Appendix C

Mitigation

Appendix C. Mitigation Measures

Introduction ____________________________ 

The Shoreline II Outfitter and Guide EIS utilizes design features and mitigation measures, to 

alleviate, or prevent negative social and environmental impacts that could occur due to 

implementation of this project.

Design features are specific requirements to avoid or minimize environmental impacts that are 

required by law, regulation, or policy. Examples include, , but are not limited to, BMPs, Forest Plan 

standards and guidelines, and standard operating procedures. They can also come from IDT 

recommendations; issues or concerns from the public or other agencies; or scientific literature. They 

are built into the design of the proposed action and alternatives to prevent impacts. 

Mitigation measures alleviate potential adverse effects from natural or human caused disturbances. 

Mitigation includes doing any, or a combination of, the following: (a) avoiding the impact altogether 

by not taking a certain action or parts of an action; (b) minimizing impacts by limiting the degree or 

magnitude of the action and its implementation; (c) rectifying the impact by repairing, rehabilitating, 

or restoring the affected environment; (d) reducing or eliminating the impact over time by 

preservation and maintenance operations during the life of the action; and (e) compensating for the 

impact by replacing or providing substitute resources or environments (40 CFR 1508.20). 

In this document, “mitigation measures” serves as a blanket term for design features and mitigation 

measures that have been built into, or developed, specifically for this project.

The following is a comprehensive list of mitigation measures that apply to outfitter/guide activities 

for all of the action alternatives. These mitigation measures are incorporated into permits as 

stipulations where applicable and may be further refined during the monitoring and administration of 

outfitter/guide permits as additional information becomes available. In addition, some site-specific 

resource concerns and mitigation measures are listed in the narrative of the Use Area cards in 

Appendix A and on the Large Group Area cards in Appendix B. These cards provide guidance for 

outfitter/guide permit preparation and administration and include a map. 

Outfitter/guide special use permits shall be administered in accordance with the direction in Forest 

Service Manual 2720, Forest Service Handbook 2709.14, and Region 10 supplements. Required 

stipulations and clauses shall be included in the permit. A copy of the current Tongass-wide 

stipulations are included in the project record. It is important to note, the Tongass-wide stipulations 

are revised periodically – more often than the Shoreline analysis. As updates occur, the latest version 

is available upon request from any Tongass supervisor’s office.

Pre-Application Actions

Outfitter/guide permit proposals go through two levels of screening before becoming a formal 

application (36 CFR 254.54 (e) (1) and (2)). 

Initial screening ensures the proposed use is: 

• Consistent with applicable laws, regulations, orders, and policies.

• Consistent with applicable laws, regulations, orders, and policies;
Mitigation—Appendix C

• Consistent (or can be made consistent) with Forest Plan standards and guidelines;

• Not a serious or substantial risk to public health or safety;

• Not something which would create an exclusive or perpetual right of use or occupancy;

• Not something which would unreasonably conflict or interfere with administrative use by the

Forest Service, other scheduled or authorized existing uses of the National Forest System, or use

of adjacent non-National Forest System lands;

• Not by a proponent with delinquent debt owed to the Forest Service under a prior or existing

authorization (with certain exceptions);

• Not involving gambling or sexually-oriented commercial services;

• Not involving military or paramilitary training or exercises by private organizations or

individuals (with exceptions); and

• Not involving disposal of solid waste or radioactive or other hazardous substances.

Proposed uses that do not pass initial screening, shall not receive further evaluation and processing.

A proposal that passes initial screening, proceeds to second-level screening and consideration.

During the secondary screening, an authorized officer shall reject any proposal if he or she 

determines:

• The proposed use would be inconsistent or incompatible with the purposes for which the lands

are managed, or with other uses; or

• The proposed use would not be in the public interest; or

• The proponent is not qualified; or

• The proponent does not or cannot demonstrate technical or economic feasibility of the proposed

use or the financial or technical capability to undertake the use;

• The proponent cannot fully comply with the terms and conditions of the authorization; or

• There is no person or entity authorized to sign a special use authorization, and/or there is no

person or entity willing to accept responsibility for adherence to the terms and conditions of the

authorization.

If a request for proposed use meets the criteria of both initial and second-level screening, the 

proposal may be formally accepted as an application, and processed as such. 

Outfitter/Guide Special Use Permits

Once a special use permit application is accepted, the authorized officer evaluates the proposed use 

and other relevant information such as environmental findings to decide whether to approve, approve 

with modifications, or deny the proposed use. 

If a permit is issued, standard terms and conditions are incorporated. A sample copy of FS-2700-4i, 

the agency’s special use permit form for outfitting and guiding, is available in the project record, or 

at any Tongass supervisor’s office upon request. 

Appendix C - 2 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

1. Unless otherwise stated in site-specific mitigations (Appendix A and B), group size is limited to

the applicable ROS standards and guidelines prescribed by LUDs in the Forest Plan (See Forest

Plan pp. 3-18 to 3-19, 4-46, and I-1 to I-6), which will be stated as follows in permit stipulations.

• Wilderness, Primitive and Semi-Primitive ROS: Group size limit is 12 people

(including guides). No more than two groups of up to 12 people (including guides)

from a single vessel or other means of transport or access are allowed. No more than

24 individuals from a vessel may use a specific wilderness in a single day. These

groups are required to disperse out of sight and sound from each other when using

National Forest System lands to minimize impacts to a specific site or others using

the area.

• Non-Wilderness, Primitive ROS: Group size limit is 12 people (including guides).

Maximum of two groups per day. If more than one group goes ashore at a time the

groups shall not be within sight or sound of each other.

• Non-Wilderness, Semi-Primitive ROS: Group size limit is 20 people (including

guides). If more than one group goes ashore at a time the groups shall not be within

sight or sound of each other.

• Other ROS classes and designated Large Group Areas: Group size limit is 75 people

(including guides). Large groups are not allowed to camp or conduct consumptive

recreational activities such as hunting, fishing or plant collecting.

Resource Protection Measures ____________ 

Air

Outfitter/guides will manage their activities to control and minimize air pollution impacts and to 

ensure that predicted emissions from all pollution sources do not exceed Ambient Air Quality 

Standards as specified under the Alaska Administrative Code, Title 18, Chapter 50. 

Outfitter/guides will cooperate with regulatory authorities to prevent adverse effects of air pollutants 

and atmospheric deposition on forest ecosystems.

Beach and Estuary Fringe

As indicated in the R10 Leave No Trace document, outfitter/guides shall follow the following 

practices for camping.

• Outfitter/guides and their clients will not camp in beach meadows to minimize the impacts to

these areas. When walking through beach meadows, people should stay on existing paths and

game trails to avoid trampling or damaging vegetation.

• Group camping permits shall recommend minimal trampling on sandy areas of beaches where

botrychium ferns and beach grasses may be present, or in wetland habitats. Kayak pullouts and

campsites should be durable sites, such as gravel areas devoid of plant life. One access trail in

and out of campsite should be used to minimize ground disturbance.

• Locations with few anchorages and access will require a site visit by a Forest Service botanist or

ecologist to assess the area for sensitive and rare plants and their habitats, recognizing that

impacts at these sites are likely to be concentrated in specific areas. Exact camping or use areas

must be identified in actual use reports.

Shoreline II Outfitter/Guide DEIS Appendix C - 3 - 
Mitigation—Appendix C

Karst and Cave Resources

Outfitter/guides will protect karst and cave resources as required by the Federal Cave Resources 

Protection Act (FCRPA). Cave use is not permitted without an approved Cave Protection Plan. 

Riparian Management Areas

Riparian management areas are areas of special concern for fish, other aquatic resources, and 

wildlife values. These areas are delineated according to the process group direction in the riparian 

Forest-wide standards and guidelines. To protect fish habitat and water quality, Forest Plan standards 

and guidelines for riparian areas are applied to all fish streams, and to non-fish-bearing Class III and 

Class IV streams within the analysis area. Best management practices will be used to minimize the 

risk of land management activities impairing water quality. Special provisions are specified to 

protect soil and water quality. 

Lower Intertidal and Subtidal Areas

Eelgrass is assumed to be important near-shore habitat for a variety of marine species. 

Outfitter/guides should avoid repeated boat anchoring in vegetated areas where practicable, to 

minimize adverse effects on eelgrass and other marine vegetation.

Oil Pollution Prevention

During servicing or refueling of equipment, petroleum products may be spilled and potentially enter 

a watercourse. Locating service and refueling sites well away from wetlands and stream channels 

will minimize this risk. 

Minor oil spills will be prevented by using good housekeeping techniques, which include: (1) 

collecting any used oil, oil filters, and grease tubes; (2) requiring equipment operators to carry 

absorbent pads; (3) providing containment and cleanup for portable fuel tanks (including hose and 

nozzle); (4) following approved disposal methods for waste products; and (5) repairing equipment 

leaks promptly.

Wetlands

Best management practices (BMPs) and Forest-wide standards and guidelines will be the primary 

mitigation measure for reducing the effects of recreation use on wetlands. 

People should stay on existing paths and game trails to avoid excessive trampling or damaging 

wetlands, where practical.

If monitoring determines that wetlands have been adversely affected by outfitter/guide activities, use 

in these areas will be restricted and the areas revegetated or hardened to minimize effects.

To minimize impacts to non-forested and steeply sloping wetlands, outfitter/guides and their clients 

should abandon any user-created trail wider than 2 feet to allow recovery. Outfitter/guides should 

also report any user-created trail wider than 2 feet to the Forest Service, and encourage their clients 

to practice Leave No Trace principles, such as pick hiking routes with durable surfaces (e.g., 

beaches, gravel bars, unvegetated forest duff), and spread out when hiking over vegetation so no 

single plant receives multiple footfalls and a trail is less likely to form.

Appendix C - 4 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

Soil and Water 

Best management practices and Forest Plan standards and guidelines will be used for primary 

mitigation. The following best management practices for soil protection associated with this project 

apply to all proposed commercial recreation activities.

• Floodplain identification, evaluation, and protection (BMP 12.4)

• Wetland identification, evaluation, and protection (BMP 12.5)

• Riparian area designation and protection (BMP 12.6)

• Control of activities under special-use permit (BMP 12.10)

• Sanitary facilities (BMP 12.15)

• Control of solid waste disposal (BMP 12.16)

• Revegetation of disturbed sites (BMP 12.17)

• Road and trail erosion control plan (BMP 14.5)

• Measures to minimize surface erosion (BMP 14.8)

• Drainage control to minimize erosion and sedimentation (BMP 14.9)

• Surface erosion controls at facilities (BMP 14.25)

• Recreation facilities planning and location (BMP 16.1)

• Trail construction and maintenance (BMP 16.4)

REC-3. Dispersed Use Recreation

The National BMP handbook addresses several recreation concerns. The following National BMPs 

address dispersed recreation use in wetland areas. 

• Develop and designate campsites in appropriate locations;

• Limit group size and periods of use; and

• Close and rehabilitate dispersed or undeveloped sites that are causing unacceptable adverse

effects on soil, water quality, and riparian resources.

PLAN-3. Aquatic Management Zone Planning

The following guidelines are from the National BMPs regarding project planning in the aquatic 

management zone. 

• Avoid or minimize unacceptable impacts to riparian vegetation, groundwater recharge areas,

steep slopes, highly erodible soils, or unstable areas;

• Maintain or provide sufficient ground cover to encourage infiltration, avoid or minimize erosion,

and to filter pollutants;

• Avoid, minimize, or restore detrimental soil compaction; and

• Restore existing disturbed areas that are eroding and contributing sediment to the waterbody.

Shoreline II Outfitter/Guide DEIS Appendix C - 5 - 
Mitigation—Appendix C

Rec-9. Recreation Special Use Authorization

The following guideline is from the National BMPs regarding special use authorizations for 

recreation in aquatic areas.

• Administer the permit to appropriate standards to avoid, minimize, or mitigate adverse effects of

permitted activities to soil, water quality, and riparian resources.

• Areas with unstable soil or hazardous conditions will be avoided.

• Water diversion or dams for consumptive water use is not allowed.

Reroutes should be out of sight of the existing worn trail to allow for recovery. 

Outfitter/guide activities shall not result in impacts exceeding soil quality standards. In order to meet 

soil quality standards (SQS), the acreage of affected soil conditions may not exceed 15 percent of the 

total acreage within the activity area. Activity areas are defined as the total area of ground surface 

affected by an activity and include the area surrounding a trail, footpath, picnic site, or other area of 

concentrated use. Activity areas exclude specified trails, footpaths, or developed sites. If activities 

and use levels result in unacceptable impacts, corrective action will occur. This may include limiting 

use and hardening, stabilizing, and revegetating sites.

Although natural revegetation is not expected to be a problem in any area, ongoing monitoring of 

plant growth in wetland areas receiving intensive recreation use will be conducted to determine: 1) 

the level of disturbance, 2) the amount and types of vegetation to be used to revegetate the area, and 

3) whether or not any areas are in need of fertilization and the frequency of fertilizer application.

Wildlife Viewing

Aircraft operations will implement the following BMPs and flightseeing/wildlife viewing guidelines.

• All flight operators shall comply with FAA restrictions.

• Consistent with aircraft passenger safety, pilots shall avoid deliberate close overflights of

animals for the purpose of viewing. For fixed-winged aircraft, 500 ft is the minimum distance

for overflights or approaches. For helicopters, the minimum distance is 1,500 ft. When on

regular flight paths, incidental overflights are allowed.

• Hovering near, herding, harassing, or driving bears or other wildlife in any way is not allowed. If

an animal, or group of animals, shows signs of disturbance, the aircraft is too close.

• Outfitter/guides will use flight paths that avoid known sensitive wildlife areas, including kidding

and calving areas, dens, nest sites, haul-outs, rookeries, and seabird colonies, during critical time

periods.

• Consistent with aircraft and passenger safety, operators should establish routes that will provide

regular and consistent aircraft operations, which will encourage habituation and minimal

disturbance to wildlife.

Appendix C - 6 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

Bald Eagles 

Activities shall be conducted to avoid disturbing or harassing eagles. A minimum 330-foot radius 

non-disturbance zone will be maintained around each identified active bald eagle nest tree.

1

 Guided 

recreation activities should be minimized within the non-disturbance zones of active nests and 

camping is not allowed. 

Because no reliable maps are available for active bald eagle nests, outfitters and guides should be 

asked to use their best judgment in respecting bald eagle nests. If guides notice their guided activities 

are disturbing eagles near nests, as indicated by frequent, agitated calling or aerial displays, they 

should move their clients away to a distance that allows the eagles to calm down and resume their 

normal activities.

Great Blue Herons, Hawks, and Owls 

Activities shall be conducted to avoid disturbing or harassing herons, hawks, or owls. A minimum 

600-foot radius non-disturbance zone will be maintained around each identified active great blue

heron, hawk, and owl nest tree2

. Guided recreation activities should be minimized within the nondisturbance zones of active nests and camping is not allowed.

Northern Goshawk (including the Queen Charlotte 

goshawk subspecies) 

Activities shall be conducted to avoid disturbing or harassing goshawks. A minimum 600-foot radius 

non-disturbance zone will be maintained around each identified active goshawk nest tree 3

. Guided 

recreation activities should be minimized within the non-disturbance zones of active nests and 

camping is prohibited. All goshawk sightings, particularly any aggressive behaviors (indicative of 

nesting), shall be reported to the to the permit administrator who will follow-up with the district 

wildlife biologist for appropriate action.

Peale’s Peregrine Falcon 

In general a minimum 2-mile radius non-disturbance zone will be maintained around each identified 

inhabited Peale’s peregrine falcon nest tree4

. Exceptions can be made for certain activities deemed as 

1 From March 1 to May 31, all bald eagle nest trees are considered active; June 1 to August 31 – trees with nests containing 

eggs or young as indicated by the observation of eggs or young eagles or of adult eagles exhibiting nesting behavior are 

considered active.

2 All great blue heron, hawk and owl nest trees are considered active from March 1 to July 31. After August 1, trees with 

nests containing eggs or young, as indicated by observation of eggs or young birds, or of adult birds exhibiting nesting 

behavior, are considered active. These protection measures may be lifted if the nest(s) are inactive for 2 consecutive years.

3 All nest sites will be considered active from March 15 to August 15. After August 15, sites with nests containing eggs or 

young, as indicated by the observation of eggs or young birds, or of adult birds exhibiting nesting behavior, will be 

considered active.

4 All nest trees will be considered active from April 15 to August 31. After August 31, trees with nests containing eggs or 

young, as indicated by the observation of eggs or young birds, or of adult birds exhibiting nesting behavior, will be 

considered active.

Shoreline II Outfitter/Guide DEIS Appendix C - 7 - 
Mitigation—Appendix C

low or no risk (consult local district biologist). Camping is not allowed within the non-disturbance 

zone of active nests. Other Guided recreation activities should be minimized within the nondisturbance zones of active nests. Activities shall be conducted to avoid disturbing or harassing 

falcons. All nest trees will be considered active from April 15 to August 31. After August 31, trees 

with nests containing eggs or young, as indicated by observation of eggs, young birds, or by the 

presence of adult birds in nesting activities, will be considered active. 

Black oystercatcher 

All outfitters and guides should follow good wildlife viewing etiquette practices with their clients. 

Report any black oystercatcher sightings, and and particularly any birds that appear to be nesting to 

the permit administrator who will follow-up with the district wildlife biologist for appropriate action. 

Seabird Rookeries and Waterfowl Concentration Areas 

Implementing the following actions will protect the seabird rookeries and waterfowl concentration 

areas that provide important prey foraging habitat for the American peregrine falcon. 

• For permitted outfitter/guide aircraft flights, maintain a constant flight direction and airspeed,

and a minimum flight elevation of 1,500 feet for helicopters and fixed-winged aircraft when

weather conditions permit. Avoid flying over seabird colonies/rookeries where possible.

• An 820-foot radius non-disturbance zone on upland habitats around seabird colonies and

rookeries will be maintained. No camping is permitted within this zone. Other activities shall be

conducted to avoid disturbing or harassing the birds.

• Outfitter/guides shall collect and properly dispose of their garbage to prevent gulls from feeding

and gathering on it.

Osprey

Activities shall be conducted to avoid disturbing or harassing ospreys. A minimum 330-foot radius 

non-disturbance zone will be maintained around each identified osprey nest tree. Guided recreation 

activities should be minimized within the non-disturbance zones of active nests and camping is 

prohibited. 

Trumpeter Swan

No camping will be allowed within 1⁄2 mile of known nesting, brood-rearing, and wintering trumpeter 

swans. Other guided recreation activities will be conducted to minimize disturbing or harassing 

swans.

Waterfowl and Shorebirds

Activities shall be conducted to avoid disturbing or harassing birds. Guided recreation activities 

should be minimized within 330 feet of known waterfowl or shorebird concentration and nesting 

areas. Camping is not allowed within this zone.

Vancouver Canada Geese

Forest, riparian, and estuarine areas are important nesting, brooding, rearing and molting areas for 

Vancouver Canada geese. Locate concentrated human activities as far from known waterfowl 

concentration and nesting areas as feasible providing a minimum distance of 330 feet. 

Appendix C - 8 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

Marine Mammals

The term “marine mammals” encompasses the following species: Steller sea lions, seals, sea otters, 

dolphins, porpoises, and whales. Viewing activities will comply with the code of conduct provisions 

in the National Marine Fisheries Service (NMFS) Alaska Marine Mammal Viewing Guidelines

brochure. 

• Remain at least 100 yards from marine mammals and haul-outs.

• Time spent observing individual(s) should be limited to a 1⁄2-hour.

• Whales should not be encircled or trapped between boats, or between boats and shore.

• If approached by a whale, put the engine in neutral and allow the whale to pass. Boat movement

should be from the rear of a whale.

• ‘Taking’ marine mammals protected under the Marine Mammal Protection Act is prohibited;

taking includes harassing, pursuing, or attempting any such activity (16 CFR Part 1532). For

example, if a boat approaches a known Steller sea lion haul-out too closely and sea lions or seals

leave the haul-out and escape to the sea, the boat operator may be harassing the animals.

• Waste oil and fuels will be managed in compliance with all State and Federal regulations to

prevent pollution impacts to marine mammals.

• Harbor seal pups are often left alone while the mother feeds. They are not abandoned and should

not be disturbed.

• Locate camps 1 mile from known haul-outs.

• The NMFS requires the following terrestrial, air, and aquatic zones around critical habitat for

Steller sea lions (50 CFR Part 226).

o Terrestrial zones extend 3,000 feet landward from the baseline or base point of

each major rookery and major haul-out in Alaska.

o Air zones extend 3,000 feet above the terrestrial zone of each major rookery and

major haul-out in Alaska, measured vertically from sea level.

o Aquatic zones extend 3,000 feet seaward in State and federally managed waters

from the baseline or basepoint of each major rookery and major haul-out in

Alaska that is east of 144 degrees west longitude.

Fisheries

If detrimental impacts to fisheries resources are identified as a result of guided use following 

implementation of this EIS mitigative measures will be developed and implemented. Recreation 

personnel will work with the district fish biologist and other resource specialists as needed to 

develop realistic mitigations. This process fits with the “adaptive management” concept being used 

in this project. Mitigation could include, but is not limited to:

• Restrict use in affected area.

• Encourage use in other area providing similar experience.

• Revegetate with native plant species.

• Reduce permitted numbers until impacts are mitigated.

Shoreline II Outfitter/Guide DEIS Appendix C - 9 - 
Mitigation—Appendix C

• Close area to all users (outfitted/guide and non-guided).

Typically, impacts to other resource areas would occur prior to measurable impacts to aquatic 

resources. It is thought mitigative measures which benefit several resource areas would be most 

effective at minimizing or negating impacts to aquatic resources. 

The following recommendations will further reduce impacts to aquatic resources.

• Develop a monitoring strategy that includes a variety of the use areas, especially incorporating

Large Group Areas (LGAs).

• Provide clear guidance on mitigation measures that help prevent invasive species introduction

and lessen the impact of outfitter/guide use on the landscape.

• Have clear and appropriate repercussions for outfitter/guides who do not adhere to mitigation

measures established to decrease the likelihood of spreading invasive species and lessen the

impact on the landscape.

Brown Bears

Outfitter/guides shall include bear safety education elements in their safety plans. These elements 

will include field sanitation, basic bear biology and behavior, how to avoid confrontations with bears 

in the field, viewing distances, and what to do in case of a bear encounter, including requirements for 

huides to carry bear spray. Outfitter/guides will not harass or chase bears with motorized land 

vehicles, boats, or aircraft. 

Food and solid waste should be managed according to the following methods.

• Outfitter/guides will segregate and store organic wastes and items, such as cans and jars

contaminated with organic waste, in a bear-proof container for disposal in an approved disposal

site. Freezing organic wastes until disposal is the preferred storage method. Alternatives are: (1)

incinerate organic waste and other combustibles in a locally fabricated incinerator meeting

ADEC standards for residue; or (2) use garbage grinders with disposal to a sewer system (not

appropriate for septic tank systems) to remove organic wastes, while incinerating or temporarily

storing (as above) contaminated combustible and non-combustible wastes.

• When storing food and organic wastes outdoors in bear habitat, use sealed bear-proof containers.

Do not leave fish or game carcasses near a human use area including a campsite, or other place

with high potential for bear/human conflicts.

• Burn all combustibles and pack out all non-combustibles. Do not discard organic material along

or near trails.

• Never allow bears access to human foods.

• Baiting and feeding bears and other wild game is prohibited except for trapping furbearers or

hunting black bears consistent with State regulations regarding black bear baiting (GMU 1D in

the analysis area).

The following are additional guidelines for bear viewing where bears are not habituated to people.

• Remain far enough away from the bear(s) so human presence, if noticed, does not affect the

animal’s behavior.

Appendix C - 10 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

• Avoid guided activities (e.g., camping, hiking, nature tours) within 500 feet of foraging habitat to

avoid disrupting bears and to reduce chances of human/bear incidents. Move further away if

bears change behavior (e.g., stop foraging, raise head).

• View bears from safe locations that do not make people vulnerable to a surprise bear approach.

• Do not approach bears directly.

• Avoid startling bears.

• If seen by a bear, avoid moving. Even minor movements will encourage wary bears to leave the

area.

• Never use a motorized vehicle, aircraft, or boat to get close to a bear.

• Never run from an approaching bear; it may trigger a prey chase response. When moving away

from a bear, do so in a slow, deliberate manner.

• Show respect and courtesy to other bear viewers. Conduct viewing in a way that does not detract

from the experience.

• When possible, approach downwind of bears or areas where bears are likely to be.

• If possible, arrange for travel to and from the viewing site(s) at the same time each day.

• Small groups are less likely to disturb bears and have better viewing. Keep group sizes as small

as possible, but keep in mind there is safety in numbers.

• Keep portions of each day visitor free to allow non-habituated bears a period of use without the

stress of having people present.

The following are additional guidelines for bear viewing where bears are habituated to people. 

• Primary use of the area will be by bears; human use will be secondary.

• Minimize the size of the viewing site(s); limit group size by the space limitations of the viewing

site and by the acceptance of the bears as indicated by their behavior. Viewing sites are defined

as a specific spot in an area used by people to view bears, such as a pad, platform, blind, or

tower.

• Concentrate viewing to a few sites to minimize disturbance to bears.

• Do not locate viewing site(s) in areas regularly used by bears; instead, locate viewing site(s)

adjacent to these areas.

• Access viewing sites from a single trail.

• Where possible, visually screen the approach and departure of visitors to the viewing site(s) from

the bears and make viewers at the site(s) unobtrusive.

• Minimize the number of trips to and from viewing site(s); instruct groups to plan on only one

round trip to and from viewing site(s).

• Minimize the number of groups viewing bears in space and time; a larger group size is generally

preferable to an increased number of groups.

• If possible, arrange for travel to and from the viewing site(s) to occur at the same time each day.

• Outfitter/guides will be responsible for maintaining control of their clients at all times.

Shoreline II Outfitter/Guide DEIS Appendix C - 11 - 
Mitigation—Appendix C

• Guides are encouraged to use aircraft and boats only for transportation to and from designated

on-the-ground viewing site(s) and not for flightseeing or sightseeing in the general vicinity.

Human/bear high use zones, such as estuaries and other areas merit special attention. Estuaries are 

defined in the Forest Plan as, “An ecological system at the mouth of a stream where fresh water and 

salt water mix, and where salt marshes and intertidal mudflats are present. The landward extent of an 

estuary is the limit of salt-intolerant vegetation, and the seaward extent is a stream’s delta at low 

tide.” Estuaries and fish stream areas in human/bear high use zones will be managed on a two-tier 

basis according to the following criteria.

Tier I: From the Southeast Alaska Unit 4 Brown Bear Management Strategy: “Areas with 

consistently good bear habitat with repetitive and frequent human use sufficient to generate 

immediate management concerns (amount of use may vary by location).” Includes, but not limited 

to, Lake Eva Estuary on Baranof Island, and Mud Bay and the head of Idaho Inlet at the Trail River 

Estuary on Chichagof Island. 

• Required: (a) No campfires, barbeques, or picnics in Tier I locations; (b) no overnight camping

in estuary areas or within 100 feet of salmon streams in Tier I locations; (c) visitors will not be

transported into estuaries by airplanes, OHVs, jet boats, or helicopters. Visitors will be

transported to drop-off points outside of the estuary where they will walk in to the destination.

Tier II: From the Southeast Alaska Unit 4 Brown Bear Management Strategy: “Areas with 

consistently good bear habitat where human use is not immediately a problem but has the potential to 

be a problem and is approaching the level of Tier I areas.” Includes, but not limited to, Green’s Creek 

and Pybus Bay Streams on Admiralty Island, and Red Bluff Bay Streams on Baranof Island. 

• Compliance with Tier I direction is voluntary in Tier II areas.

• Conditions that may change a Tier II area into a Tier I area include, but are not limited to: (a)

increased use by commercial and non-commercial users; (b) change in mode of access, such as

from non-motorized to motorized; (c) conflicts with bears; (d) evidence of abuse (e.g., littering

or making organic material, such as human food scraps, available to bears).

Sensitive and Rare Plants 

The following design criteria are included as assumptions for the overall project implementation for 

sensitive and rare plants. 

• Collecting or disturbing sensitive or rare plants or plant parts is prohibited unless authorized by

the responsible official. In cases of legitimate scientific or educational use, permits will be

required to collect sensitive or rare plants.

• Outfitter/guide activities in the vicinity of known sensitive or rare plant populations and their

immediate habitat must be avoided.

• Any use of firewood would be limited to dead material on the ground and would follow Leave

No Trace principles. No removal or cutting of live vegetation is allowed.

• Existing paths and game trails should be used where possible to limit trampling or damaging

vegetation or sensitive plant habitats.

• Sightings of listed sensitive plants shall be reported to the Forest Service.

Appendix C - 12 - Shoreline II Outfitter/Guide DEIS 
Appendix C—Mitigation

Invasive Plants

• Locations within use areas that are infested by priority invasive plant species shall be closed to

outfitter/guide use.

• Infestations of priority invasive plants located in or adjacent to LGAs should be considered a

priority for treatment and control activities.

• Prior to entering or re-entering a use area, all equipment used in outfitter/guide activities,

including but not limited to boats, vehicles, camping gear, boots, clothing, and fishing waders,

shall be inspected and cleaned of all attached or loose soil and plant parts

• Activities should be designed to minimize disturbance to soil and natural vegetation cover, in

order to prevent establishment of invasive plants.

• Sightings of new infestations of priority invasive plants shall be reported to the Forest Service.

• The Forest Service will provide training materials and/or brief workshops on invasive plants to

permit holders each year prior to the summer field season. In use areas with known infestations

of high or medium priority invasive plants, outfitter/guides shall be required to annually report

implementation of required mitigations specified in their permits.

Heritage Resources

Heritage sites will be protected through avoidance, mitigation, regulatory enforcement, and 

monitoring. Items of historical, prehistoric, or paleontological value are protected under various 

Federal laws, including the National Historic Preservation Act; the Antiquities Act of 1906; the 

Archaeological Resource Protection Act of 1979 and other Federal regulations. 

If historical, prehistoric, or paleontological objects or sites are discovered during activities under this 

permit, the permit holder is responsible for assuring that those objects or sites are not disturbed 

during the course of the activities of the permit holder or the permit holder's clients. This includes 

digging and disturbing sites, and picking up and removing artifacts from sites. 

If any historical, prehistoric, or paleontological objects or sites are located, permit holders are 

required to report, at the earliest opportunity, their findings to the Forest Service.

Leave No Trace principles will be incorporated into permitted operations. Any activities requiring 

ground disturbance or construction are required to undergo a separate environmental analysis and 

Section 106 review. 

Additional requirements and best practices: 

• Include R10-X106 permit clause on all permits;

• Provide outfitter/guide training/education;

• Conduct site monitoring on a regular and consistent basis;

• Implement management plans to avoid or minimize effects to historic properties within LGAs;

and

• Engage in collaborative stewardship with Tribes.

Additional mitigation is discussed in Table C-1 below.

Shoreline II Outfitter/Guide DEIS Appendix C - 13 - 
Mitigation—Appendix C

The Forest Service only authorizes use on National Forest Lands. The permit holder is responsible 

for understanding where they are authorized to take clients under the terms of their permit. This 

includes understanding private property and in-holdings. Jamboree Bay, Sinitsin Cove and the 

Redoubt Lake all have small parcels selected and pending conveyance to Sealaska Corp under 

ANCSA. As such, they shall be treated as if they have been conveyed into private ownership.

Sealaska Corporation will be submitting 76 ANCSA Section 14(h)(1) selection applications, adding 

to the three pending ANCSA selections listed here (Jamboree Bay, Sinitsin Cove, and Redoubt 

Lake). Of the 76 sites to be selected by Sealaska Corporation, it appears there will be 24 new 

applications within the Shoreline II project area. Sealaska Corporation will be submitting their 

selections soon.

Appendix C - 14 - Shoreline II Outfitter/Guide DEIS 
Table C-1. Mitigation plan for heritage resources 

Resource Indicator Mitigation Threshold/

Trigger Adaptive Action

Historic Properties *

Monitor historic properties 

for impacts and complete 

comprehensive inventories 

where prior inventories, if 

any, have been incomplete. 

Evaluate sites for which 

National Register 

evaluations are pending. 

300 reported service days used in 

a single year at discrete locations 

within any GUA and outside of 

LGAs

If eligible properties are present then a site 

specific management plan will be developed to

avoid, minimize, or mitigate adverse effects. 

Measures may include:

Site avoidance

Minimize potential for effect by reducing numbers 

of service days allocated

Mitigate adverse effects by data recovery, 

including as appropriate, systematic excavation, 

interpretation or other means

All management plans will include an 

effectiveness monitoring strategy.

Historic Properties *

Monitor historic properties 

for impacts and complete 

comprehensive inventories 

where prior inventories, if 

any, have been incomplete. 

Evaluate sites for which 

National Register 

evaluations are pending. 

40 or more reported service days 

used per mile of shoreline within a 

GUA** 

Comprehensive archaeological inventory of the 

shoreline of the GUA required within five field 

seasons. If historic properties are present, a sitespecific management plan will be developed to 

avoid, minimize, or mitigate adverse effects. All 

management plans will include an effectiveness 

monitoring strategy.

Historic Properties *

Upon Application for use of a LGA 

with documented historic properties 

within the boundary

A site-specific management plan will be 

developed to avoid, minimize or mitigate adverse 

effects to historic properties. All management 

plans will include an effectiveness monitoring 

strategy.

Historic Properties * Upon Application for use of a LGA 

with known AHRS listed properties 

within the boundary.

Before issuing new permits, complete 

determinations of eligibility for those sites that are 

known and unevaluated within a LGA. For those 

site determined eligible, a site specific 

management plan will be developed to avoid, 

minimize or mitigate adverse effects to historic 

properties. All management plans will include an 

effectiveness monitoring strategy. 

Sacred Sites/Places Application for use on Kruzof Island Government to Government consultation with the 

Sitka Tribe prior to issuing permits

14(h)1 ANCSA Private Inholding, Pending and 

Conveyed

Work with the Tribes and 

Corporations to develop 

Collaborative Stewardship 

program to monitor private 

Permit applications in vicinity of all 

private inholdings, as well as near 

selected, but not yet conveyed 

ANCSA 14 (h)(1) properties. 

Work with the Tribes and Corporation to develop 

Collaborative Stewardship program to monitor 

private lands and sites of concerns within 

Traditional Territories.

Shoreline II Outfitter/Guide DEIS Appendix C - 15 - 

Appendix C—Mitigation
Mitigation—Appendix C

Resource Indicator Mitigation Threshold/

Trigger Adaptive Action

lands and sites of concerns 

within Traditional Territories

* Historic properties are those pre or post-contact sites that have been determined eligible for or are listed in the National Register of Historic Places.

** Use data will be compiled by special use permit administrators and presented on an annual basis to Heritage Program staff.

Recreation Resources

Outfitter/guide camps are prohibited within 1 mile of any Forest Service recreation cabin in the project area unless otherwise authorized.

The use of public recreation cabins or their amenities (e.g. skiffs, firewood, fire rings, toilets) by outfitter/guides is prohibited unless specifically 

authorized in their permit. Exceptions to this rule vary by ranger district/monument. When a cabin is authorized, the permit holder shall adhere to 

the Policy for Outfitter/Guide Use of Tongass National Forest Public Use Cabins.

Appendix C - 16 - Shoreline II Outfitter/Guide DEIS 
Appendix D

Adaptive Management

Appendix D. Adaptive Management

What is Adaptive Management? ___________ 

Adaptive management is a management tool that allows decision-makers to acknowledge the 

uncertainties surrounding the management of natural systems. It helps managers respond to resource or 

system conditions over time through the collection and evaluation of additional information. 

How does Adaptive Management work? ____ 

Adaptive management seeks to provide a structure to evaluate how to best meet projects short-term and 

long-term goals, and helps answer the basic question: Are our management actions having the predicted 

or desired effects?

Adaptive Management is not a ‘trial and error’ process, but one that emphasizes learning while doing. 

Adaptive Management does not represent an end in itself, but a means to more effective decisions. 

Adaptive Management requires a measureable objective, monitoring to determine the effectiveness of the 

management practices used in achieving the objective, evaluation to determine if the objective is being 

reached, and adaptation based on the results.

Adaptive management requires managers to predict, mitigate, implement, monitor, and adapt (Figure 1). 

Managers repeat these steps over time to improve their understanding of a system and incorporate 

learning into resource management and protection. 

Figure D-1. Adaptive Management process

Adaptive management seeks to:

1. Allow for adaptation to meet a project’s environmental, social, and economic goals;

2. Involve stakeholders; and

3. Incorporate new knowledge into a transparent and agreed to framework to adjust decision- making as

conditions change.
Appendix D—Adaptive Management 

Why apply Adaptive Management to the 

Shoreline II Outfitter/Guide project? 

Shoreline II Outfitter/Guide (hereafter Shoreline II) is a landscape-level project that recognizes demand 

for certain types and amounts of guided and non-guided use and resource conditions will change 

incrementally over time due to economic trends, peoples’ preferences of recreation activities, and natural 

changes in ecological systems. Those changes may necessitate adjustments (increase/decrease in guided 

use) in the management of effects to resources in use areas (UA). While the Forest Service has gained 

experience through years of managing guided use there are still uncertainties surrounding how resources 

will respond to increased use, and the effects to the visitor experience. Based on the results, the Forest 

Service may adjust allocations in order to better protect resources and to improve visitor experiences.

When developing a framework for authorizing commercial recreation use on the National Forest, a 

discussion between the terms “allocated use” and “actual use” is necessary to understand the impacts and 

impreciseness of the permitting framework. The Shoreline II DEIS presents the analysis of four 

alternatives on how to allocate a proportion of total (commercial and non-commercial) visitor capacity to 

commercial uses. The remainder of the total visitor capacity would be reserved to represent the noncommercial recreation use that happens on the landscape. A business who obtains an outfitter/guide 

permit is authorized a portion of the total commercial allocation. In a typical use area, there are multiple 

businesses operating at the same time and collectively they utilize the allocation of commercial use 

service days. This is referred to as the allocated use, or what businesses are authorized to use in a single 

year.

Actual use is the amount of an individual guide’s allocated use that gets utilized by paying clients in a 

single year. Every year guide companies have some degree of uncertainty on how many clients they will 

be able to attract to utilize all their allocated use. These uncertainties typically result from global, national 

and regional economic conditions, weather, and transportation logistics (i.e., the number of available seats 

to transport clients equals the number of service days authorized). Most guide companies desire an 

authorization of use at a level greater than their actual use. This offers opportunity for business growth if 

favorable conditions exist, rather than turn clients away or ask the agency for more use mid-season. This 

generally results in a gap where actual use is less than the allocated, or authorized, use.

The Forest Service Manual establishes a policy to keep allocated (authorized) use in check with actual 

use. Every 5 years each special use authorization undergoes a review to rebalance allocated and actual 

use. Ideally these numbers would be in equilibrium, but the desire for flexibility and growth by the 

industry and maximizing public recreation experiences by the agency make it unlikely. This results in an 

imprecise allocated use-actual use permitting framework.

This element of uncertainty lends itself to an adaptive approach, and allows for a better assessment of use 

allocations and whether those allocations are meeting the project’s purpose and need. Integrating Adaptive 

Management and the NEPA process gives the Forest Service a tool that provides the flexibility to address 

unanticipated results of project implementation and to adjust decisions regarding the amount and 

locations of guided use for practical reasons.

Goals and desired outcome for the Shoreline II

Adaptive Management Strategy ___________ 

The Shoreline II DEIS lays the foundation for a collaborative Adaptive Management strategy to inform 

and improve outfitter and guide use management. The purpose of this plan is to meet the following three 

goals:

Appendix D - 2 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

1. To provide a structured method to monitor and evaluate the impacts of outfitter and guide use within

use areas (UAs), in order to help mangers implement actions that keep resource impacts within the

range predicted in the EIS.

2. To provide baseline, and ongoing data regarding the impacts of outfitter guide use and impacts within

UAs to inform adaptive decisions to increase or decrease use within specific UAs.

3. To track changes to the project area throughout the life of the project, to continue to offer quality

recreation experiences, and expand economic opportunities if resource conditions allow.

What is collaborative Adaptive Management? 

Collaborative Adaptive Management emphasizes joint learning and active partnership between managers, 

operators, and the public. Under the Adaptive Management framework for the Shoreline II project, 

holders of outfitter guide special use permits will be required to participate through terms of their permits 

such as reporting actual use data (numbers of clients, dates, locations) and voluntarily by reporting 

monitoring data collected in the field as they operate their businesses. The Forest Service’s goal is to 

reframe a traditional public-private regulatory relationship into a public-private collaborative partnership 

realizing common interests in providing the highest quality national forest experiences and supporting 

local economies. 

The public will be invited to attend meetings to discuss the suggested metrics contained in this DEIS 

during several public meetings to be held after its release, and will also have the opportunity to provide 

comments during the 45-day comment period. This will provide individuals with the opportunity for input 

on what metrics should be considered for inclusion in the final Adaptive Management Strategy, based on 

the extent to which they meet the its goals: importance, measurability, and feasibility. 

The final decision regarding which metrics to monitor rests with the responsible official. The final 

Adaptive Management Strategy will be published as part of the FEIS. The Adaptive Management 

Strategy is intended to be flexible in that as new information is collected and evaluated, the Forest Service 

and the public will continually re-examine the goals of the program, monitoring strategies, and 

management actions. The Forest Service will keep the public updated on new information and any 

changes to monitoring strategies or use management through the Tongass National Forest website, 

monitoring reports, and public meetings, as needed.

Shoreline II Outfitter/Guide DEIS Appendix D - 3 - 
Appendix D—Adaptive Management 

Table D-1. Phases of Shoreline II adaptive management process

Phase Step or Activity Description

Set-up phase of Adaptive 

Management

Forest Service development of 

Adaptive Management plan Fall 2015

Stakeholder involvement

Ongoing: The public will be introduced 

to the Adaptive Management plan in

Winter of 2015/2016 when the DEIS is 

published and the comment period is 

initiated. Public meetings will be held, 

and written comments will be accepted 

during designated comment periods.

Monitoring protocols/resource 

indicators

Will be revised and adjusted based on

public input between DEIS and FEIS.

Iterative phase of Adaptive 

Management

Decision making

Adaptive Management may be 

selected within the Shoreline II ROD, 

with the potential to make future 

adjustments within parameters of the 

FEIS analysis; metrics will be

prioritized with public input (provided 

between Draft and Final EIS) and the 

responsible official may select final 

metrics.

Stakeholder involvement

Outfitter/guides, members of the public, 

and the Forest Service collaborate on 

collecting data to support

implementation of Adaptive 

Management. 

Monitoring begins

Once decided to implement Adaptive 

Management in a use area, a 2-year

period of monitoring to gather baseline

data is required, before Adaptive 

Management decisions can be

instituted. Special use permits will be

amended to include Adaptive 

Management requirements for operator

in these use areas.

Ongoing monitoring

Monitoring will be conducted as outlined 

in Table D-2, and reports will be

published in the Tongass Forest Plan 

Monitoring Report.

Assessment, learning and 

feedback

Ongoing, with periodic stakeholder

meetings to discuss monitoring results

throughout the life of the project.

How would Adaptive Management changes 

occur for this project? ___________________ 

Adaptive management would be applied to outfitter/guide allocations described in all the alternatives and 

would be designed to meet Shoreline II’s purpose and need. More specifically, the Adaptive Management 

strategy may be implemented when any use area’s actual use data fall within the range of 80 percent to 

110 percent of the allocation for any use season (early spring, late spring, summer, fall, winter) and there 

is a request for additional use from an outfitter/guide. The authorized officer has discretion whether or not 

to implement Adaptive Management based on budget and workforce capacity. Outfitter/guides requesting 

Appendix D - 4 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

use the implements Adaptive Management may be subject to additional fees under cost recovery 

regulations.

Actual use data is information guides are required to report to the Forest Service at the end of every 

operating season. The actual use data provides specific information about activity location, client numbers 

hosted at each location, and the date the activity occurred. Actual use data is entered into an 

outfitter/guide database managed by the Forest Service. The outfitter/guide database is used to track 

trends of actual use, determine specific locations that receive intensive use, provide information that 

determine whether new applications for authorized use will be approved, and influence where monitoring 

may be necessary. Concerns regarding inaccurate self- reporting of actual use data are alleviated by policy 

that directs the Forest Service to reduce authorized use to what is actually used and to charge a fee for 

what is authorized in the permit. Under-reporting of actual use results in the reduction of an individual 

guide’s authorization; over-reporting of use requires the guide to pay more for their permit. 

The decision space for this Adaptive Management framework is 1) when any UA for any season has 

between 80 percent and 110 percent of its allocation utilized in actual use and 2) whether or not to 

implement it considering agency capacity. To ensure adequate baseline information is collected, decisions 

based on the Adaptive management framework will not be implemented until at least two years after the 

Record of Decision. The priority for collecting baseline information will be in those use areas and use

seasons that currently have 75 percent to 80 percent of the allocation utilized in actual use. 

While the responsible official may take action in response to monitoring data collected, the Forest Service 

could not, under any scenario, authorize more than 110 percent of the allocated use (the maximum 

number of days evaluated under the selected alternative in the Selected Alternative) through Adaptive 

Management, unless additional National Environmental Policy Act (NEPA) compliance is completed (see 

the NEPA Review section).

The following sections describe the components of the Adaptive Management framework, and the 

associated monitoring plan that would provide the information used to determine which/or what sort of 

adaptive action(s) could occur. 

What is a monitoring plan? _______________ 

A monitoring plan standardizes the process used to determine resource status to identify

appropriate management actions through the use of monitoring data.

A monitoring plan helps structure and guide decision making by linking the definition of project specific 

resource indicators, monitoring, and triggers/thresholds to assessment results, which in turn determine 

adaptive actions. An effective monitoring plan should be designed to ensure that resource parameters are 

adequately measured, provide a timeframe for actions, and be appropriately focused by outlining relevant 

resource indicators.

What components would the Shoreline II

monitoring plan include? _________________ 

Resource Indicators

In order to evaluate the impacts of this project and to make adjustments, a series of resource indicators 

have been developed. Resource indicators are measurable attributes that identify which factors would 

initially guide data collection and provide a link between the projects overall goals and the desired 

resource outcomes. For this project, the resource indicators are a reflection of the issues that drove the 

various action alternatives: crowding, user conflict and other resources of concern.

Shoreline II Outfitter/Guide DEIS Appendix D - 5 - 
Appendix D—Adaptive Management 

These key indicators (see Table D-2) will be measured regardless of where the monitoring data is 

collected. Contingent and/or supplemental indicators would be measured when necessary to address 

specific local, regional, or national resource needs or objectives.

Monitoring

Monitoring is defined as anything necessary and appropriate to determine the accuracy of impact 

predictions, and the effectiveness of mitigation measures. Monitoring provides the ability to adequately 

evaluate the effects of potential adaptive measures to allow for mid-course corrections, without requiring 

new or supplemental NEPA review. Without monitoring there would be no improved understanding of 

conditions or responses to management actions, and therefore, no informed adjustment of on-the-ground 

practices. Effective monitoring is required to reduce uncertainty, and to determine how and when 

subsequent action will be taken.

Monitoring: 

• Provides data to evaluate progress towards achieving project objectives;

• Increases understanding of resource dynamics;

• Allows for an evaluation of impacts predicted and those actually occurring; and

• Provides a basis/justification for adjusting management actions.

Monitoring can be performed in a variety of ways. Sometimes observation of conditions readily 

identifiable without the aid of special equipment is sufficient. Other times, monitoring might involve 

detailed sampling. Monitoring results may also suggest that other metrics need to be evaluated, that other 

resources should be evaluated, or that adjustments to the way resources are monitored should be made.

Triggers

Triggers or thresholds define a resource condition that would initiate adaptive action(s) based on the 

outcome of monitoring information (i.e. if this (trigger is met), then that (adaptive action occurs).

The thresholds in the Shoreline II project were established by the interdisciplinary team (IDT) based on 

Forest Plan standards and guidelines or their individual resource analyses. Thresholds act as triggers that, 

when monitoring data exceeds the prescribed threshold, an adaptive action could be implemented. The 

adaptive action is either to increase, hold constant, or decrease the allocation of outfitter/guide use in a 

use area.

Adaptive Actions

Adaptive actions are actions that will be taken when certain conditions (triggers/thresholds) are or are not 

met. For this project, the adaptive actions primarily relate to increasing or decreasing the allocation in the 

selected alternative between 80 percent and 110 percent. Management actions may also involve other 

practices employed by outfitter guides such as communication and coordination with each other or 

avoidance of certain areas to mitigate certain site specific impacts. The acceptable range of management 

actions, except the adjustment of allocations between 80 percent and 110 percent, can change through 

time, as stakeholder perspectives and resource conditions evolve, legal requirements change, and new 

information becomes available.

All possible management actions cannot be fully detailed in this document. Actions would be tailored to 

respond to the specific/identified impact to the affected resource. An appropriate response would be 

evaluated within the Forest Service’s capacity to utilize all available information, best science and 

coordination with appropriate agency specialists and outfitter guides.

Appendix D - 6 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

The resource indicators displayed below in Table D-2 have been selected to represent key resource 

concerns, and are tied to the issues brought forward by the public during scoping. These issues are 

tied directly to each alternative developed for analysis. The indicators selected for monitoring are capable 

of showing trends over time and will respond to adaptive actions in line with the overall desired condition 

of the project area.

Shoreline II Outfitter/Guide DEIS Appendix D - 7 - 
Appendix D—Adaptive Management 

Table D-2. Resource indicators and corresponding adaptive actions

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

Recreation & Wilderness: 

Crowding

Monitor the use area and use 

season of concern annually for 

the first two years to establish a 

baseline estimate of the number 

of encounters per day. Then 

monitor biannually until data and 

impact relationship remains 

stable for three consecutive data 

points.

Encounters with or amongst 

outfitter/guides and public 

groups exceed the Forest 

Plan ROS standards and 

guidelines at one or more use 

locations more than 15% of 

the season of concern.

Require guides to monitor and 

report the number of encounters 

per day with their actual use 

report.

If monitoring data is below 

threshold, authorize up to 95% 

of the use area allocation. 

Continue monitoring annually 

for 2 years. If data remains 

below the threshold, authorize 

up to the maximum 110 percent

of the use area allocation.

If monitoring data exceeds the 

threshold, do not authorize 

additional use and implement 

the following actions in priority 

order to the point where the 

threshold/trigger is achieved: 

Encourage outfitter/guide 

communication to coordinate 

activities to certain days/times 

to reduce encounters.

Guides voluntarily reduce the 

number of authorized service 

days.

Agency formally revokes 

authorized service days 

proportionally from all guides 

utilizing the use area.

Recreation: Conflict 

between user groups

Annually monitor use area and 

season conflicts through ad-hoc 

field monitoring and reports from 

the public and outfitter/guide 

businesses.

Conflicts between user 

groups result in a diminished

recreation experience and are 

recorded in any 2 of 5 year 

period in any single use area 

and season.

Require guides to report the 

number of conflicts that result in 

a diminished recreation 

experience for their clients or 

public with their actual use 

report. 

If monitoring data is below 

threshold, authorize up to 95

percent of the use area 

allocation. Continue monitoring 

annually for 2years. If data 

remains below the threshold, 

authorize up to 110 percent of 

the use area allocation. 

If monitoring data exceeds the 

threshold, do not authorize 

additional use and implement 

the following actions in priority 

order to the point where the 

threshold/trigger is achieved:

Encourage outfitter/guide 

communication to coordinate 

activities to certain days/times 

to eliminate conflict.

Guides voluntarily reduce the 

Appendix D - 8 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

authorized number of service 

days.

Agency formally revokes 

service days proportionally from 

all guides utilizing the Use Area.

Other Resources

Monitor botany and heritage 

resources in proposed use area 

at least once prior to 

implementing an Adaptive 

Management action. 

See Additional Monitoring 

section below.

Monitoring report concludes 

that botany and heritage 

resource conditions in the 

field are outside of the 

expected range of effects 

disclosed in the FEIS.

If monitoring data is below 

threshold, authorize up to 95

percent of the use area

allocation. Continue monitoring 

annually for two years. If data 

remains below the threshold, 

authorize up to 110 percent of 

the use area allocation. 

If monitoring data exceeds the

threshold, do not authorize 

additional use and implement 

the following actions in priority 

order to the point where the 

threshold/trigger is achieved:

Encourage outfitter/guide 

communication to coordinate 

activities to certain days/times 

to reduce encounters. 

Guides voluntarily reduce the 

authorized number of service 

days.

Agency formally revokes 

service days proportionally from 

all guides utilizing the Use Area.

Shoreline II Outfitter/Guide DEIS Appendix D - 9 - 
Appendix D—Adaptive Management 

Additional Monitoring 

Heritage 

The Forest Service program for compliance with the National Historic Preservation Act (NHPA) includes 

locating, inventorying, and evaluating the National Register of Historic Places eligibility of historic and 

archeological sites that may be directly or indirectly affected by scheduled activities. Regulations (36 

CFR 800) implementing Section 106 of the NHPA require Federal agencies to consider the effects of their 

actions on sites that are determined eligible for inclusion in or are listed in the National Register of 

Historic Places (termed "historic properties"). A Forest Service archeologist will conduct a cultural 

resource survey in the area of potential effect and conduct a files review to ensure compliance with NHPA 

and ensure that no historic properties will be affected. 

Botany

The most current information on sensitive, rare and invasive plants will be used to assess the need for 

additional avoidance or mitigation measures. This includes the most current versions of the Alaska 

Region sensitive species list, the Tongass National Forest rare plant list, and the Tongass National Forest 

high priority invasive plant species list.

Any occurrence of previously undiscovered rare or sensitive plants documented before or during 

implementation will be evaluated to assess the need for additional avoidance or mitigation measures. 

Outfitter/guide permits will include site-specific practices to prevent the introduction and spread of 

invasive plants.

On a site-specific basis, other species may be of concern and warrant additional management 

considerations. The Invasive Species standards and guidelines (USDA Forest Service 2008c, p. 4-22) and 

2011 Invasive Species Management Forest Service manual (FSM 2900) provide direction for minimizing 

spread of invasive species.

Project specific management considerations and mitigation are noted on the use area, and large group area 

cards located in Appendices A and B respectively. For further site specific design features and mitigation 

measures see Appendix C of this DEIS.

Data Collection and Documentation

Monitoring data will be input, and housed in the Outfitter and Guide database, and the results will be 

published in the Tongass National Forest Monitoring and Evaluation Report, and will also be available 

upon request from the Forest Service. Data will be reviewed by the interdisciplinary team, and Decision 

Maker to inform and evaluate Adaptive Management decisions.

NEPA Review___________________________ 

An interdisciplinary environmental review check-in will be done for all proposed Adaptive Management

actions. The District Ranger, and the responsible official, will determine the level of environmental 

review necessary.

The effects of proposed increase or decrease in allocations to various resources can be reduced or avoided 

through the use of Forest Plan Standards and Guidelines including the best management practices 

(BMPs). Additional mitigation measures may be identified during the environmental review. If any 

resource concern cannot be successfully mitigated or does not conform to the Forest Plan Standards and 

Appendix D - 10 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

Guidelines, the proposed action would not be implemented under the Shoreline II Outfitter and Guide 

EIS, and a separate NEPA analysis would be required. The requirement to prepare a supplemental analysis 

would continue to apply when the adapting responses, and their effects, exceed the scope of the NEPA 

analysis.

Once it is determined a potential increase/decrease in allocated use is necessary or desirable to better 

achieve Adaptive Management objectives, an environmental screening process will be conducted to 

determine what, if any, additional environmental compliance may be required. Through this screening 

process, the following will be determined: 

• Is the increase or decrease in proposed use expected to be consistent with the range of effects

disclosed, and analyzed for in the existing NEPA document given current environmental concerns,

interests, and resource values?

• Is the existing analysis valid in light of any new information or circumstances since the decision was

signed?

• Are the direct, indirect, and cumulative effects that would result from implementation of the new

proposed use allocation (s) for a/each GUA similar (both quantitatively and qualitatively) to those

analyzed in the existing NEPA document?

Environmental Review Process____________ 

The purpose of the environmental review is to determine how proposed Adaptive Management actions 

(increase, or decrease of allocated use in individual use areas (UAs)) would affect resources. If resource 

specialists find the effects of implementing the adaptive action is within the effects described in the 

Shoreline II EIS, a subsequent environmental review would not be needed prior to approval of the action. 

An environmental review of Adaptive Management proposals must be conducted by the IDT, and 

Adaptive Management decisions may be implemented if the district ranger and the responsible official 

(Forest Supervisor) concur with the findings of the IDT. The implementation sheet/environmental review 

checklist, provided below, shall be completed before an adaptive action could be taken, and adaptive 

actions will be considered no sooner than 2 years after the Record of Decision has been issued, to ensure 

baseline monitoring data has been collected to provide a basis for decisions. Monitoring results will be 

handled as outlined in the Data Collection and Review section. 

The implementation sheet outlines a structured format for documenting and approving adaptive actions. 

The monitoring plan above provides information for the IDT, and district ranger/responsible official to 

base determinations of whether adaptive changes are warranted over time and if so, which UAs meet the 

criteria for changes in use levels.

Prior to Implementation __________________ 

Project leaders will provide to the IDT a brief description and rationale for the proposed adaptive action, 

including location, season, and percent of proposed increase or decrease from current use levels in the 

selected GUA.

The IDT will review, and determine if site visits are necessary to determine if additional resource 

protection measures are necessary. The IDT will provide a consolidated response (see Environmental 

Review Worksheet below) to the district ranger for approval prior to implementation. 

Shoreline II Outfitter/Guide DEIS Appendix D - 11 - 
Appendix D—Adaptive Management 

Scope of Work during Implementation ______ 

Project-level monitoring is a commitment of resources to manage the national forest. If included in the 

Selected Alternative, Adaptive Management will be implemented contingent upon agency funding and 

capacity. The estimated scope of work to implement Adaptive Management in the first 2 to 5 years varies

by alternative. Each alternative proposes an allocation that, when taken into consideration of actual use, 

results in varying proportions of actual/ allocated use. Adaptive management would be employed when 80 

percent of the allocated use is utilized by actual use. Optimally, monitoring would start at 75 percent, so 

that there is a level of certainty regarding future management between agency and outfitter guide 

businesses. This scope of work is based on the number of use areas and season that will be at 75 percent

or higher in each alternative. 

Table D-3. Alternative 1 use areas where Adaptive Management strategy would be employed in first 2 to 5 

years of implementation

District Use Area Season Actual Use

2010-2014

Proposed

Allocation

Proportion

(Percent)

JRD 01-05D Tracy Arm Fall 56 45 124

JRD 01-05E Fords Terror Summer 293 153 192

SRD 04-01A Gut Bay,

Baranof Summer 235 311 76

SRD 04-02A Redoubt Lake Summer 258 101 255

SRD 04-04B Kelp Bay Spring 211 201 95

SRD 04-04B Kelp Bay Summer 2,825 1,181 239

ANM 04-06A Pybus Bay Summer 573 590 97

HRD 04-16C Idaho Inlet Summer 1,188 954 125

HRD 04-16E Port Althorp Spring 200 127 157

HRD 04-16E Port Althorp Summer 917 607 151

Table D-4. Alternative 2 use areas where Adaptive Management strategy would be employed in first 2 to 5 

years of implementation

District Use Area Season Actual Use

2010-2014

Proposed

Allocation

Proportion

(Percent)

JRD 01-05E Fords Terror Summer 293 125 234

ANM 04-10A Greens Creek Summer 190 250 76

Table D-5. Alternative 3 use areas where Adaptive Management strategy would be employed in first 2 to 5 

years of implementation

District Use Area Season Actual Use

2010-2014

Proposed

Allocation

Proportion

(Percent)

JRD 01-05D Tracy Arm Fall 56 75 75

JRD 01-05E Fords Terror Summer 293 95 308

SRD 04-01A Gut Bay,

Baranof Summer 235 315 75

SRD 04-01A Gut Bay,

Baranof Fall 42 55 76

SRD 04-04B Kelp Bay Spring 211 220 96

ANM 04-06A Pybus Bay Summer 573 510 112

Appendix D - 12 - Shoreline II Outfitter/Guide DEIS
Adaptive Management—Appendix D 

District Use Area Season Actual Use

2010-2014

Proposed

Allocation

Proportion

(Percent)

ANM 04-07A Gambier Bay Spring 45 60 75

ANM 04-10A Greens Creek Summer 190 190 100

Table D-6. Alternative 4 use areas where Adaptive Management strategy would be employed in first 2 to 5 

years of implementation

District Use Area Season Actual Use

2010-2014

Proposed

Allocation

Proportion

(Percent)

JRD 01-05E Fords Terror Summer 293 200 147

Shoreline II Outfitter/Guide DEIS Appendix D - 13 - 
Appendix D—Adaptive Management 

Environmental Review Worksheet __________ 

Guide Use Area:

Season:

Located in a Wilderness Area: Y/N

Current Allocation: 

Proposed Allocation:

Adaptive Action Resource Effects

Please supply resource specific answers to the following questions:

• Would the effects of implementing this action (direct/indirect/cumulative) match those described in

NEPA analysis for each resource?

• Have conditions changed (i.e., new listed species in project area; new invasive species in project

area; change in regulation)? If so, describe.

• Are there specific mitigation measures needed?

• Is there a need to review new information (FSH 1909.15 Section 18)?

Heritage:

Wildlife/Subsistence:

Recreation:

Hydrology/Fisheries:

Botany: Invasive Plants:

Soils and Wetlands: 

Wilderness:

I have reviewed the activities proposed for the Shoreline II Guide Use Area . Based on my 

review, the decision to is consistent with the Shoreline II Outfitter and Guide 

Environmental Impact Statement and Record of Decision. 

X 

District Ranger

X 

Forest Supervisor

Appendix D - 14 - Shoreline II Outfitter/Guide DEIS