision authorizes the right-of-way through issuance of a 20-year special use permit, which 

includes terms and conditions based on the Final EIS, and other rules and regulations applicable to 

Federal lands. 

Before the Forest Service issues a construction permit, the project applicant must prepare, among other 

items, a Plan of Development that includes final engineering and design drawings. The Plan of 

Development will present the results of the submarine topographical survey and subsurface profile that 

will be completed to inform the decision about the type of crossing that will be employed HDD boring 

or buried submarine cable) and determine the best crossing route and associated terminal locations.

Other Federal and State permits, licenses and certificates that are required are identified in the Federal 

and State Permits, Licenses and Certificates section in Chapter 1 of the Final EIS. If the project 

applicant does not obtain these approvals, the Forest Service will not issue the construction permit.

This includes obtaining a utility permit from ADOT&PF where the Selected Alternative enters into 

easements granted to ADOT&PF under Section 4407 of the Safe, Accountable, Flexible, Efficient 

Transportation Equity Act: A Legacy for Users (SAFETEA-LU). The ROD and issuance of a 20-year 

special use permit will not infringe on the rights of ADOT&PF offered under said granted easements. 

It is assumed that the Project will apply for a utility permit under the State process for easement 

outlined under Alaska Statute 38.05.
Record of Decision

20  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

Proposed changes to the authorized project actions or new information will be subject to the 

requirements of NEPA, NFMA, Section 810 of ANILCA, and other laws concerning such changes.

Any proposed changes to the design, location, Forest Plan Standards and Guidelines, or other 

mitigation measures for the project will also be documented at the time of implementation. The 

Responsible Official will determine whether the proposed change is a substantial change to the 

Selected Alternative as planned and already approved, and whether the change is relevant to 

environmental concerns. Connected or interrelated changes to particular areas or specific activities 

will be considered in making this determination. The cumulative impacts of these changes will also be 

considered. In determining if any NEPA action is required for changes during implementation, the 

Responsible Official will consider the criteria in 40 CFR 1502.0(c) and Forest Service Handbook 

(FSH) 1909.15, Section 18.

Adjustments are expected during final engineering design for the purpose of improving structure 

locations and to better meet on-site resource management objectives. These adjustments are not 

expected to represent substantial changes to environmental concerns or require additional NEPA 

analysis. However, changes made during implementation will be reviewed, documented, and 

approved by the Responsible Official through the Tongass Change Analysis process (Tongass 

National Forest Supplement FSH 1909.15-2009-1). 

Administrative Review – Opportunity to Object

This decision is subject to the project-level predecisional administrative review process pursuant to 

Title 36 CFR Part 218, subparts A and B. Individuals or organizations who submitted specific written 

comments regarding the proposed project either during scoping or another designated opportunity for 

public comment in accordance with 36 CFR 218.5(a) may file objections to this draft decision. Issues 

raised in objections must be based on previously submitted, timely, specific written comments 

regarding the proposed project unless based on new information arising after previous designated 

opportunities.

Individual members of organizations must have submitted their own comments to meet the 

requirements of eligibility as an individual; objections received on behalf of an organization are 

considered as those of the organization only. If an objection is submitted on behalf of a number of 

individuals or organizations, each individual or organization listed must meet the eligibility 

requirement of having previously submitted comments on the project (36 CFR 218.7). Names and 

addresses of objectors will become part of the public record.

Incorporation of documents by reference in the objection is permitted only as provided for at 36 CFR 

218.8(b).

The objection must be in writing and meet the objection content requirements at 36 CFR 218.8(d).

The objection must be filed with the Reviewing Officer: 

Beth Pendleton, Regional Forester

USDA Forest Service, Alaska Region

P.O. Box 21628

709 W. 9th Street

Juneau, AK 99802-1628

Email address: objections-alaska-regional-office@fs.fed.us 

Fax: (907) 586-7840

Phone: (907) 586-8863

Written objections, including attachments, must be filed (regular mail, fax, email, hand delivery, or 

express delivery) with the Reviewing Officer at the correct location within 45 calendar days of the 

date that the legal notification of opportunity to object to this draft decision is published in the 
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  21

Ketchikan Daily News, the official newspaper of record. The publication date in the newspaper of 

record is the exclusive means for calculating the time to file an objection.

Those wishing to submit objections to this draft decision should not rely upon dates or timeframe 

information provided by any other source. The regulations prohibit extending the time to file an 

objection. A copy of the legal notice will also be posted on the Forest Service project website at 

http://www.fs.fed.us/nepa/nepa_project_exp.php?project=31761.

Hand-delivered written objections will be accepted at the Regional Office during normal business 

hours (8:00 am through 4:30 pm) Monday through Friday, excluding holidays. Electronic objections 

must be submitted in a format such as an email message, portable document format (.pdf), plain text 

(.txt), rich text format (.rtf), and Word (.doc or .docx). It is the responsibility of objectors to ensure 

their objection is received in a timely manner (36 CFR 218.9). All objections are available for public 

inspection during and after the objection process.

If objections are received, there is a 45-day objection review period in which the Responsible Official, 

the Reviewing Officer, and the objectors may meet to attempt to resolve issues. At the end of the 45 

days, the Reviewing Officer will issue a written response detailing how the objections have been 

addressed, which may also include instructions to the Responsible Official (36 CFR 218.11(b)).

Implementation Date

A final decision on projects subject to the objection process may occur on, but not before, five 

business days from the close of the objection filing period, if no objections are received (36 CFR 

218.12(c)(2)).

If objections are received, a final decision will not be signed until all concerns and instructions 

identified by the Reviewing Officer in the objection response have been addressed by the Responsible 

Official (36 CFR 218.12(b)).

Implementation of decisions subject to the objection process may commence immediately after a final

decision is signed. There is no requirement to publish notification of the decision.

Contact Information

For additional information concerning this draft decision, contact: Tom Parker, Supervisory Resource 

Staff, Tongass National Forest, Petersburg Ranger District, P.O. Box 1328, Petersburg, AK 99833 or 

via phone at (907)-772-5974.

Responsible Official

M. EARL STEWART

Forest Supervisor

Tongass National Forest
Record of Decision

22  Draft Record of Decision Kake to Petersburg Transmission Line Intertie Project

References

ADEC (Alaska Department of Environmental Conservation). 2011. Alaska Storm Water Guide. 

Available online at http://dec.alaska.gov/water/wnpspc/stormwater/Guidance.html

ADOT&PF (Alaska Department of Transportation and Public Facilities). 2016. Letter from Michael 

J. Coffey, Director, Southcoast Division, ADOT&PF to Maria Lisowski, Director, Ecosystem 

Planning and Budget, USDA Forest Service, Region 10. May 16.

Alexander, S. J., E.B. Henderson, and R. Coleman. 2010. Economic Analysis of Southeast Alaska: 

Envisioning a Sustainable Economy with Thriving Communities. Forest Service, Alaska 

Region Publication R10-MB-725, Juneau, AK, 93 p. 

APLIC (Avian Power Line Interaction Committee). 2006. Suggested Practices for Avian Protection 

on Power Lines: The State of the Art in 2006. Edison Electric Institute, APLIC, and the 

California Energy Commission. Washington, D.C. and Sacramento, CA. 

http://www.aplic.org/

Black & Veatch. 2012. Southeast Alaska Integrated Resource Plan. Prepared for the Alaska Energy 

Authority. Available online at: http://www.akenergyauthority.org/southeastIRP.html

Fay, G., A. V. Meléndez and T. Schwörer. 2012a. Power Cost Equalization Funding Formula Review. 

Report prepared for the National Renewable Energy Laboratory. Institute of Social and 

Economic Research, University of Alaska Anchorage. March.

Fay, G., A. V. Meléndez, and C. West. 2012b. Alaska Energy Statistics 1960-2011 Preliminary

Report. Prepared by the Institute of Social and Economic Research, University of Alaska 

Anchorage in collaboration with Alaska Energy Authority. November. 

Federal Highway Administration. 2015. Kake Access Public Informational Meeting Presentation. 

Alaska Department of Transportation & Public Facilities (ADOT&PF) Southcoast Region and 

the Federal Highway Administration (FHWA) Western Federal Lands Highway Division 

(WFLHD). September. Available online at: http://flh.fhwa.dot.gov/projects/ak/kake/ 

Accessed on September 24, 2015.

Hittle (D. Hittle and Associates). 2014. Kake-Petersburg Intertie Study Update. Revised Route 

Options and Estimated Costs of Construction. Final Report. Prepared for Southeast Alaska 

Power Agency, Ketchikan, Alaska. 

Luiken, M. 2016. Letter from Commissioner Marc Luiken, Office of the Commissioner, ADOT&PF 

to the Honorable Christine Bitterman, Mayor of Kake. February 18.

Stangl, J.T. 2009. Tongass National Forest Project Level Goshawk Inventory Protocol. USDA Forest 

Service, Sitka, AK. 9 pp. 

Tetra Tech, Inc. 2015. Kake to Petersburg Transmission Line Intertie Project Biological Assessment. 

Prepared for the USDA Forest Service, Petersburg Ranger District, Tongass National Forest. 

November 2015. 31 pp.

USDA Forest Service. 2002, as amended 2010. Programmatic Agreement with the Alaska State 

Historic Preservation Officer and the Advisory Council on Historic Preservation. 

USDA Forest Service. 2006. FSH 2509.22 – Soil and Water Conservation Handbook. Forest Service 

Handbook. Alaska Region (Region 10). Juneau, Alaska.
Record of Decision

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision  23

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

Region, R10-MB-603b.

USDA Forest Service. 2012. National Best Management Practices for Water Quality Management on 

National Forest System Lands. FS-990a. April.
Exhibit R-1

Mitigation and Monitoring Measures
Exhibit R-1 

Mitigation and Monitoring Measures

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision Exhibit R-1  R-1

Mitigation Measures

The EIS discloses possible adverse impacts and measures to mitigate these impacts. Mitigation 

measures are guided by Forest-wide goals and objectives, applicable LUD management prescriptions, 

and Forest Plan Standards and Guidelines. Specific mitigation measures, designed to avoid or 

minimize adverse impacts, were incorporated into the preliminary Project design, and will be included 

in the final design and implementation. These site-specific mitigation measures are found in Table 2-3

in Chapter 2 of the Final EIS (and below in Table R.1-1) and address activities associated with 

structure installation, shovel trails, use of matting, temporary access spurs, helicopter pads, right-ofway clearing, and system operation and maintenance. In addition to the mitigation measures displayed 

in Table R-1-1, all appropriate R10 BMPs, Forest Service National Core BMPs (USDA Forest Service 

2012), and State of Alaska BMPs (ADEC 2011) will apply. These BMPs are described below. 

Table R-1-1. Site-specific Mitigation Measures for Clearing and Construction-related 

Activities

Mitigation 

Measure Description

General Mitigation Measures

G1

Conduct environmental staff review of final construction drawings and specifications prior to the 

package being sent out to bidding contractors to ensure that the package reflects and adheres to 

the mitigation measures outlined in this NEPA process. This effort will include Project Engineer, 

Project Manager, and Forest Service or approved third-party Environmental Compliance Monitor.

G2

Prior to construction, review plans for the clearing required for the transmission line right-of-way 

for conformance with permits and mitigation measures outlined during the NEPA process. This 

effort will include Project Engineer, Project Manager, and Forest Service or approved third-party 

Environmental Compliance Monitor.

G3

Prior to construction, inspect areas marked for clearing to determine conformance with agreed 

upon plans, and the need for adjustments based on special site conditions. Any changes or 

potential realignments will follow additional review requirements as outlined in Mitigation 

Measure S1. 

Soils/Aquatic Resources

F1 Minimize clearing in areas with high or very high mass movement potential.

F2 Suspension cable logging systems or other low impact system will be required in areas with high 

mass movement potential or on McGilvery soils.

F3 Required split yarding and directional felling along all streams that cannot be avoided or spanned 

(R10 BMPs 12.6, 12.6a, and 13.16).

F4 Span, without clearing, steep v-notch streams with high erosion potential.

F5

Establish timing restrictions for any instream activities in fish-bearing streams and streams with a 

downstream influence on fish habitat (R10 BMP 14.6 and Fish Standards and Guidelines). 

Locations and operating plans for heavy equipment placed in the right of way must be specified to 

ensure that all necessary stream crossings are specified and mitigated.

F6

Develop and implement an erosion control and sediment plan that covers all disturbed areas, 

including borrow, stockpile, fueling, and staging areas used during construction activities (Fac-2, 

USDA Forest Service 2012). Measures will be developed to reestablish vegetation or otherwise 

stabilize soils (R10 BMPs 14.8 and 14.14).

F7

Remove construction slash in streams to ensure that debris generated during construction is 

prevented from obstructing channels or encroaching on streams. Right-of-way slash must not be 

left or placed below the high water mark at power line stream crossings (R10 BMP 14.19)

F8

Avoid construction in areas with high mass movement potential, when possible, by limiting the 

number the structures and by spanning areas of concern. Structure locations should incorporate 

site-specific geotechnical investigations to ensure location at stable sites

F9 To the extent practicable, implement feathering of edges where right-of-way clearing approaches 

within 100 feet of a temperature sensitive stream.
Mitigation and Monitoring Measures

R-2  Draft Record of Decision Exhibit R-1 Kake to Petersburg Transmission Line Intertie Project

Table R-1-1. Site-specific Mitigation Measures for Clearing and Construction-related 

Activities (continued)

Mitigation 

Measure Description

F10

Instream protection notwithstanding, where clearing is necessary within 100 feet of anadromous 

streams and their resident fish tributaries (Class I and II) leave felled trees in place but not 

blocking stream channel.

F11

Prepare a Stream Course Protection Plan for all Class I streams and Class II streams flowing 

directly into Class I streams where the power line crosses and/or parallels the stream within 100 

feet (R10 BMP 13.16).

F12

If blasting is required, a blasting plan will be supported by site-specific geotechnical 

investigations showing blasting as a suitable and prudent practice. Blasting operations will be 

designed to reduce the risk of mass failure on potentially unstable or saturated soils. Use current 

regional specifications where mass wasting due to blast vibration is likely. Blasting plan will 

address corrective actions and contingencies for restoring resources damaged by overshot rock or 

mass wasting (R10 BMP 14.7).

F13

All ground disturbing support facilities (i.e., staging areas, barge locations, etc.); will require sitespecific erosion control and restoration plans prior to construction commencement and will be 

addressed in any required permits. These facilities will be designed to minimize the total area

disturbed, and their locations will be selected to minimize the number of required roads and 

landings necessary.

F14 Implement measures to minimize the use of the corridor by unauthorized vehicle use and prevent 

soils from being exposed to increased erosion risk.

F15 Routinely inspect disturbed areas to verify that erosion and stormwater controls are implemented 

and functioning as designed, and are suitably maintained. 

F16 Design and locate skid trails and skidding operations to minimize soil disturbance to the extent 

practicable. Provide breaks in grade and avoid long runs on steep slopes.

F17

Use low ground pressure equipment when practicable, particularly on equipment traveling over 

large portions of units with sensitive soils or site conditions. On sites having soils with low 

bearing strength, tracks need to be supported by logging slash, shrubs, other woody material, or 

pads to prevent rutting. This mattress material should be removed where necessary to restore the 

natural drainage pattern.

F18

Prior to final selection of submarine crossing locations and marine-associated logging operations, 

field verification will be undertaken to ensure avoidance of sensitive areas including estuaries, 

anadromous fish streams, eelgrass beds, and important fish aggregating areas.

Wetlands, Floodplains, and Riparian Management Areas (R10 BMP 12.5)

RMA 1

To the extent practicable, avoid siting transmission line structures in wetlands, floodplains, and 

riparian areas. Where this is not possible, BMPs and Forest Plan Standards and Guidelines will 

be implemented to reduce overall disturbance.

RMA 2

Construction techniques used to cross wetlands must have minimal effects on wetland hydrology, 

chemistry, or biology, and meet all 33 CFR BMPs. A 404 permit will be applied for in the event 

that the project does not fall under a nationwide permit.

Vegetation and Timber

T1 Where practicable, locate right-of-way edges perpendicular to the prevailing winds to minimize 

windthrow.

T2 Use feathered right-of-way edges to minimize vegetation removal, windthrow, and visual 

impacts.

T3

Where feasible, merchantable timber felled during right-of-way clearing will be removed in 

accordance with specifications outlined in an approved Timber Settlement Agreement. The 

approved Timber Settlement Agreement will identify the timber required to be removed and 

specify how it will be removed and transported. 
Exhibit R-1 

Mitigation and Monitoring Measures

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision Exhibit R-1  R-3

Table R-1-1. Site-specific Mitigation Measures for Clearing and Construction-related 

Activities (continued)

Mitigation 

Measure Description

T4

Develop and implement a post-construction site revegetation plan. Use suitable species and 

establishment techniques to cover or revegetate disturbed areas in compliance with local direction 

and requirements per FSM 2070 and FSM 2900 for vegetation ecology, and prevention and 

control of invasive species.

T5 Use ground-based yarding systems only where physical site characteristics are suitable to avoid or 

minimize potential impacts to vegetation and soils.

T6

Proposed shovel yarding on slopes greater than 35 percent should undergo interdisciplinary 

review before being approved. Areas with broken, uneven topography, or an area dissected by 

numerous incised drainages may not be suitable for shovel yarding. Harvesting in areas with 

hydric soils will be limited to areas with slopes < 25% (R10 BMP 13.9). 

T7

Spur roads for shovel access should be minimized and/or obliterated after use. The number of 

turns on shovel trails should be limited, depending on soil type and vegetative cover. Wide arc 

turns can be used to reduce soil disturbance on shovel trails (R10 BMP 13.9).

T8

All ground-based construction equipment and temporary matting panels will be cleaned prior to 

implementation and mobilization to the right-of-way and before equipment is transported to 

another area (e.g., between Kupreanof and Mitkof islands). On NFS lands, cleaning will be done 

according to Tongass National Forest requirements (see Forest Service Manual 2900-Invasive 

Species Management [USDA Forest Service 2011]).

T9

Should rock be needed, a quarry development plan will be reviewed prior to use of existing 

quarries or development of new rock quarries, and reviewed and approved by resource specialists 

and the District Ranger. Forest Plan Standards and Guidelines and BMPs will apply to reduce risk 

of increasing invasive plant species.

Wildlife

W1 Provide line markers on the transmission line to minimize the risk of bird collision at any known 

areas of concern.

W2

Provide for snag retention and structural diversity by leaving non-hazard snags within the cleared 

right-of-way. Leave non-danger trees and snags along the right-of-way boundaries. Where 

possible, allow the size and density of snags to be dictated by Forest Plan Standards and 

Guidelines for cavity-nesting species. Non-hazard snags may be retained in clumps away from 

conductors and in protected draws to minimize blowdown effects and conflicts with safety 

standards.

W3

To minimize restriction of wildlife movements, pile heavy (more than 18 inches deep) slash, or 

create openings through slash at regular intervals (every 100 yards and/or at identified game trail 

crossings), unless specifically waived by the Forest Service.

W4

Maintain a 330-foot forested radius around any bald eagle nest identified within the Project Area. 

Between March 1 and August 31, restrict controlled blasting on all transmission line sites within a 

0.5 mile radius of a bald eagle nest site, and restrict all helicopter logging and/or flight paths 

within one-quarter mile of a nest. These restrictions may be lifted after June 1 if the nest is found 

to be unoccupied. All activities will be consistent with Forest-wide Standards and Guidelines, 

National Bald Eagle Management Guidelines, and the National Bald and Golden Eagle Protection 

Act unless a variance is granted from the U.S. Fish and Wildlife Service (USFWS).

W5

If a wolf den site is found in the right-of-way, restrict clearing construction within 0.5 mile during 

wolf mating, denning, and rearing periods, from February 1 to July 30. Timing restrictions may 

be lifted after April 30 if the den is determined to be unoccupied.

W6 Inform all construction personnel concerning laws restricting the use of aircraft, especially 

helicopters, for hunting and harassment of wildlife.

W7 Do not allow hunting activities by construction crews while they are using project housing, 

vehicles, or other project-related transportation.

W8 Follow USFWS recommendations for transmission conductor separation and height to prevent 

eagle electrocutions.
Mitigation and Monitoring Measures

R-4  Draft Record of Decision Exhibit R-1 Kake to Petersburg Transmission Line Intertie Project

Table R-1-1. Site-specific Mitigation Measures for Clearing and Construction-related 

Activities (continued)

Mitigation 

Measure Description

W9

Inform contract personnel and other persons in the area that bald eagles could potentially be present 

and that they are protected by law. Instruct all personnel about the proper procedures for reporting 

suspected sightings or signs of threatened, endangered or sensitive plant and animal species.

W10

Conduct goshawk surveys on route if not conducted previously. Follow the Tongass National 

Forest Project-level Goshawk Inventory Protocol (Stangl 2009), if required. If a goshawk nest is 

discovered, it shall be reported to the Forest Service, and current Forest Plan direction will be 

followed to ensure protection of the nest and surrounding area.

W11

The timing of geophysical surveys and the installation of a cable either through an HDD bore or 

buried cable approach will be conducted during the winter months (late October through March) 

when humpback whales are less likely to be in the area.

W12

Limit project-related boat traffic and aircraft flights if humpback whales or Steller sea lions are 

observed migrating through or near the Project Area. Humpback whales will not be approached 

within 100 yards by boats less than 100 feet in length or within 0.25 mile by boats over 100 feet 

in length. As safety allows, avoid aircraft flights below 1,000 feet above sea level within 0.3 mile 

of a whale. Hauled out marine mammals will not be approached by boat within 100 yards. 

Sightings of humpback whales or Steller sea lions will be recorded and submitted to the Forest 

Service.

W13 All onsite vessel operations along the cable alignment will be conducted at speeds of 10 knots or 

less.

W14

Dynamic Positioning (DP) will not be used during cable installation if other methods are possible 

to reduce noise propagation in the marine environment. If the use of DP cannot be avoided, the 

applicant shall reduce the DP thruster to 50 percent power or less as feasible during cable-laying 

operations.

W15

A 500-meter marine mammal exclusion zone will be established if bubble pulser and airgun 

operation cannot be avoided. If bubble pulser or airgun operation occurs, the ramp-up, power 

down, and shutdown procedures identified in NOAA Fisheries’ January 4, 2016 concurrence 

letter will be followed. If bubble pulser or airgun operation occurs, a trained marine mammal 

observer will be present on the vessel during related in-water activities to ensure the ramp-up, 

power down, and shutdown procedures are followed and record all marine mammal sightings 

within the exclusion zone.

W16 Noise from any above ground drilling activities will be mitigated (sound panels/screening) as 

necessary to maintain daytime and nighttime levels required by City and Borough Ordinances. 

Visual Resources

V1 Use non-reflective and non-refractive insulators if glass is not required for safety and reliability; 

and use non-specular conductors.

V2 At the time of delivery, inspect all line construction materials (poles and other structure elements, 

insulators, and conductors) for conformance with specifications related to color and reflectivity.

V3 In key viewshed areas, to the extent possible, feather visible right-of-way cuts by leaving the 

smaller vegetation and narrow the right-of-way near the structures.

V4 Develop and apply measures to restore and revegetate LTF sites and staging areas if using areas 

that are not already disturbed. 

V5 Helipads and other structures will be painted to blend in with the surrounding environment. Paint 

colors will be approved by the Forest Service.

Recreation

R1 Keep all permitted outfitters/guides in the area informed of construction schedule. Provide 

advance notice to allow outfitters/guides to plan trips around construction activities.
Exhibit R-1 

Mitigation and Monitoring Measures

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision Exhibit R-1  R-5

Table R-1-1. Site-specific Mitigation Measures for Clearing and Construction-related 

Activities (continued)

Mitigation 

Measure Description

Cultural Resources

C1

Avoid right-of-way clearing and construction of transmission line structures at known cultural 

sites where practicable. If avoidance of cultural sites is not feasible or practicable, the project 

applicant’s cultural resource contractor will develop a data recovery plan to mitigate the effects 

on those sites in accordance with Forest Service guidelines and involve the State of Alaska and 

the appropriate Native tribes.

C2 Exposure of previously unknown cultural properties during construction will be reported by the 

project environmental compliance monitor to the project applicant’s cultural resource contractor 

and the Forest Service. The cultural resource contractor in consultation with the Forest Service 

archaeologist will determine if it is appropriate for the unknown properties to be recorded and 

evaluated for National Register eligibility.

Site-Specific Rerouting Considerations

S1

During final design, field check locations that have specific resource concerns and make minor 

adjustments to routes or structure placement where practicable if it would result in a reduction of 

environmental impacts.

Best Management Practices

The following BMPs will be employed to avoid, minimize, or mitigate adverse effects to soil, water 

quality, and riparian resources during the construction and maintenance of powerlines and 

transmission facilities (Fac-9, USDA Forest Service 2012):

• Limit corridor disturbance, particularly in or near riparian areas, surface waters, shallow 

groundwater, unstable areas, hydric soils, or wetlands.

• Consider temporary road location and standards for shovel trail and access spurs, type of 

construction equipment (wheeled, tracked, and helicopter), size and location of footings and 

guy anchors, and revegetation requirements during project design.

• Use applicable R10 and National Core BMPs for Mechanical Vegetation Management 

Activities when using mechanical treatments to remove or manage vegetation from the project 

corridor.

• Aggressively address unauthorized uses of the corridor, such as motorized vehicle use, that are 

exposing soils, increasing erosion, or damaging the facilities.

Apply measures to avoid, minimize, or mitigate adverse effects to soil, water quality, and riparian 

resources by implementing measures to control surface erosion, gully formation, mass slope failure, 

and resulting sediment movement before, during, and after mechanical vegetation treatments (Veg-2, 

USDA Forest Service 2012):

• Establish designated areas for equipment staging, stockpiling materials, and parking to 

minimize the area of ground disturbance (Fac-2, USDA Forest Service 2012).

• Locate landings, skid trails, and slash piles in suitable sites to avoid, minimize, or mitigate 

potential for erosion and sediment delivery to nearby waterbodies.

• Develop an erosion control and sediment plan that covers all areas disturbed during 

transmission line construction 

• Apply soil protective cover on disturbed areas where natural revegetation is inadequate to 

prevent accelerated erosion before the next growing season.
Mitigation and Monitoring Measures

R-6  Draft Record of Decision Exhibit R-1 Kake to Petersburg Transmission Line Intertie Project

• Divert surface runoff around bare areas with appropriate energy dissipation and sediment 

filters.

• Use suitable species and establishment techniques to cover or revegetate disturbed areas in 

compliance with local direction and requirements per FSM 2070 and FSM 2900 for vegetation 

ecology and prevention and control of invasive species

• Install sediment and stormwater controls before initiating surface-disturbing activities to the 

extent practicable.

• Operate equipment when soil compaction, displacement, erosion, and sediment runoff would 

be minimized.

• Avoid ground equipment operations on unstable, wet, or easily compacted soils and on steep 

slopes unless operation can be conducted without causing excessive rutting, soil puddling, or 

runoff of sediments directly into waterbodies.

• Routinely inspect disturbed areas to verify that erosion and stormwater controls are 

implemented and functioning as designed and are suitably maintained.

• Maintain erosion and stormwater controls as necessary to ensure proper and effective 

functioning.

• Implement mechanical treatments on the contour of sloping ground to avoid or minimize 

water concentration and subsequent accelerated erosion.

Apply applicable measures to avoid, minimize, or mitigate adverse effects to soil, water quality, and 

riparian resources during ground-based skidding and yarding operations by minimizing site 

disturbance and controlling the introduction of sediment, nutrients, and chemical pollutants to 

waterbodies (Veg-3, USDA Forest Service 2012):

• Use ground-based yarding systems only where physical site characteristics are suitable to 

avoid, minimize, or mitigate adverse effects to soil, water quality, and riparian resources.

• Design and locate skid trails and skidding operations to minimize soil disturbance to the extent 

practicable. Provide breaks in grade and avoid long runs on steep slopes concentrating runoff. 

• Use suitable measures during felling and skidding operations to avoid or minimize disturbance 

to soils and waterbodies to the extent practicable.

• Perform skidding or yarding operations when soil conditions are such that soil compaction, 

displacement, and erosion would be minimized.

• Directionally fell trees to facilitate efficient removal along predetermined yarding patterns 

with the least number of passes and least amount of disturbed area (e.g., felling-to-the-lead).

• Use low ground pressure equipment when practicable, particularly on equipment traveling 

over large portions of units with sensitive soils or site conditions.

• Use suitable measures to stabilize and restore skid trails after use and promote rapid 

revegetation. 

• Use cable or aerial yarding systems on steep slopes where ground-based equipment cannot 

operate without causing unacceptable ground disturbance (Veg-5, USDA Forest Service 

2012).

• Locate cable corridors to efficiently yard materials with the least soil damage (Veg-5, USDA 

Forest Service 2012).

• Use suitable measures to minimize soil disturbance when yarding over breaks in slope (Veg-5, 

USDA Forest Service 2012).
Exhibit R-1 

Mitigation and Monitoring Measures

Kake to Petersburg Transmission Line Intertie Project Draft Record of Decision Exhibit R-1  R-7

• Locate landings to minimize the number of required skid roads and minimize the size and 

number of landings as practicable to accommodate safe, economical, and efficient operations 

(Veg-6, USDA Forest Service 2012).

• Establish and maintain construction area limits to the minimum area necessary for completing 

the project and confine disturbance to within this area (Fac-2, USDA Forest Service 2012).

• Develop and implement an erosion control and sediment plan that covers all disturbed areas, 

including borrow, stockpile, fueling, and staging areas used during construction activities 

(Fac-2, USDA Forest Service 2012).

• Apply soil protective cover on disturbed areas where natural revegetation is inadequate to 

prevent accelerated erosion during construction or before the next growing season. (Fac-2, 

Veg-2; USDA Forest Service 2012).

• Develop and implement a post-construction site vegetation plan using suitable species and 

establishment techniques to revegetate the site (Fac-2, USDA Forest Service 2012).

• Install sediment and stormwater controls before initiating surface-disturbing activities to the 

extent practicable (Fac-2, USDA Forest Service 2012). 

• Limit the amount of exposed or disturbed soil at any one time to the minimum necessary to 

complete construction operations (Fac-2, USDA Forest Service 2012).

• Limit operation of equipment when ground conditions could result in excessive rutting, soil 

puddling, or runoff of sediments directly into waterbodies (Fac-2, USDA Forest Service

2012). 

• Proposed shovel yarding on slopes greater than 35 percent should undergo interdisciplinary 

review before being approved. Areas with broken, uneven topography, or an area dissected by 

numerous incised drainages may not be suitable for shovel yarding. Harvesting in areas with 

hydric soils will be limited to areas with slopes less than 25 percent (R10 BMP 13.9, USDA 

Forest Service 2006). 

• Areas with broken, uneven topography, or an area dissected by numerous incised drainages 

may not be suitable for shovel yarding (R10 BMP 13.9, USDA Forest Service 2006). 

• On sites having soils with low bearing strength, tracks need to be supported by logging slash, 

shrubs, other woody material, or pads to prevent rutting. This mattress material should be 

removed where necessary to restore the natural drainage pattern (R10 BMP 13.9, USDA 

Forest Service 2006). 

• Live streams will not be crossed without the use of a temporary structure, such as a log mat 

(R10 BMP 13.9, USDA Forest Service 2006). 

• Temporary spur roads for shovel access should be minimized and/or obliterated after use (R10 

BMP 13.9, USDA Forest Service 2006).

• The number of turns on shovel trails should be limited, depending on soil type and vegetative 

cover. Wide arc turns can reduce soil disturbance on shovel trails (R10 BMP 13.9, USDA 

Forest Service 2006).

• Minimize clearing in areas with high or very high mass movement potential.

• Required split yarding and directional felling along all streams that cannot be avoided or 

spanned (R10 BMPs 12.7 and 13.16, USDA Forest Service 2006).

• Span, without clearing, steep v-notch streams with high erosion potential.
Mitigation and Monitoring Measures

R-8  Draft Record of Decision Exhibit R-1 Kake to Petersburg Transmission Line Intertie Project

Monitoring

Implementation monitoring assesses whether the project was implemented as designed and whether or 

not it complies with the Forest Plan. The Forest Service preparation of the Special Use Authorization

permit for this project will incorporate an interdisciplinary review to ensure that all mitigation 

measures are included in the permit. Periodic interdisciplinary review of design plans and documents 

will also ensure that mitigation is implemented as intended on a site-specific basis. Forest Service 

permit administration, including field inspections and inspection documents, will ensure that 

mitigation is applied as intended during right of way clearing, powerline construction, operation, and 

maintenance activities. 

The Forest Service will work with the project applicant to develop a clearing and construction plan; 

part of that plan will include implementation monitoring. The project administrators ensure that 

mitigation measures are incorporated into permit documents and then monitor performance relative to 

permit requirements. The project applicant will be required to have a third-party Environmental 

Monitor on-site during the clearing and construction period. The Environmental Monitor will be 

approved by the Forest Service. The Environmental Monitor will ensure that the terms and conditions 

in the permit are followed during clearing and construction-related activities. One of the 

Environmental Monitor's duties will be to train and work with the construction contractor’s personnel 

(both management and labor) to ensure that they understand and follow the environmental 

requirements.
°F Fahrenheit 

1987 Intertie Study 1987 Southeast 

Alaska Transmission Intertie Study 

2003 Intertie Study Southeast Alaska 

Intertie Study prepared in 2003 

2005 Feasibility Report 2005 

Kake-Petersburg Transmission Intertie 

Study Final Report 

ACFEC Alaska Commercial Fisheries Entry 

Commission

ACHP Advisory Council on Historic 

Preservation

ACS American Community Survey

ACSR aluminum cable steel reinforced 

ADCCED Alaska Department of 

Commerce Community and Economic 

Development

ADEC Alaska Department of 

Environmental Conservation

ADF&G Alaska Department of Fish and 

Game

ADOT&PF Alaska Department of 

Transportation and Public Facilities

ADSS all-dielectric self-supporting 

AEA Alaska Energy Authority

AFSC Alaska Fisheries Science Center

AHRS Alaska Heritage Resources Survey

Alaska DNR Alaska Department of Natural 

Resource

ANILCA Alaska National Interest Lands 

Conservation Act of 1980

ANKHP Alaska Natural Heritage Program

APDES Alaska Pollutant Discharge 

Elimination System

AP&T Alaska Power & Telephone

APE Area of Potential Effect

APLIC Avian Power Line Interaction 

Committee

ARD acid rock drainage

ATM Access and Travel Management

BA Biological Assessment

BE Biological Evaluation

BMP best management practice

CA Census Area

CaCO3 calcium carbonate

CCHITA Central Council of the Tlingit and 

Haida Indian Tribes of Alaska

CEQ Council on Environmental Quality

CFR Code of Federal Regulations

cfs cubic feet per second

Corps U.S. Army Corps of Engineers

dB decibel

dBA A-weighted decibel

DBH diameter at breast height

DEC Department of Environmental 

Conservation

DNR Department of Natural Resources

DPS Distinct Population Segment

DOL Alaska Department of Labor

EA Environmental Assessment

EIS Environmental Impact Statement

EFH essential fish habitat

EPA U.S. Environmental Protection Agency

ESA Endangered Species Act

ESI Existing Scenic Integrity

EVC existing visual conditions

FHWA Federal Highway Administration

FLPMA Federal Land Policy and 

Management Act

FMP fishery management plan

FONSI Finding of No Significant Impact

Forest Plan Land and Resource 

Management Plan

Forest Service U.S. Department of 

Agriculture, Forest Service

FR Forest Road 

FSH Forest Service Handbook

FSM Forest Service Manual

GIS geographic information system

GMU game management unit

GPS global positioning system

HDPE high-density polyethylene 

HRA Historical Research Associates, Inc.

HSI habitat suitability index

HUC Hydrologic Unit Code

IDT Interdisciplinary Team

IPEC Inside Passage Electric Cooperative

IRA Inventoried Roadless Area

IRP Integrated Resource Plan

ISLES Island Surveys to Locate Endemic 

Species

kcmil one thousand circular mils

KPI Kake to Petersburg Transmission Line 

Intertie

kV kilovolt

kW kilowatt

kWh kilowatt hour

LiDAR Light Detection and Ranging 

LTF log transfer facility

LUD Land Use Designation

MAF marine access facility

mG milligauss

MIS Management Indicator Species

ML maintenance level

MBF thousand board feet

MMBF million board feet

MMI Mass Movement Index

MOU Memorandum of Understanding

msl mean sea level

MVUM Motor Use Vehicle Map

MW megawatts 

NAWS non-agricultural wage and salary

NEPA National Environmental Policy Act

NESC National Electrical Safety Code 

NFMA National Forest Management Act

NFS National Forest System

NHPA National Historic Preservation Act

NIC non-interchangeable components

NMFS National Marine Fisheries Service

NOAA National Oceanic and Atmospheric 

Administration 

NOI Notice of Intent

NPDES National Pollutant Discha

Elimination System

NPFMC North Pacific Fishery Ma

Council

NRCS Natural Resources Conse

Service

NRHP National Register of Histo

O&M operation and maintenance

OBML objective maintenance lev

OGR old-growth reserve

OHV off-highway vehicle

OPML operational maintenance 

P Primitive

PCE Power Cost Equalization

PFA post-fledging area

PMPL Petersburg Municipal Pow

POG productive old growth

PRD Petersburg Ranger District

PWS public water supply

R10 Region 10 

RARE II Roadless Area Review a

Evaluation

RCS road condition survey

R Rural

RM Roaded Modified

RMA riparian management area

RN Roaded Natural

ROD Record of Decision

ROS Recreation Opportunity Spe

RV recreational vehicle

SAFETEA-LU Safe, Accountable

Efficient Transportation Equity Ac

Legacy for Users 

SATP Southeast Alaska Transpo

Plan 

SDM Size-Density Model

SEAPA Southeast Alaska Power 

SEIS Supplemental Environment

Statement

SHPO State Historic Preservatio

SIO Scenic Integrity Objective

SMS Scenery Management Syst

SMU Soil Map Unit

SOPA Schedule of Proposed Act

SPM Semi-Primitive Motorized

SPNM Semi-Primitive Non-Motor

TES threatened and endangered 

TTRA Tongass Timber Reform A

TUS Transportation and Utility Sy

USFWS U.S. Fish and Wildlife S

USGS U.S. Geological Survey

VAC visual absorption capacity

VCU Value Comparison Unit

VMS Visual Management System

VPR visual priority route

WAA Wildlife Analysis Area

WBD Watershed Boundary Data

WCC watershed condition classif