Chapter 2: Goals and Objectives, Management Direction 

2. Goals and Objectives, Management Direction 

This chapter includes sections addressing two major topics: Refuge Goals and Objectives and 

Regional Management Direction. Section 2.1 identifies refuge goals and objectives that will be 

implemented under this Plan. Section 2.2 provides an overview of the regional management 

direction. Section 2.3 describes the management categories on Alaska’s National Wildlife 

Refuges. Section 2.4 describes regional management policies and guidelines. Section 2.5 

includes a table comparing permitted activities, uses, and facilities by management category. 

2.1 Goals and Objectives 

The refuge vision and purposes (chapter 1, section 1.4) provides a framework for developing 

goals and objectives for managing the Refuge. Objectives are often applicable to more than 

one goal. To avoid duplication, the objectives have been listed under the most applicable goal. 

Following each objective is the rationale for that objective. 

The full range of objectives is presented here to provide an overview of the topics that are 

currently being addressed or might be addressed during the life of this Plan. Some of these 

objectives may not be addressed during the life of the Plan due to funding and/or staffing. 

Cooperation with the State and federal agencies and other organizations is a critical 

component to successfully meeting most of the objectives. This cooperation can take a variety 

of forms, ranging from reviewing and revising study plans and reports to cooperating on data 

collection and report completion. 

2.1.1 Goal 1: Conserve fish and wildlife populations and habitats in their natural diversity in 

a manner consistent with natural ecological processes. 

Objective 1: Continue to implement and update the current Inventory and Monitoring Plan 

(I&MP). Finalize the updates of the plan by January 2009 to reflect changes in techniques; 

add new projects focused on invasive species, climate change, water quality, and wetlands; and 

include new and ongoing cooperative efforts. 

Rationale: The Inventory and Monitoring Plan is a step-down plan that is the core of the 

refuge biological program. It outlines an annual cycle of wildlife and habitat surveys designed 

to detect trends in populations and productivity of selected species, assess health of 

populations and ecosystems, and provide data for decision makers and the public regarding 

regulatory issues. Listed below are projects included in the plan. A summary of the I&MP 

can be found in appendix C. 

Moose Trend Counts (annual) 

5 areas on Koyukuk 

3 areas on Northern Unit Innoko 

2 areas on Nowitna 

Moose Population Estimation Surveys (approximately every five years) 

Moose Spring Twinning Surveys (annual) 

Moose Hunter Check Station on the Nowitna and Koyukuk (annual) 

Caribou Distribution Survey (annual) 

Caribou Telemetry, Productivity, and Habitat (monthly) 

Wolf Abundance Surveys (annual) 

Furbearer Aerial Track Counts (in development) 

Breeding Pair Duck Production Aerial Surveys (annual) 

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Duck Banding on the Koyukuk/Northern Unit Innoko (annual) 

Goose Production Float Surveys (annual) 

Goose Aerial Molting Survey (annual) 

Swan Production 

Aerial Trend Survey (annual) 

Statewide Census (every five years) 

Yukon River Peregrine Nesting (annual) 

Beaver Abundance Aerial Survey (annual) 

Passerines Surveys (annual)

Breeding Bird Survey Trend Monitoring 

Spring Migration/Phenology Monitoring 

Off-Road Point Count (Koyukuk) 

Christmas Bird Count 

Objective 2: Continue to work cooperatively with the Fisheries Resource Office (FRO) of the 

Service in Fairbanks, ADF&G, non-governmental organizations, and the pubic to identify key 

fisheries resource issues, and implement specific studies to address concerns and fill in gaps in 

the Refuge’s knowledge of fisheries resources.

Rationale: Currently, we cooperate closely with FRO to operate the Gisasa River salmon weir 

and to conduct two research projects on sheefish. Fish populations are extremely important 

components of both a healthy functioning ecosystem and a healthy subsistence lifestyle. The 

cooperative weir project has led to vast improvements in our knowledge of Chinook salmon 

movements, spawning locations, and run timing. Past projects on pike have improved our 

knowledge of habitat use, survival, and heavy metal contaminants. 

Objective 3: Upon funding, hire a new full time fisheries biologist/hydrologist to fully 

integrate the refuge biological program with FRO projects and expertise. 

Rationale: The addition of a fisheries biologist/hydrologist to the refuge staff would add 

tremendously to our operational capabilities and knowledge base. This position would be 

responsible for developing and implementing I&MP programs for fish, wetlands, and streams 

on the Refuge. Fisheries issues are (and will continue to be) of paramount importance to local 

users and to the ecosystem. This position would provide a vital communication link between 

rural users and biological experts in the FRO. A dedicated fisheries biologist/hydrologist at 

the Refuge would be able to focus on regulatory and other refuge-specific issues, and enhance 

FRO work. 

Objective 4: Continue to work cooperatively with the University of Alaska, U.S. Geological 

Survey, ADF&G, tribal organizations, and others to develop and implement research on global 

climate change, and (upon adequate funding) incorporate new monitoring efforts into our 

existing I&M that focus on detecting long-term changes to refuge ecosystems.

Rationale: Climate change has become a part of our daily language. The effects of a changing 

climate on arctic and subarctic ecosystems, people, and the health of refuge resources are not 

well understood. We have already initiated cooperative projects investigating (1) regional 

historic weather patterns and potential impacts to wildlife populations and subsistence use; 

and (2) patterns and causes of lake drying on portions of the Refuge. We would continue to 

pursue projects that would increase our understanding of how changes in climate may affect 

refuge ecosystems. Cooperative projects allow us to share expertise and limited funds across 

multiple organizations and to coordinate regional projects. Efforts would be made to enhance 

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the existing I&MP with projects designed to detect long-term changes in refuge ecosystems 

caused by climate change as time and funding allow. 

Objective 5: Upon adequate funding, restore the wildlife biologist position that was removed 

in 2006 due to organizational changes.

Rationale: The Refuge has employed four biologists in the past. Our current staff cannot 

effectively accomplish requirements of the I&MP, cooperative research projects, and other 

mandatory tasks. A fourth biologist would greatly enhance our capabilities with the existing 

biological programs and allow us to initiate new work on topics such as global climate change 

and wetland ecology. 

2.1.2 Goal 2: Ensure the natural character, vigor, and species diversity of the refuge boreal 

forest and tundra ecosystems by perpetuating a fire regime both natural and 

prescribed, which maintains a mosaic of habitats native to interior Alaska. 

Objective 1: Continue to implement the Refuge Fire Management (FMP) and Communication 

Plans. 

Rationale: Fire is the main driver of ecosystem change within the Refuge. New fire 

management practices need to continually be integrated into refuge habitat management. The 

FMP provides management strategies that enable the Refuge to conserve, protect, and 

enhance habitats. Objectives within the FMP address ecological relationships and human 

health and safety. Due to the important role that fire plays in refuge ecosystems, 

implementation of the FMP is a fundamental step in addressing Goal 2. 

Objective 2: Continue to refine the understanding of the Refuge’s fire history by maintaining 

the most current fire history geographic information system (GIS) layer, incorporating 

information from other fire history studies, working collaboratively with other federal and 

State fire management agencies and universities, utilizing climate change research findings 

and the most current fire technology, taking advantage of local knowledge, and participating 

in studies of Alaska fire regimes. 

Rationale: Fire is the Refuge’s dominant disturbance regime, resulting in major changes to 

and renewal of wildlife habitat. Our current knowledge of interior Alaska fire regimes is 

rudimentary and will continue to evolve as new research is conducted, furthering our 

understanding of the inner workings of these regimes and how climate change will affect them. 

2.1.3 Goal 3: Maintain a fire management program that helps achieve other refuge goals and 

objectives while providing for the protection of human life, private property, and 

identified cultural and natural resources. 

Objective 1: Within one year of the final Plan being approved, combine the Koyukuk, Nowitna, 

and Northern Unit Innoko fire management plans and incorporate changes resulting from this 

plan along with current fire policy in a single updated fire management plan. 

Rationale: Combining the Koyukuk, Nowitna, and Northern Unit Innoko FMPs simplifies the 

fire management program and eliminates redundancy. Using one document makes it more 

efficient for the fire management officer to manage the fire program. The new FMP would allow 

other agencies and the public to easily understand and follow the refuge fire management 

program. 

Objective 2: Within five years of the final Plan being approved, contact the tribal and local 

governments in Galena, Hughes, Huslia, Kaltag, Koyukuk, Nulato, Ruby, and Tanana to 

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Chapter 2: Goals and Objectives, Management Direction 

assess the need for assistance in reducing hazardous fuel accumulations and developing a 

mitigation plan (i.e., Comprehensive Wildland Fire Protection Plan). Within 10 years of the 

final Plan being approved, evaluate the effectiveness of the fuels reduction projects 

implemented to-date in each village. 

Rationale: A need to reduce hazardous fuel accumulations around some of the villages has 

been identified. Hazardous fuels reduction work will help protect villages from wildland fire 

and reduce the likelihood of a fire within or adjacent to a village, provided this work is 

maintained over time. Fuel reduction projects, already begun in some of the villages, have 

served to strengthen relationships between the Refuge and village organizations and 

residents. Evaluating each fuels reduction project for the need of re-treatment will help the 

fire management officer determine the most effective means of treating hazardous fuel 

accumulations in the surrounding villages. 

Objective 3: Within five years of the final Plan being approved, update the Refuge’s GIS layer, 

which includes cultural resource values at risk. 

Rationale: Up-to-date information is needed by the fire management officer, the refuge 

manager, and the protection agency to make an informed decision regarding the appropriate 

management response to each wildland fire start. 

Objective 4: Continue to develop partnerships with other federal and State agencies and local 

governments to further the understanding of fire interactions in interior Alaska. 

Rationale: Combining efforts to understand interior fire interactions is one way of gaining 

knowledge while dealing with limited staff and budgets. Cooperative work can diminish the 

separation that sometimes exists between agencies and local governments and build a 

healthy working relationship. 

Objective 5: Upon funding, hire an assistant fire management officer to assist the refuge fire 

management officer with wildland and prescribed fire planning, monitoring, and administration. 

Rationale: At current personnel and funding levels, the Refuge cannot fully implement the 

refuge FMP. 

2.1.4 Goal 4: Ensure the natural function and condition of water resources necessary to 

conserve fish and wildlife populations and habitats in their natural diversity. 

Objective 1: Within 10 years of final Plan approval, develop a wetland inventory and 

monitoring program to be incorporated into the current I&MP. Inventory and monitoring will 

address aquatic plants, fish, wetland-dependent wildlife, aquatic invertebrates, and physical 

and chemical properties of lakes and wetlands. Projects will be implemented as staff and 

funding become available. 

Rationale: Data derived from wetland inventory and monitoring would greatly advance the 

understanding of wetland ecosystems, including the plants and wildlife dependent on them, 

and would establish a baseline for comparison of future conditions. Changes in wetland 

characteristics can affect the diversity and abundance of fish, wildlife, and plants within the 

Refuge. Existing conditions are currently not being assessed or monitored. The refuge staff 

will work with specialists from other Service branches or outside the Service to design and 

implement feasible and productive studies. 

Objective 2: Within 10 years of final Plan approval, work with the Service’s Water Resources 

Branch to develop a river and stream resources inventory and monitoring program to be 

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Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-5 

incorporated into the current I&MP. Inventory and monitoring should address aquatic plants, 

river-dependent fish and wildlife, aquatic invertebrates, riparian and floodplain habitat, and 

physical and chemical properties of rivers and streams. Projects will be implemented as staff 

and funding become available. 

Rationale: We currently know very little about existing conditions. Data derived from river 

and stream resources inventory and monitoring will greatly advance our understanding of 

refuge water and help the Refuge meet legal mandates pertaining to the protection and 

management of water quality and quantity. Projects will describe and monitor water flowing 

throughout the Refuge, including natural hydrologic processes that create the dynamic habitat 

necessary to support plants, wildlife, and fisheries. Changes in rivers and streams can affect 

the diversity and abundance of fish, wildlife, and plants within the Refuge. The refuge staff 

will work with specialists from other Service branches or outside the Service to design and 

implement useful and feasible studies. 

Objective 3: Within five years of final Plan approval, review the Refuge’s 1986–1988 baseline 

evaluation of placer mining sedimentation and occurrence of heavy metals on associated 

aquatic ecosystems of the Refuge, and develop and implement a repeat survey (when 

additional funding is obtained). 

Rationale: Although all placer mining activities are taking place outside refuge boundaries, 

potential impacts to the Refuge exist due to downstream sediment transportation, stream flow 

disturbance, and accelerated release of heavy metals associated with placer mining operations. 

Project assessment, development, implementation, and review will be coordinated with 

current Service environmental contaminants and fisheries resource programs, tribal 

watershed management programs, and the river and stream resources portion of the I&MP. 

2.1.5 Goal 5: Provide information and maintain open communication for a greater 

understanding and appreciation of fish and wildlife ecology, habitat preservation, and 

refuge management that assists in addressing resource issues important to local 

residents, the Service, and others. 

Objective 1: Conduct school programs and/or community meetings in Galena, Hughes, Huslia, 

Kaltag, Koyukuk, Nulato, Ruby, and Tanana at least once a year. Presentations can cover 

topics such as local wildlife, habitats, and management; wildlife surveys and current 

population status or trends; subsistence foods, health benefits, and contaminant risks; fire 

ecology and management; and climate change. 

Rationale: Face-to-face interaction with students and other local residents continues to be the 

most efficient and requested form of outreach. Refuge staff will continue to coordinate with 

local village organizations and schools to develop and schedule public presentations that 

highlight current biological research and issues of concern for local residents. These 

programs build community awareness and support of the Refuge, its resources, and the 

purposes of the National Wildlife Refuge System. 

Objective 2: Maintain the existing refuge resource library and continue to work with local 

schools to develop resources for environmental education, including curricula, teaching kits, 

and teacher workshops on natural resources and other refuge-related topics.

Rationale: The Refuge has been successful in developing locally relevant teaching resources 

and facilitating their use in schools and should continue to support and expand these efforts. 

Outreach to schools provides a tremendous opportunity to instill in young people awareness 
Chapter 2: Goals and Objectives, Management Direction 

and support of the local environment, refuge resources and programs, and responsible 

environmental stewardship. Today’s students are potential future users of the Refuge, local 

community leaders, and decision makers. By providing teachers with resources and skills to 

bring conservation knowledge to their students, refuge capabilities for outreach are expanded. 

Objective 3: Continue to provide the public with timely and accurate information about the 

Refuge through a variety of communication tools such as informational kiosks, displays, radio 

programs, newsletters, brochures, and web sites. Information provided using these tools 

should be evaluated and updated at least once a year by the environmental education/outreach 

coordinator and the refuge manager.

Rationale: The Refuge has successfully developed a variety of tools to provide the public with 

accurate, up-to-date information relevant to refuge resources and programs. These tools will 

continue to be effective only if they are periodically evaluated and updated to provide the most 

accurate information. The Refuge should continue to explore possibilities for development of 

new avenues for outreach. 

Objective 4: Maintain the partnership with the Galena City Schools and Louden Tribal 

Council to annually conduct the Galena Science Camp. Participate in other local science and 

cultural camps when opportunities arise.

Rationale: Since 2000, the Galena Science Camp has provided local students with 

opportunities to learn about local wildlife, plants, ecosystems, geology, prehistory, and 

environmental stewardship. Staff participation in other area youth programs, including camps 

organized by local schools and tribal organizations, provides similar opportunities throughout 

the region. These efforts should continue as funding and personnel are available. 

Objective 5: Increase cooperation with the Friends of Alaska National Wildlife Refuges, and 

the Central Representatives in particular, to develop new materials and outlets for 

interpretation and environmental education. 

Rationale: Friends of Alaska National Wildlife Refuges, a non-profit organization, was 

formed in 2005 to provide public education, assistance to refuges, and funding for refugeoriented projects in any of Alaska’s 16 national wildlife refuges. Recently a family residing 

near the Nowitna Refuge became a Central Representative for the group and expressed 

interest in cooperating with the Refuge on research, education, and invasive species projects. 

This partnership would provide the Refuge with new opportunities for outreach and project 

funding. 

2.1.6 Goal 6: Continue to provide quality opportunities for hunting, fishing, wildlife 

observation and photography, and other outdoor recreation in a natural setting. 

Objective 1: Within five years of final Plan approval, review current public use monitoring 

methods and implement new methodology if needed. At a minimum, continue to annually 

compile and summarize data from the Koyukuk River (Ella’s Cabin) check station, Nowitna 

River check station, and the refuge guide and air taxi reports to assess levels of public use. 

Rationale: Accurate public use data is a critical component in evaluating existing levels of 

service to the public, documenting results of public use programs, determining if the Refuge is 

meeting its resource management goals, and ensuring public uses remain compatible with the 

purposes of the Refuge. The highest level of use of the Refuge occurs during the fall moose 

season. By gathering data through the check stations and guide and air taxi reports, we gain a 

minimum amount of public use data for the Refuge during this peak use period. Summarizing 

2-6 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

the data would allow the Refuge to inform the users of the levels of use and any potential 

conflicts that the Refuge may need to address. The Refuge should continue to support these 

efforts in order to sustain the current level of information. 

Objective 2: Working with communities, and State and federal authorities, continue to develop the 

refuge law enforcement program through activities such as hunter education, village visits, aerial 

surveillance, and annual special use permit reviews. Produce annual summaries of activities. 

Rationale: To enhance visitor experiences and help protect refuge resources, the Refuge 

needs a good strategy for ensuring visitor safety and compliance with existing rules and 

regulations. Violations that do occur are often due to misunderstanding, misinformation, or 

lack of knowledge. Outreach efforts will be helpful in reducing such incidents. 

2.1.7 Goal 7: Provide and promote the opportunity for local residents to continue their 

subsistence activities on the Refuge, consistent with the subsistence priority and with 

other refuge purposes. 

Objective 1: Continue the Refuge Information Technician (RIT) program to enhance 

information exchange with local communities on refuge issues, particularly those dealing with 

subsistence. Restore the second RIT position the Refuge had until 2006 (dependent upon 

funding). 

Rationale: Due to remoteness, most village residents in and adjacent to the Refuge generally 

have less contact with refuge staff than do residents of Galena. In the past, the RITs have 

been able to bridge this gap. RITs are able to devote time to contacting tribes, corporations, 

and individuals who do not have ready access to the refuge office. The RIT prepares 

information specifically for the village and visits villages on a regular basis. While in the 

village, the RIT can personally deliver information, answer questions, and return with 

feedback for the refuge staff. 

Objective 2: Continue to conduct annual informational meetings in each village associated with 

the refuge biological program. Regularly attend other subsistence-related meetings, 

providing information regarding the status of subsistence resources and their use and 

commenting on proposals related to subsistence management within the Refuge. Maintain a 

respectful dialogue with refuge resource stakeholders and subsistence users. 

Rationale: The Refuge is mandated by ANILCA to provide a continued opportunity for 

subsistence uses by local residents, when consistent with other refuge purposes. However, it 

is essential that affected parties work cooperatively towards common subsistence goals. Faceto-face meetings in local villages are the most effective forum for reviewing and explaining 

federal subsistence harvest regulations and discussing issues of concern with local subsistence 

users. 

Objective 3: Continue to work closely with tribal councils, State fish and game advisory 

committees, the Federal Subsistence Western Interior Regional Advisory Council, other local 

and regional working groups, Alaska Department of Fish and Game, and the Office of 

Subsistence Management to address issues and concerns of local subsistence users. 

Rationale: The Refuge is mandated by ANILCA to provide a continued opportunity for 

subsistence uses by local residents, when consistent with other refuge purposes. It is essential 

that affected parties work cooperatively toward achieving common subsistence goals. 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-7 
Chapter 2: Goals and Objectives, Management Direction 

Objective 4: Continue to coordinate with and assist the Division of Migratory Bird 

Management in completing the annual Migratory Bird Harvest Survey (dependent upon 

available funding). 

Rationale: The Migratory Bird Treaty Act Protocol Amendment specified a need for harvest 

surveys. The amendment provides for the harvest of migratory birds during spring and 

summer; however, the amendment states that there would not be a significant increase in the 

number of birds harvested relative to their continental population sizes. Harvest survey data 

documents the annual harvest level and helps ensure that harvest does not significantly 

increase over the coming years. The Refuge is committed to continued work with the 

Migratory Bird Management Office and assisting with harvest surveys to obtain this critical 

information. 

Objective 5: Continue to coordinate with and assist the Yukon River Drainage Fisheries 

Association in completing its annual In-Season Fish Harvest Assessment. 

Rationale: The primary purpose of Yukon River Drainage Fisheries Association is to 

coordinate in-season subsistence fishing by hosting teleconferences with people participating 

in personal use and commercial fishing and the State and federal managers along the Yukon 

River. Teleconferencing gives the fishermen a voice on current salmon runs, harvest needs 

and success, management strategies, and anticipated management based on preseason 

projections. Teleconferencing gives an interim goal to allow subsistence and aboriginal 

harvest by Alaskan and Canadian fishermen. 

Objective 6: Cooperate with village organizations and other agencies to develop opportunities 

to educate local youth and adults in traditional subsistence ways related to fish, wildlife, and 

plants of the Refuge. Continue to develop outreach tools that make subsistence regulations 

understandable to the public. 

Rationale: The Refuge can play an important role in perpetuating the continued use of 

subsistence resources by providing opportunities for the public to learn from those skilled in 

traditional subsistence activities. Clear communication of subsistence regulations facilitates 

the continuance of subsistence activities and encourages compliance with regulations. 

Objective 7: Monitor and assess the use of off-road vehicles (ORVs) such as 4-wheelers and 

ARGOs on refuge lands by federally qualified subsistence users. Within three years of final 

Plan approval, produce a report that determines if ORVs were traditionally used for 

subsistence access and examines the need for regulation of ORV use. 

Rationale: Current evidence suggests that ORVs were not traditionally used for subsistence 

access to the Refuge. The Refuge has concerns that ORV use will expand beyond the existing 

off-refuge trails onto refuge land. The Refuge is concerned that ORV use could have adverse 

effects on habitat and wildlife populations.

2.1.8 Goal 8: Maintain the special values of the Nowitna Wild River and Koyukuk Wilderness 

and the wild character of the Refuge. 

Objective 1: Continue to monitor activities on the Nowitna Wild River and in the Koyukuk 

Wilderness for compliance with the Wild and Scenic Rivers and Wilderness acts and ANILCA. 

If problems are detected, appropriate actions would be taken. 

Rationale: This approach is a practical way of maintaining these values given the existing 

staffing level of the Refuge. 

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2.1.9 Goal 9: Conserve, appreciate, and interpret the cultural, historic, and prehistoric 

resources of the Refuge. 

Objective 1: Prepare a Cultural Resources Management Plan by 2010. 

Rationale: A Cultural Resources Management Plan would assist the refuge staff in meeting 

legal requirements to manage, protect, and interpret cultural resources on the Refuge. The 

plan will include management needs and projects identified by the refuge staff, in consultation 

with the regional archaeologist, to set priorities for future research. This will enable the 

Refuge and regional office cultural resource staff to derive the most benefits from limited 

funding and personnel resources. 

Objective 2: Provide Archaeological Resources Protection Act and National Historic 

Preservation Act training to all permanent refuge personnel every 2–5 years. 

Rationale: Training will provide all employees with information on their roles and 

responsibilities for managing cultural resources. Cultural resource trainers will become 

acquainted with refuge staff and better understand their specific issues and interests. 

Objective 3: Identify sites at risk from vandalism and erosion and monitor with annual 

inspections to document physical condition. 

Rationale: Sites in the region are at risk from a number of threats, including looting and 

increased soil erosion due to the effects of climate change. 

Objective 4: Identify priority areas to inventory for archaeological and other cultural sites, 

and conduct surveys as time and personnel allow. 

Rationale: Perform surveys at a level sufficient to evaluate the eligibility of identified sites for 

inclusion in the National Register of Historic Places. Nominate selected sites to the National 

Register of Historic Places. Identify sites or areas at risk for vandalism and monitor with 

periodic law enforcement patrols. The National Historic Preservation Act requires federal 

agencies to inventory cultural resources and evaluate them for eligibility in the National 

Register of Historic Places.

Objective 5: Work with local tribes, elders, the University of Alaska Fairbanks, and regional 

archaeological staff to compile a place name directory and atlas of cultural and historic sites. 

This should include the production of a comprehensive GIS layer of sites for use in refuge 

management. Create a working database within two years of final Plan approval. 

Rationale: Place names contain an enormous amount of information on traditional uses, 

culturally significant locations, historic camps and settlements, and other culturally 

important information. Resources for this work include published material and local 

knowledge. As elders pass away, their tremendous in-depth knowledge of local history and 

place names is lost to future generations if not properly documented. Cultural resource 

mapping is necessary to protect sites from fire, recreational use, and other refuge activities. 

The National Historic Preservation Act and Service Policy require that the Refuge protect 

sites of cultural importance. 

Objective 6: Develop an active bibliography and library collection of published and 

unpublished materials relating to cultural, paleontological, and natural history of the Refuge. 

This may include books, interviews, and journals, maps, and photos collected by explorers, 

missionaries, biologists, and researchers. An initial bibliography would be completed within 

two years of final Plan approval.

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-9 
Chapter 2: Goals and Objectives, Management Direction 

Rationale: Valuable cultural, historic, and scientific information about the Refuge is contained 

in existing published and unpublished material. This information is an untapped archive that 

could potentially benefit both the Refuge and surrounding communities. Compiling all known 

information would make it possible to evaluate information needs and set priorities for surveys 

and research. This work would facilitate Objective 2. 

Objective 7: Continue to work with regional archaeology staff, the University of Alaska 

Fairbanks, and other researchers to investigate and evaluate known cultural sites and identify 

new sites within the Refuge. 

Rationale: Cooperative projects with museums, universities, and other institutions allow 

pooling of limited funding and resources and increases the amount of work completed. It 

allows the Service to receive the advantages of working with recognized experts in the region, 

which greatly increases the value of completed work. The Refuge has been successful in 

developing partnerships that have resulted in considerable advances in the understanding of 

early human activities in the region. 

Objective 8: Continue to work with research partners to explore the unique paleontological 

resources of the Palisades site.

Rationale: The Palisades site is an extensive silt-loam bluff complex located on the south bank 

of the Yukon River in the Nowitna Refuge. The bluffs contain substantial paleontological 

material, including flora and faunal remains and ancient volcanic ash layers. Scientists from 

the University of Alaska Fairbanks and other institutions have led investigations resulting in 

several publications and illumination of an outstanding record of past ecological communities 

and conditions present at the site. The Refuge will continue to facilitate this research 

(dependent upon funding). 

Objective 9: Continue to cooperate with tribes, other agencies, universities, KIYU radio, and 

local residents to develop and enhance programs that capture the traditional knowledge of 

elders and others about the cultural and natural history of the Refuge.

Rationale: Knowledge of fish and wildlife population dynamics, ecology, and behavior is 

integral to people and cultures dependent on these resources. The roots of traditional 

environmental knowledge extend back thousands of years, and lifetimes of on-the-ground 

knowledge about local resources can produce valuable insights for refuge biologists and 

researchers. Documentation of traditional knowledge preserves this information for future 

generations and provides baseline knowledge about refuge environments for comparison with 

current and future conditions. The Refuge should continue to support programs such as 

Raven Story (oral history radio pieces) whenever funding and personnel are available. 

2.1.10 Goal 10: Promote close working relationships through effective coordination, 

interaction, and cooperation with other federal agencies, State agencies, local 

communities, tribes, organizations, industries, the public, and the landowners within 

and adjacent to the Refuge whose programs relate to refuge management activities. 

Objective 1: Continue to collaborate with staffs of other refuges, federal and State agencies, 

research institutions, schools, tribal and city councils, and others to facilitate resource 

management, inventory and monitoring, biological research, public outreach, and education at 

the Refuge and in the region. See Objectives 2 and 4 of Goal 2.1.1, Objective 2 of Goal 2.1.2, 

Objectives 2 and 5 of Goal 2.1.3, Objectives 4 and 5 of Goal 2.1.5, Objectives 1 and 2 of Goal 

2.1.6, Objectives 2, 3, and 6 of Goal 2.1.7, and Objectives 2, 4, 5, and 6 of Goal 2.1.9. 

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Rationale: Partnering is a cost-effective means of accomplishing necessary inventory and 

monitoring work, research projects, day-to-day management of refuge resources, and public 

outreach and education goals. Cooperative arrangements allow the refuge staff to obtain 

information they would not normally be able to collect and provides an opportunity for the 

Refuge to contribute to regional programs. 

2.1.11 Goal 11: Provide and maintain adequate facilities and equipment in Galena to ensure a 

safe and secure working environment to accomplish refuge purposes, goals, and 

mandates. 

Objective 1: Secure funding for construction or purchase of an administrative office, shop, and 

warehouse that provide sufficient facilities for refuge personnel and property in Galena. 

Rationale: Since 1991, the refuge staff has operated out of leased space (main office and 

shop/warehouse). A national directive has specified that refuges move toward owning their 

facilities. Our current office does not comply with various health and safety standards. The 

Refuge is unable to perform necessary upkeep or upgrades to comply with these standards 

because it is a leased facility. The shop and warehouse are inadequate for long-term refuge 

maintenance needs. 

Objective 2: Maintain and upgrade the quarters, bunkhouse, and administrative cabins to 

provide safe and secure living accommodations for employees in subarctic conditions. 

Continue to explore alternative energy sources for refuge facilities to reduce costs to the 

government and lessen the environmental impact. 

Rationale: Preventive maintenance is the best way to keep refuge real property assets in 

working condition. To conserve resources and reduce environmental impacts, the Refuge 

should continue to become more energy and water use efficient. By policy, refuges are 

required to use “green” products when cost effective or feasible. 

Objective 3: Explore options and secure funding to acquire an adequate float plane facility and 

operations site on Alexander Lake in Galena. 

Rationale: Currently our float plane operations occur on Alexander Lake behind Quarters 

#3. Occupants of this home have limited personal yard space because an aircraft fuel tank and 

maintenance shed are stationed behind the house. Frequent summer traffic in and out of the 

residence driveway can occasionally cause an inconvenience for the family occupying this 

house. The float dock currently extends into private property and could cause a potential 

future conflict. 

2.1.12 Goal 12: Ensure the Refuge has adequate personnel to meet operational needs. 

Objective 1: Seek funding to restore the Refuge’s wildlife biologist position and second refuge 

information technician position. Create and fill positions for a fisheries biologist/hydrologist 

and an assistant fire management officer. 

Rationale: Due to regional budget cuts and downsizing, those two positions at the Refuge 

were cut in 2006. The restoration of these positions, and the addition of the two new positions, 

is necessary for the full implementation and success of refuge operations. 

Objective 2: Seek funding to hire an additional biological technician to assist the refuge 

biologists conducting inventory and monitoring projects. 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-11 
Chapter 2: Goals and Objectives, Management Direction 

Rationale: As additional projects are developed, especially to meet the increasing demand for 

information regarding climate change and its effect on interior Alaska ecosystems, biological 

staff would need greater assistance with project implementation. 

Objective 3: Work with regional high schools and universities in recruiting and educating 

diverse candidates for positions as they become available. This includes providing internship 

opportunities such as the cooperative Alaska Native Science and Engineering Program 

(ANSEP) in which the University of Alaska promotes the educational development of Alaska 

Natives in scientific fields. 

Rationale: Recruitment of individuals with knowledge of the local area and culture 

facilitates refuge efforts to interact as well as possible with local residents and resource 

users. Staff familiarity with local areas and ecosystems is a tremendous asset to the refuge 

biological program. 

Objective 4: Maintain a minimum of three pilots on staff, and add staff with piloting expertise 

as biological, habitat, and/or fisheries positions are developed and funded. 

Rationale: The Refuge is remote and roadless. The nature of biological and other programs 

require the use of aircraft. The current staffing of three pilots is generally sufficient to cover 

program needs but will need reconsideration as additional projects are developed. Use of local 

air taxi services may alleviate some shortfalls in project needs (point-to-point flights) but are 

not always cost effective and are inadequate for many of the specialized flights such as aerial 

surveys. 

2.2 Regional Management Direction Introduction 

Sections 2.3, 2.4, and 2.5 present an overview of the management direction for national wildlife 

refuges in Alaska. The primary sources of this management direction are the laws governing 

the National Wildlife Refuge System and the regulations, policies, and other guidance, both 

national and regional, developed to implement these laws. Although each refuge is unique, it 

is only one piece of this system. The management direction presented here represents the 

common base for management of the Alaska refuges and identifies appropriate sideboards for 

management of individual refuges. 

Some deviations from these region-wide management policies and guidelines are likely to 

appear in each refuge comprehensive conservation plan, given differing establishing orders or 

refuge purposes. Any refuge-specific departures will be clearly described, along with 

supporting rationale, in each revised comprehensive conservation plan. 

These sections contain the following: 

 Descriptions of the management categories and their associated general 

management intent 

 Policies and guidelines specific to each category 

 A table that displays activities, public uses, commercial uses, and facilities by 

management category 

Until the final revised comprehensive conservation plan is adopted for a refuge, if there is any 

conflict between the existing refuge plan and these management guidelines, the direction in 

the existing plan will take precedence over that contained in these guidelines, unless the 

conflict is the result of changes in law, judicial rulings, or other non-discretionary guidance. 

2-12 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
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Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-13 

2.3 Management Categories 

The management category descriptions in this final Plan are not the same as those in the 1987 

Plan. These management category descriptions will remain constant for all of the 

comprehensive conservation plans unless a well-justified exception is warranted. 

Five management categories (Intensive Management, Moderate Management, Minimal 

Management, Wilderness, and Wild and Scenic Rivers) are used to describe the management 

levels throughout all Alaska refuges. A management category is used to define the level of 

human activity appropriate to a specific area of a refuge. It is a set of refuge management 

directions applied to an area, in light of its resources and existing and potential uses, to 

facilitate management and the accomplishment of refuge purposes and goals. Lands within 

the Refuge fall into three of these five management categories: Minimal Management, Wild 

and Scenic Rivers, and Wilderness (see Figure 2-1, Figure 2-2, and Figure 2-3). The 

Management Activities Table (Table 2-1) shows the management activities, public uses, 

commercial uses, and facilities that may be allowed in each management category and under 

what conditions. 

2.3.1 Intensive Management 

This category is designed to allow compatible management actions, public facilities, and 

economic activities that may result in alterations to the natural environment. In Intensive 

Management areas, the presence of human intervention may be very apparent. Roads, 

buildings, and other structures are likely to be seen. Intensive Management is applied to the 

smallest area reasonable to accommodate the intended uses. When Intensive Management is 

proposed for an area, the specific purposes for its establishment will be described. 

Natural processes or habitats may be modified through human intervention. Habitats may be 

highly modified to enhance conditions for one or more animal species. For example, water 

regimes may be artificially controlled to improve habitat for waterfowl. 

High levels of public use may be accommodated and encouraged through modifications to the 

natural environment such as paving, buildings, developed campgrounds, and other facilities 

that could alter the natural environment in specific areas. Public facilities are designed to 

provide a safe and enjoyable experience of the natural environment and an increased 

understanding of refuge resources for a wide range of visitors. Facilities may accommodate a 

large number of visitors while protecting refuge resources from damage through overuse. 

Compatible economic uses of refuge resources that result in alterations to the natural 

environment may be authorized in Intensive Management areas. All economic uses are 

subject to the compatibility standard, must contribute to the purposes of the refuge, and 

require official authorizations such as special use permits. 

2.3.2 Moderate Management 

Moderate Management is meant to allow compatible management actions, public uses, 

commercial uses, and facilities that may result in changes to the natural environment that are 

temporary or permanent but small in scale and that do not disrupt natural processes. The 

natural landscape is the dominant feature of Moderate Management areas, although signs of 

human actions may be visible. 

Management actions in this category will focus on maintaining, restoring, or enhancing 

habitats to maintain healthy populations of plants and animals where natural processes 
Chapter 2: Goals and Objectives, Management Direction 

predominate. For example, logging and prescribed burning may be used to convert mature 

forests to an early seral stage to enhance browse for moose. In general, management 

facilities, both temporary and permanent, will be allowed for the purposes of gathering data 

needed to understand and manage resources and natural systems of the refuges. Structures 

will be designed to minimize overall visual impact. 

Public facilities provided in Moderate Management will, while protecting habitats and 

resources, allow the public to enjoy and use refuge resources in low numbers over a large area, 

or they will encourage the short-term enjoyment of the refuge in focused areas. The emphasis 

is on small facilities that encourage outdoor experiences. Facilities such as public use cabins, 

rustic campgrounds, kiosks, viewing platforms, trails, and toilets may be provided. Facilities 

will be designed to blend with the surrounding environment. 

Compatible economic activities may be allowed where impacts to natural processes and 

habitats are temporary (e.g., small-scale logging where an earlier seral stage meets 

management goals; facilities in support of guiding and outfitting services such as tent 

platforms or cabins that encourage enhanced public use). All economic activities and facilities 

require authorizations such as special use permits. 

2.3.3 Minimal Management 

Minimal Management is designed to maintain the natural environment with very little 

evidence of human-caused change. Habitats should be allowed to change and function through 

natural processes. Administration will ensure that the resource values and environmental 

characteristics identified in the Comprehensive Conservation Plan are conserved. Public uses, 

economic activities, and facilities should minimize disturbance to habitats and resources. 

Ground-disturbing activities are to be avoided whenever possible. 

Management actions in this category focus on understanding natural systems and monitoring 

the health of refuge resources. Generally, no roads or permanent structures are allowed 

(except cabins). Temporary structures may be allowed in situations in which removal is 

planned after the period of authorized use, and the site can be rehabilitated using plants native 

to the immediate area. Existing cabins may be allowed for administrative, public use, 

subsistence, or commercial or economic (e.g., guiding) purposes. New subsistence or 

commercial cabins may be authorized if no reasonable alternative exists. Public use or 

administrative cabins may be constructed if necessary for health and safety. 

Public use of the refuge for wildlife-dependent recreation and subsistence activities is 

encouraged. Public use facilities are generally not provided. Mechanized and motorized 

equipment may be allowed when the overall impacts are temporary or where its use furthers 

management goals. 

If a transportation or utility system, as defined in section 1102 of the Alaska National Interest 

Lands Conservation Act (ANILCA), is proposed to cross an area in Minimal Management, the 

authorization process would incorporate a corresponding Comprehensive Conservation Plan 

amendment to change the management category in the affected area from Minimal 

Management to Moderate or Intensive Management, as appropriate. 

Compatible economic activities may be allowed where the evidence of those activities does not 

last past the season of use, except as noted in the preceding discussion of cabins. The primary 

economic activities are likely to be guiding and outfitting of recreation activities such as 

hunting, fishing, hiking, river floating, and sightseeing. All economic activities and facilities 

require authorizations such as special use permits. 

2-14 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Figure 2-1. Koyukuk Management Categories 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

2-16 K
Figure 2-2. N. Innoko Management Categories 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

2-18 K
Figure 2-3. Nowitna Management Categories 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

2-20 K
Chapter 2: Goals and Objectives, Management Direction 

2.3.4 Wilderness 

This category applies only to areas designated by Congress as units of the National 

Wilderness Preservation System. The Refuge manages the Koyukuk Wilderness Area, a 

400,000-acre Wilderness designated in 1980. The Nogahabara sand dunes is the most notable 

feature of the Wilderness Area. Any areas proposed for Wilderness designation will be 

managed under Minimal Management, consistent with section 1317(c) of ANILCA and U.S 

Fish and Wildlife Service (Service) policy. Designated Wilderness will be managed under the 

Wilderness Act of 1964 and the exceptions provided by ANILCA. Because the Koyukuk 

Wilderness Area is part of a nationwide, multi-agency system, the Service recognizes that 

responsibilities for managing the Wilderness go beyond the mission of the Service and that the 

purposes of the Wilderness Act are within and supplemental to the other purposes for which 

individual refuges were established. See also section 2.4.19 for additional guidelines on 

management of Wilderness Areas in Alaska. 

The history and intent behind the Wilderness Act make Wilderness more than just another 

category of land management. Wilderness encourages having a broadened perspective of the 

refuge landscape, one that extends beyond managing it solely as wildlife habitat. Wilderness 

is managed as an area “retaining its primeval character and influence.” In addition, 

Wilderness provides human visitors with opportunities for solitude or a primitive and 

unconfined type of recreation, which may be characterized in terms of experiential dimensions 

such as discovery, self-reliance, and challenge. 

Wilderness Areas are managed to preserve their experiential values as well as aesthetic, 

scientific, and other related values. Research has shown that some values of Wilderness extend 

beyond their boundaries to people who may never visit but who benefit from the protection of 

natural ecological processes—benefits such as clean air and water and the simple knowledge 

that such places exist. In managing Wilderness, managers are encouraged to consider in 

decision making these off-site and symbolic values as well as tangible resource values. 

Permanent structures are generally prohibited; examples of exceptions are historic and 

cultural resources and, in certain circumstances, administrative structures or cabins that 

predate ANILCA, cabins that are necessary for trapping, and public use cabins necessary for 

the protection of human health and safety. Facilities and structures are rustic and 

unobtrusive in appearance. 

Compatible commercial uses of Wilderness Areas are generally limited to those activities that 

facilitate wilderness recreation (e.g., guided fishing, hunting, and wilderness trips). All 

commercial activities and facilities require authorizations, such as special use permits. 

Actions such as prescribed fires or invasive species control may be conducted when it is 

necessary to protect life or property or when it is necessary to restore, maintain, or protect 

wilderness values. Management activities in Wilderness must be found to be the minimum 

requirements for the administration of the area as Wilderness. 

2.3.5 Wild and Scenic Rivers 

The Wild and Scenic Rivers category applies to those rivers and corridors of the adjacent 

lands that have been designated by Congress as part of the Wild and Scenic Rivers System. 

This is a national system of designated rivers that possess outstandingly remarkable scenic, 

recreational, geologic, fish and wildlife, historic, cultural, or other similar values. All 

designated rivers on refuges in Alaska are classified as Wild Rivers. Wild Rivers are those 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-21 
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2-22 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

rivers or sections of rivers that are free of impoundments, with shorelines or watersheds still 

largely primitive and waters unpolluted. 

Within this management category, water bodies are maintained in natural, free-flowing, and 

undisturbed conditions. Emphasis is placed on maintaining the natural function of the river 

system, and the appearance and sense of wildness are preserved. Evidence of human 

activities is minimal. 

Each river within the Wild and Scenic Rivers System has particular values for which it was 

designated; the management of a Wild River must protect those specific values. Management 

actions focus on understanding, monitoring, and maintaining the resources, natural ecosystem 

function, and aesthetics of the river corridor. 

The lower 223-mile section of the Nowitna River corridor has been designated as a Wild River 

within the Nowitna Refuge. The river contains outstandingly remarkable scenic, geologic, 

hydrologic, fish and wildlife, cultural, historic, and recreational values identified informally by 

refuge staff during this planning process: 

 scenic – forested river corridor, diverse landscape, and different examples of 

succession, 

 geologic – agates; 

 hydrologic – free-flowing state, oxbow lakes, and wetlands; 

 fisheries – sheefish and whitefish populations; 

 wildlife and habitats – nationally significant species of migratory waterfowl and large 

game; 

 cultural/historic/prehistoric – transportation corridor and abandoned camps; 

 subsistence – hunting, trapping, house logs, berry picking, and firewood; 

 recreational – hunting, fishing, wildlife observation and photography, floating, fishing, 

and camping trips. 

Permanent structures generally are not allowed, with the exception of historic and cultural 

resources and, in certain limited circumstances, subsistence or administrative cabins and 

associated structures. Cabins, temporary structures, and hardened sites will be visually 

shielded from the river wherever possible. Where shielding is not practical, facilities and 

structures are as rustic or unobtrusive in appearance as possible. Public use facilities would 

provide opportunities for primitive recreation experiences. 

Compatible uses of the Nowitna Wild River corridor will be allowed where those activities do not 

detract from the values for which the corridor was designated. Primary commercial uses are 

likely to be recreation services such as guided float, sightseeing, fishing, and hunting trips. A 

variety of management actions may be taken to maintain the values and classification of the 

corridor. All commercial activities and facilities require authorizations such as special use permits. 

2.3.6 Special Management 

Special management lands are managed within one of the categories described previously but 

have additional requirements because of their status (e.g., research natural areas). 

2.3.6.1 Management of Selected Lands 

The Service retains management responsibility for lands selected but not yet conveyed to 

Native village and regional corporations or to the State of Alaska. The appropriate Native 
Chapter 2: Goals and Objectives, Management Direction 

corporation or agency of the State of Alaska will be contacted and its views considered prior to 

issuing a permit involving these lands. Fees collected for special use or right-of-way permits 

will be held in escrow until the selected lands are conveyed or relinquished. Management of 

these lands will be the same as for adjacent refuge lands. 

2.4 Management Policies and Guidelines 

2.4.1 Introduction 

Refuge management is governed by federal laws such as the National Wildlife Refuge System 

Administration Act of 1966 (16 U.S.C. 668dd), as amended, (Refuge Administration Act); the 

National Wildlife Refuge System Improvement Act of 1997 (P.L. 105-57) - an amendment to 

the Refuge Administration Act (Refuge Improvement Act); and ANILCA; by regulations 

implementing these laws; by treaties; by Service policy; and by principles of sound resource 

management—all of which establish standards for resource management or limit the range of 

potential activities that may be allowed on the refuges. 

ANILCA authorizes traditional activities such as subsistence, the exercise of valid commercial 

fishing rights, hunting, fishing, and trapping in accordance with State and federal laws. Under 

Service regulations implementing this direction, “...[p]ublic recreation activities within the 

Alaska National Wildlife Refuges are authorized as long as such activities are conducted in a 

manner compatible with the purposes for which the areas were established” (50 CFR 36.31(a)). 

Such recreation activities include but are not limited to sightseeing, nature observations and 

photography, hunting, fishing, boating, camping, hiking, picnicking, and other related 

activities. The Refuge Administration Act, as amended, defines “wildlife-dependent 

recreation” and “wildlife-dependent recreational use” as “hunting, fishing, wildlife observation 

and photography, or environmental education and interpretation” (16 U.S.C. § 668ee). These 

uses are encouraged and would receive emphasis in the management of public use on refuges. 

2.4.2 Management Emergencies 

It may be necessary, when emergencies occur on the Refuge, to deviate from policies and 

guidelines discussed in the Comprehensive Conservation Plan. Activities not allowed on the 

Refuge or under a specific management category, as shown in Table 2-1, may occur during or as a 

result of emergencies. For example, if a naturally occurring or human-caused event (e.g., 

landslide, flood, fire, or drought) adversely affected refuge resources, it may be necessary to 

undertake rehabilitation, restoration, habitat improvement, water management, fisheries 

enhancement, or other actions that would not otherwise be allowed to the same extent on the 

Refuge. Threats to human health and safety may also result during emergencies. In emergencies, 

the refuge manager is authorized to take prudent and reasonable actions to protect human life and 

to address immediate health, safety, or critical resource-protection needs. 

2.4.3 Land Exchanges and Acquisitions 

Under section 1302 of ANILCA, and subject to certain restrictions, the Service may acquire 

by purchase, donation, or exchange any lands within the boundaries of Alaska refuges. 

Proposed land exchanges or acquisitions must benefit fish and wildlife resources, satisfy other 

purposes for which the refuge was established, or be necessary to satisfy other national 

interests. The Service can also purchase conservation easements or enter into cooperative 

management agreements to meet these objectives. 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-23 
Chapter 2: Goals and Objectives, Management Direction 

2-24 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

2.4.4 Land Protection Plans 

Department of Interior and Service policies require development of a land protection plan—a 

step-down plan which addresses the priorities for habitat conservation within refuge 

boundaries. Land protection plans inform private landowners what land within refuge 

boundaries the Service would like to see conserved for fish and wildlife habitat. The plans do 

the following: 

 Identifies private lands within the refuge boundary that the Service believes should be 

conserved. 

 Displays the relative protection priority for each parcel. 

 Discusses alternative means of land and resource conservation. 

 Analyzes the impacts on local residents of acquisition. 

The Service only acquires land from willing landowners. It is Service policy to acquire land 

only when other methods of achieving goals are not appropriate, available, or effective. 

Sometimes resource conservation goals can be met through cooperative management 

agreements with landowners or by similar means. The Refuge would work with all 

landowners to ensure that overall fish and wildlife and habitat values within the refuges are 

conserved. 

A land protection plan for the Refuge is scheduled to be completed at an unspecified future 

date. 

A pre-acquisition environmental site assessment is required for all real property proposed for 

acquisition by the Service or for public domain lands returning to Service jurisdiction (Service 

Manual 341 FW 3). 

2.4.5 Appropriate Refuge Uses 

Comprehensive conservation plans include a review of the appropriateness and compatibility 

of existing refuge uses and of any planned future public uses. All uses of a national wildlife 

refuge over which the Service has jurisdiction must be determined to be appropriate uses 

under the Appropriate Refuge Uses Policy (Service Manual 630 FW 1). An appropriate use of 

a national wildlife refuge is a proposed or existing use on a refuge that meets at least one of 

the following four conditions. 

(1) The use is a wildlife-dependent recreational use as identified in the Refuge 

Improvement Act (hunting, fishing, wildlife observation and photography and 

environmental education and interpretation). 

(2) The use contributes to fulfilling the refuge purpose(s), the Refuge System mission, 

or goals or objectives described in a refuge management plan approved after October 

9, 1997, the date the Refuge Improvement Act was signed into law. 

(3) The use involves the take of fish and wildlife under state regulations. 

(4) The refuge manager has evaluated the use following guidelines in the Service 

Manual 603 FW 1.11 in the subsequent text and found it appropriate. 

(a) Do we have jurisdiction over the use? 

(b) Does the use comply with applicable laws and regulations (federal, state, 

tribal, and local)? 
Chapter 2: Goals and Objectives, Management Direction 

(c) Is the use consistent with applicable Executive orders, Department and 

Service policies? 

(d) Is the use consistent with public safety? 

(e) Is the use consistent with goals and objectives in an approved management 

plan or other document? 

(f) Has an earlier documented analysis not denied the use, or is this the first 

time the use has been proposed? 

(g) Is the use manageable within available budget and staff? 

(h) Will this be manageable in the future within existing resources? 

(i) Does the use contribute to the public’s understanding and appreciation of 

the refuge’s natural or cultural resources, or is the use beneficial to the refuge’s 

natural or cultural resources? 

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality, compatible, 

wildlife-dependent recreation into the future? 

This Plan identifies those existing and proposed uses that are found appropriate and 

compatible in appendix D. The following uses were found appropriate: 

 Alaska Department of Fish and Game Management and Bureau of Wildlife 

Enforcement Activities 

 Commercial Big Game Hunting Guide Services 

 Subsistence and Trapping Cabins 

 Commercial Recreational Fishing Guide Services 

 Fishing (general and other) 

 Helicopter Landings to Support Authorized Activities by Other Federal, Tribal, State, 

and Local Governments, Universities, etc. 

 Subsistence Harvest of House Logs 

 Recreational Hunting 

 Non-Wildlife Dependent Recreational Activities 

 Wildlife Observation and Photography, Environmental Education and Interpretation 

 Reburial of Archaeological Human Remains per State and Federal Guidelines 

 Commercial Recreational Guide Services 

 Research and Surveys 

 Subsistence Activities 

 Native Allotment Surveys 

 Commercial Transporter Services 

 Trapping 

All current appropriate use documentation is on file at the refuge headquarters and the Alaska 

Regional Office. If additional uses not addressed in this Plan are proposed for the Refuge, the 

refuge manager will determine if they are appropriate uses following the guidance in Service 

Manual 603 FW 1. 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-25 
Chapter 2: Goals and Objectives, Management Direction 

2.4.6 Compatibility Determinations 

The Refuge Administration Act states that “the Secretary [of the Interior] is authorized, 

under such regulations as he [or she] may prescribe, to... permit the use of any area within the 

[Refuge] System for any purpose, including but not limited to hunting, fishing, public 

recreation and accommodations, and access whenever he [or she] determines that such uses 

are compatible . . . .” 

A compatible use is a proposed or existing wildlife-dependent recreation use or any other use 

of a national wildlife refuge that, based on sound professional judgment, would not materially 

interfere with nor detract from the fulfillment of the Refuge System mission or the purposes 

for which the national wildlife refuge was established. Economic uses must contribute to 

achieving refuge purposes and the Refuge System mission. 

Compatibility determinations are not required for refuge management activities, except 

economic activities. They are also not required where statute directs mandatory approval of 

the activity, as in the case of facilities for national defense. 

If a use is found to be incompatible, the refuge would follow normal administrative procedures 

for stopping the action. If the use was a new use requiring a special use permit, the refuge 

manager would not issue a permit. If the use was an existing use already under permit, the 

refuge manager would work with the permittee to modify the use to make it compatible or 

would terminate the permit. 

Ending incompatible uses that do not require a special use permit or other formal 

authorization, or that cannot be addressed by other federal or State agencies, would require 

the refuge to go through the normal rule-making process. This would include publishing the 

proposed regulations in the Federal Register and providing opportunity for public comment. 

Compatibility determinations for existing hunting, fishing, wildlife observation and 

photography, and environmental education and interpretation must be re-evaluated with the 

preparation or revision of a comprehensive conservation plan or at least every 15 years, 

whichever is earlier. Refuge compatibility determinations for all other uses must be reevaluated every 10 years or earlier if conditions change or significant new information relative 

to the use and its effects becomes available. 

To review completed compatibility determinations for all refuges in Alaska, go to 

http://alaska.fws.gov/nwr/planning/completed.htm. 

Additional details on applying compatibility standards and completing refuge compatibility 

determinations are found in the compatibility regulations at 50 CFR (parts 25, 26, and 29) and 

in the Service Manual (603 FW 2). 

2.4.7 Mitigation 

In the interest of serving the public, it is the policy of the Service, throughout the nation, to 

seek to prevent, reduce, or compensate for losses of fish, wildlife, and their habitats, and uses 

thereof, from land and water development. To that end, the Service developed a Mitigation 

Policy in 1981 that includes measures ranging from avoiding an activity that results in loss of 

such resources to seeking compensation by replacement of or substitution for resource loss. 

The Service will promulgate regulations, develop stipulations, and issue permits to reduce or 

eliminate potential adverse impacts resulting from compatible activities that may be 

authorized under this Plan. These regulations, stipulations, and permits would mitigate 

2-26 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

impacts in a variety of means, as stipulated in the Mitigation Policy guidelines (Service Manual 

501 FW 2.1). The means, in order of application, are as follows: 

1. Avoiding the impact altogether by not taking a certain action or parts of an action 

2. Minimizing impacts by limiting the degree or magnitude of the action and its 

implementation 

3. Rectifying the impact by repairing, rehabilitating, or restoring the affected 

environment 

4. Reducing or eliminating the impact over time by preservation and maintenance 

operations during the life of the action 

5. Compensating for the impact by replacing or providing substitute resources or 

environments 

When determining whether activities or uses are compatible, projects should be designed first 

to avoid adverse impacts. The Service generally does not allow compensatory mitigation on 

Refuge System lands. Only in limited and exceptional circumstances related to existing 

rights-of-way could compensatory mitigation be used to find a use compatible. Service Manual 

(501 FW 2 and 603 FW 2) provides more information. 

Mitigation may consist of standard stipulations such as those attached to right-of-way permits; 

special stipulations that may be attached to leases or permits on a site-specific basis; and sitespecific, project-specific mitigation identified through detailed step-down management plans 

or the environmental assessment process. In all instances, mitigation must support the 

mission of the Refuge System and must be compatible with the purposes of the refuges. The 

degree, type, and extent of mitigation undertaken would depend on the site-specific conditions 

present and the management goals and objectives of the action being implemented. 

2.4.8 Cooperation and Coordination with Others 

2.4.8.1 Federal, State, and Local Governments 

The Refuge will continue to work closely with those federal, State, and local governments and 

agencies whose programs affect, or are affected by, the refuges. State and local government 

input will be sought during the development of regulatory policies addressing management of 

the Refuge System (Executive Order 13083, “Federalism”). When possible, the Service will

participate in interagency activities (such as joint fish and wildlife surveys and co-funded 

research), cooperative agreements, sharing data, and sharing equipment and/or aircraft costs 

to meet mutual management goals and objectives. 

The Refuge and the State of Alaska will cooperatively manage fish and wildlife resources 

within the refuges. The Master Memorandum of Understanding between the Service and the 

Alaska Department of Fish and Game, dated March 13, 1982, defines the cooperative 

management roles of each agency (see appendix B). In this agreement, the Alaska 

Department of Fish and Game agreed to “recognize the Service as the agency with the 

responsibility to manage migratory birds, endangered species, and other species mandated by 

federal law, and on Service lands in Alaska to conserve fish and wildlife and their habitats and 

regulate human use.” Correspondingly, the Service agreed to “recognize the right of the 

Alaska Department of Fish and Game as the agency with the primary responsibility to 

manage fish and resident wildlife within the State of Alaska.” Further discussion of 

intergovernmental cooperation regarding the preservation, use, and management of fish and 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-27 
Chapter 2: Goals and Objectives, Management Direction 

wildlife resources is found in 43 CFR 24, “Department of the Interior Fish and Wildlife Policy: 

State and Federal Relationships.” 

The Service does not require refuge compatibility determinations for State wildlife 

management activities on a national wildlife refuge pursuant to a cooperative agreement 

between the State and the Service where the refuge manager has made a written 

determination that such activities support fulfilling the refuge purposes or the Refuge System 

mission. When the activity proposed by the State is not part of a cooperative agreement or the 

State is not acting as the Service’s agent, a special use permit may be required, and a refuge 

compatibility determination will need to be completed before the activity may be allowed. 

Separate refuge compatibility determinations addressing specific proposals will be required 

for State management activities that propose predator management, fish and wildlife control 

(with the exception of emergency removal of individual rogue animals), reintroduction of 

species, non-native species management, pest management, disease prevention and control, 

fishery restoration, fishery enhancement, native fish introductions, non-native species 

introductions, construction of facilities, helicopter and off-road vehicle access, or any other unpermitted activity that could alter ecosystems on the refuges. 

The Service Region 7 (Alaska) has a memorandum of understanding with the Alaska Fire 

Service (AFS) specifying how the two agencies will work together regarding fire protection 

services provided by AFS and mandated by law. The Service will cooperate with other State 

agencies such as the Department of Natural Resources and Department of Transportation 

and Public Facilities on matters of mutual interest and may enter into informal and formal 

management agreements. 

2.4.8.2 Tribes and Native American Organizations 

The Service’s Native American Policy (USFWS 1994) identifies general principles that guide 

the Service’s government-to-government relationships with tribal governments in the 

conservation of fish and wildlife resources. Additional guidance has been provided by 

Executive Order 13084, “Consultation and Coordination with Indian Tribal Governments,” 

issued May 14, 1998, and the Department of the Interior–Alaska Policy on Government-toGovernment Relations with Alaska Native Tribes, issued January 18, 2001. The Refuge will 

maintain government-to-government relationships with tribal governments. The Refuge will 

also work directly with regional and village corporations and respect Native American cultural 

values when planning and implementing refuge programs. 

2.4.8.3 Owners of Refuge Inholdings and Adjacent Lands 

The Refuge will work cooperatively with inholders and adjacent landowners, providing 

information on refuge management activities and policies. The Refuge will consult 

periodically with them regarding topics of mutual interest; will respond promptly to concerns 

over refuge programs; and, will participate in cooperative projects (e.g., water quality 

monitoring and fish and wildlife management). 

2.4.8.4 Fish and Wildlife Service Jurisdiction over Waters within the Koyukuk, Northern Unit 

Innoko, and Nowitna National Wildlife Refuges 

Where the United States holds title to submerged lands beneath waters within the Refuge, the 

Service has jurisdiction over certain activities on the water. In 1980, under ANILCA, the 

United States Congress established or expanded 16 national wildlife refuges. These areas of 

land and water may contain both navigable and non-navigable waters. Where water bodies 

are non-navigable within the refuge boundaries, the Service has management authority over 

2-28 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

most activities on water where adjacent uplands are federally owned. Where State of Alaska 

lands exist beneath navigable water bodies or where the State, a Native corporation, or a 

Native allotee owns the adjacent uplands within the refuge boundaries where the withdrawal 

process started after statehood, the Service’s management authority is more limited. 

The Service’s statutory authority to manage these lands and waters comes from ANILCA; the 

Service manages these lands pursuant to the Refuge Administration Act. Under provisions of 

ANILCA, the Service manages the federal subsistence program on all inland waters within 

and adjacent to the external boundaries of the Refuges (50 CFR 100.3(b)). 

2.4.8.5 Other Constituencies 

The Refuge will inform local communities, special interest groups, and others who have 

expressed an interest in or are affected by refuge programs about refuge management policies 

and activities. The Refuge will seek input from these constituents when issues arise that may 

affect how the Refuge is managed. When appropriate, local residents and other stakeholders 

will be asked to participate in refuge activities so their expertise and local knowledge can be 

incorporated into refuge management. 

2.4.9 Ecosystem and Landscape Management 

Species do not function alone; they function together in the environment as part of an 

ecosystem. Refuge resources will be managed by employing ecosystem-management 

concepts. Individual species are viewed as integral to the diversity of those ecosystems and as 

such are indicators of the healthy functioning of the entire ecosystem. When the Service 

identifies species to use as indicators of the health of an ecosystem, it will do so through a 

rigorous peer-reviewed scientific process involving experts from other federal agencies and 

the Alaska Department of Fish and Game. 

Inventorying, monitoring, and maintaining a comprehensive database of selected ecosystem 

components are critical for making refuge management decisions and for ensuring proper 

long-term ecosystem stewardship. This includes regular and recurring monitoring of status 

and trends of ecosystem components such as fish, wildlife, plants, climatic conditions, soils, 

and water bodies. All monitoring will employ appropriate disciplines, new technologies, and 

scientific capabilities whenever practical. 

2.4.9.1 Air Quality 

The Service’s authorities for air quality management are included in several laws. The most direct 

mandates to manage air resources are found in the Clean Air Act and the Wilderness Act. The 

Service is required by the Clean Air Act to preserve, protect, and enhance air quality and air 

quality–related values on Service lands. Air quality–related values include visibility, plants, 

animals, soil, water quality, cultural and historical resources, and virtually all resources that 

are dependent upon and affected by air quality. In addition, the Wilderness Act requires the 

Service to protect and preserve the wilderness character including the pristine air quality of 

designated areas. 

Class I air quality sites receive the highest level of protection. Very little deterioration is 

allowed in these areas, and the federal land manager has an “affirmative responsibility” to 

protect air quality–related values on those lands. With the exception of three Class I air 

quality sites in designated Wilderness on the Alaska Maritime National Wildlife Refuge, all 

other lands managed by the Service in Alaska are classified as Class II and receive protection 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-29 
Chapter 2: Goals and Objectives, Management Direction 

through the Clean Air Act. Moderate deterioration, associated with well-managed population 

growth, is allowed in Class II areas. 

If air quality or related resources are at risk, the refuge manager will work with the Service’s 

Air Quality Branch; the regional air quality coordinator; the Alaska Department of 

Environmental Conservation and other State, local, and federal agencies; and the public, as 

appropriate, in developing an air quality management plan as outlined in the Service Manual 

(563 FW 2.8). 

2.4.9.2 Water Resources (Hydrology) Management 

Every national wildlife refuge in Alaska shares the common purpose of ensuring that water 

resources are maintained and protected. ANILCA mandates that the Service safeguard water 

quality and necessary water quantity within refuges and to conserve fish and wildlife 

populations and habitats in their natural diversity. 

Although the Service has reserved water rights sufficient to accomplish the purposes of the 

Refuge, the Refuge Administration Act and the Service Manual (403 FW 1 through 3) direct 

the Service to obtain, to the extent practicable, water supplies of adequate quantity and 

quality for Service facilities, for refuge purposes and as trust resources, and to obtain the legal 

right to use that water through State laws, regulations, and procedures. 

The Alaska Region of the Service conducted a water resources threats analysis (Harle 1994) 

for the purpose of guiding water resource investigations and protecting water resources by 

acquiring in-stream water rights. Based on the results of the threats analysis, the Service’s 

regional office developed a strategic plan for systematically quantifying the surface water on 

refuges within Alaska (Bayha et al. 1997). 

Using existing data or through the collection of hydrologic and biologic data, the Service 

applies to the State of Alaska for appropriative water rights, for in-stream water reservations, 

and for water withdrawals to meet the Service’s needs. Establishing State water rights is only 

a part of a management strategy to protect refuge resources and to understand ecosystem 

processes. Collection of hydrologic data allows the Service to accomplish the following: 

 Plan floodplain and riparian zone management 

 Estimate flow for ungauged streams within the refuges 

 Supplement historical or current fisheries and wildlife studies 

 Detect and evaluate future natural or human-induced changes in the hydrologic system 

 Provide stream profile and velocity data for the design of fish weirs or other structures 

 Estimate the potential for future flooding and erosion 

 Analyze the impacts of proposed projects on stream flow and water supply 

 Provide a basis for decision making about commercial operations on important 

streams 

 Provide baseline water quality information 

All facilities and activities on refuges must comply with pollution-control standards set by 

federal laws (e.g., the Clean Water Act 33 U.S.C. 1251 and the Safe Drinking Water Act 42 

U.S.C. 300f); State laws where federal law so provides; and the regulations, policies, and 

standards implementing these laws. 

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2.4.9.3 Visual Resource Management 

Visual resource management has two primary purposes: (1) to manage the quality of the visual 

environment and (2) to reduce the visual impact of development activities. To accomplish 

these purposes, the Refuge will identify and maintain scenic values and will, within the 

constraints imposed by the Comprehensive Conservation Plan, minimize the visual impacts of 

refuge development and uses. All activities and facilities on the refuges will be designed to 

blend into the landscape to the extent practical. The Service will cooperate with other federal, 

State, local, tribal, and private agencies and organizations to prevent significant deterioration 

of visual resources. 

2.4.9.4 Cultural, Historical, and Paleontological Resources 

The Service has long-term responsibilities for cultural resources on refuge lands. Cultural 

resources on refuge lands are managed under a number of laws, executive orders, and 

regulations, including the Antiquities Act; the National Historic Preservation Act, as 

amended; the Archaeological Resources Protection Act; the American Indian Religious 

Freedom Act; the Native American Graves Protection and Repatriation Act; Executive Order 

11593, “Protection and Enhancement of the Cultural Environment”; Executive Order 13007, 

“Indian Sacred Sites”; and 36 CFR 800. 

The 1980 amendments to the National Historic Preservation Act direct the Service to 

inventory and evaluate cultural resources for their eligibility for inclusion on the National 

Register of Historic Places. Pending a complete evaluation, all cultural resources will be 

considered potentially eligible for the National Register of Historic Places. All significant 

historic, archaeological, cultural, and paleontological resources on the Refuge will be protected 

and managed in accordance with federal and State law. 

A cultural resource management guide for the Refuge was completed in October 1995 to 

provide guidance for cultural resource management on the Refuge. It outlines legal mandates 

and considerations, reviews current information about resources, and establishes goals and 

objectives for the program. The cultural resource guide should be updated every five years. 

It is illegal to collect archaeological materials and/or paleontological remains on the Refuge 

without a permit. Historic aircraft and other World War II material will be managed in 

accordance with the policy published December 20, 1985, in the Federal Register (FR 

50:51952-51953). These materials may be collected on refuge lands only as authorized by a 

permit issued to a qualified organization or individual. Cultural resource research permits will 

only be issued to qualified individuals operating under appropriate research designs. The 

Refuge will encourage archaeologists, historians, ethnologists, and paleontologists from 

educational institutions and other government agencies to pursue their research interests on 

refuge lands as long as these research interests are compatible with refuge purposes. 

Research that collects data from threatened sites and minimizes disturbance to intact sites will 

be encouraged. 

When any federal undertaking—including any action funded or authorized by the federal 

government and having the potential to directly or indirectly affect any archaeological or 

historic site—is planned, a consultation must be initiated with the State Historic Preservation 

Officer, under section 106 of the National Historic Preservation Act. If sites that may be 

affected are found in the project area, their significance will be evaluated to determine their 

eligibility for inclusion in the National Register of Historic Places. For eligible sites, 

consultation will result in a course of action causing the least possible impact. Impacts may be 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-31 
Chapter 2: Goals and Objectives, Management Direction 

minimized in a variety of ways, including relocation or redesign of a project, site hardening, 

mitigation through information collection, or cancellation of the project if no alternatives are 

feasible. To protect archaeological and historic sites, other uses may be precluded. Private 

interests proposing to conduct commercial uses on the Refuge will normally be required to 

fund studies necessary for consultation and for mitigation of impacts. 

The Refuge will implement Executive Order 13007, “Indian Sacred Sites”, allowing access to 

identified sacred sites and avoiding adversely affecting the physical integrity of these sites. 

Where appropriate, the Service will maintain the confidentiality of sacred sites. 

Further information on cultural resources management can be found in the Service Manual 

(614 FW 1 through 5) and the Cultural Resource Management Handbook (USFWS 1992). 

2.4.10 Fish and Wildlife Habitat Management 

2.4.10.1 Habitat Management 

Habitats are managed in keeping with the purposes, goals, and objectives of a refuge. In 

Alaska, this means habitats are largely managed to maintain natural diversity and processes. 

However, in some cases, habitats are manipulated to maintain or improve conditions for 

selected fish and wildlife populations, to control invasive plant species, or to manage 

accumulations of natural fuels on refuge land. These habitat management and manipulation 

activities will be carried out in support of the purposes, goals, and objectives of the Refuge. 

Generally, refuges use the least intrusive management measures needed. Where practical and 

economically feasible, habitat management practices should maintain a natural appearance on 

the landscape. Habitat management practices, even those carried out for the benefit of a 

single species or small group of species, will—to the extent possible—maintain the natural 

diversity of native (indigenous) wildlife species and habitat types. 

Habitat management and manipulation may be achieved by mechanical, chemical, and/or 

manual methods, including the use of natural and prescribed fire, or by a combination of 

methods. Mechanical treatment could include mechanical removal, crushing, cutting, or 

mowing. When applicable, State and federal guidelines for timber management will be 

followed. Mechanical treatment could also include the construction of fish passages, fish 

ladders, fish barriers, water impoundments and structures such as fences or artificial nests, 

and rising or lowering of water levels to manage wildlife or waterfowl habitat. Riparian or 

aquatic habitat management and manipulation may be achieved by acquiring in-stream flow 

reservations or making beneficial water diversions. 

Chemical treatment involves the use of chemicals to restore nutrient levels in a lake system 

(through fertilization) for fisheries restoration, to reduce hazardous fuel accumulations, or to 

eliminate invasive plant and animal species, normally by killing them or destroying their 

ability to spread or prosper. Before chemical treatment is approved for use, the refuge will 

analyze the need for action, the options for treatment, and the potential impacts of those 

options through the National Environmental Policy Act (NEPA) process. Pest control, 

including integrated pest management, is discussed in subsequent text. 

Manual treatment could include the use of hand tools to remove, reduce, or modify plants or to 

modify habitats (e.g., removal of beaver dams or the cutting of vegetation). 

Aquatic habitat modification may include activities and structures such as stream bank 

restoration, passage structures, and fish barriers or obstacle removal that results in physical 

modification of aquatic or riparian habitats to benefit fish species. These activities would be 

2-32 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
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undertaken to maintain or restore native fish populations and may require appropriate NEPA 

compliance and refuge compatibility determinations. 

2.4.10.2 Fire Management 

Fire management is the full range of activities necessary to protect human life and property, 

cultural resources, and other identified values and to conserve, protect, and enhance habitat 

and to maintain desired ecological conditions for the benefit of fish and wildlife. Fire 

management activities include preparedness, emergency suppression operations, wildland fire 

use, fire prevention, education and outreach, monitoring, research, prescribed fire, hazardous 

fuel reduction, and mechanical treatments. All activities will be conducted in accordance with 

refuge, Service, and Department of Interior policies and approved interagency and refugespecific fire management plans. Additional guidance on fire management can be found in the 

2001 Federal Fire Policy, Department Manual 620 DM 1 and 2, Service Manual 621 FW 1 

through 3, the Service Fire Management Handbook, and the Refuge Fire Management Plan. 

A specific fire management plan (FMP) provides the basis for integrating fire as a critical 

natural process into other refuge plans and activities at a landscape scale. The Koyukuk 

FMP (November 2005) and the Nowitna FMP (January 2006) provide specific information 

on the application and management of fire on the Refuge. The Alaska Interagency Wildland 

Fire Management Plan (AIWFMP, amended October 1998) provides a cooperative 

framework and operational guideline for the suppression and management of wildland fires. 

The suppression of human-caused and unwanted wildland fires along with the use of 

wildland fire use and prescribed fire are important and critical fire management tools. 

Wildland Fire Suppression: Fire suppression activity is the work of confining, constraining, 

controlling, or monitoring a fire or a portion of a fire to protect, prevent, or reduce the loss of 

identified values. Suppression takes place, with the highest priority being the safety of 

firefighters and the public, using an appropriate management response based on values to be 

protected. The AIWFMP and the refuge FMP is the guiding document for suppression 

actions. The AIWFMP establishes four management options—critical, full, modified, and 

limited—that direct a range of wildfire management responses. Refuge lands have been 

classified using these fire management options. Values at risk have been identified and 

mapped. 

The Bureau of Land Management - Alaska Fire Service (AFS) provides emergency 

suppression services on refuge lands in Alaska (Memorandum of Agreement for Wildland Fire 

Suppression Services and Related Activities, August 2006), as directed by the refuge manager. 

Through a cooperative agreement with AFS, the State of Alaska Division of Forestry provides 

emergency suppression services on refuge lands in State protection zones, as directed by the 

refuge manager. The Refuge is located in the AFS Galena and Tanana Fire Management 

Zones, with suppression services provided solely by the Alaska Fire Service. 

Use of Wildland Fire: Use of wildland fire is the application of a management response to 

naturally ignited wildland fires to accomplish beneficial resource management objectives as 

outlined in the refuge fire management plan. Wildland fires may be used to protect, maintain, 

and enhance natural and cultural resources and, as nearly as possible, wildland fires will be 

allowed to function in their natural ecological role. Optional management is described in the 

Refuge Fire Management Plans. 

Prescribed Fire: Prescribed fires are ignited by management action to meet specific wildland 

fuel, vegetation, and/or habitat management objectives. Prior to each ignition, a written, 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-33 
Chapter 2: Goals and Objectives, Management Direction 

approved burn plan outlining prescription conditions is required. Use of prescribed fires must 

also comply with the Alaska Enhanced Smoke Management Plan for Prescribed Fire. This 

plan provides guidance and direction concerning smoke management issues related to 

prescribed fire. 

2.4.11 Fish and Wildlife Population Management 

Conservation of habitats is a key element in maintaining the natural diversity of fish and wildlife 

populations on the Refuge. Management of these populations is an important component of 

maintaining healthy ecosystems. The Refuge will be managed in accordance with their 

respective purposes and consistent with the Policy on Maintaining Biological Integrity, 

Diversity, and Environmental Health of the National Wildlife Refuge System (Service Manual 

601 FW 3) to ensure native species are managed in their natural diversity and abundance. 

The Refuge will work with the State of Alaska to conserve fish and wildlife populations, 

recognizing that populations may experience fluctuations in abundance because of 

environmental factors and may require management actions for conservation purposes. The 

Refuge will be managed to maintain the genetic variability of wild, native fish stocks. 

2.4.11.1 Wildlife Inventory and Monitoring Plan 

To assess presence, relative abundance, distribution, and trends in populations of fish, wildlife, 

and plants, the Refuge completed a Wildlife Inventory and Monitoring Plan (I&MP) in 2002 

and revised it in 2008. The I&MP describes objectives, justification, methods, management 

implications, geographic scale, report schedules, and database management for studies on 

species targeted for inventory and monitoring. The I&MP includes studies that address 

environmental parameters (weather) and hydrology, soils, and fire history to explain potential 

changes in the distribution, relative abundance, and populations of fish, wildlife and plants. 

The Refuge will review the I&MP every two years. Regional office review is required every 

five to eight years. Updates to the I&MP will be made as indicated from these reviews. 

2.4.11.2 Scientific Peer Review 

Biologists, ecologists, botanists, and other refuge personnel conducting scientific 

investigations will adhere to refuge, regional, Service, and Department of Interior policies on 

scientific conduct, including the Management of Fish and Wildlife Service Scientific 

Publications Recommended Outlets, Procedures, and Policies. The overall goal of scientific 

peer review is to ensure that information collected, analyzed, interpreted, and reported to the 

public, and upon which policy and management decisions are based, meets established 

standards of the scientific community. To achieve this goal, all study plans and reports to be 

disseminated outside the originating office must be peer-reviewed. The region’s peer review 

procedure is available upon request. The type and level of review shall be commensurate with 

the potential significance of the scientific information and its likely influence on policy and 

management actions. 

2.4.11.3 Compliance with the Animal Welfare Act 

The Animal Welfare Act of 1996, as amended, established legal standards for animal care and 

use. To prescribe methods and set standards for the design, performance, and conduct of 

animal care and use, research facilities and federal agencies must establish an Institutional 

Animal Care and Use Committee (IACUC). Field studies conducted or authorized by refuge 

employees within the purview of the Animal Welfare Act will require review and approval of 

an IACUC. Any refuge study that involves an invasive procedure or that harms or materially 

2-34 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

alters the behavior of an animal under study should be reviewed and approved by an IACUC 

prior to implementation of field work. Note that a scientific collection permit is also required 

from the Alaska Department of Fish and Game under 5 Alaska Administrative Code 92.033. 

2.4.11.4 Marking and Banding 

These activities include fish and wildlife capture, marking, banding, radio-collaring, release, 

tracking, and other information-gathering techniques. Cooperation with appropriate 

partners, including the Alaska Department of Fish and Game, will be stressed, and specific 

protocols will be followed, taking advantage of all appropriate disciplines and new 

technologies wherever possible. 

2.4.11.5 Threatened or Endangered Species 

The Refuge will consult with the U.S. Fish and Wildlife Service Ecological Services field office 

on actions that may affect listed, proposed, or candidate species or designated or proposed 

critical habitat. These actions include refuge operations, public use programs, private lands 

and federal assistance activities, promulgating regulations, and issuing permits (USFWS 1973, 

section 7 Consultation Handbook 1998). 

2.4.11.6 Reintroductions 

A species may be introduced on a refuge only if that species is native to the refuge (i.e., a 

reintroduction). Non-native species may not be introduced. Definitions of native and nonnative species are found in the Appendix O. 

Reintroductions can be useful tools for restoring species to natural ranges and reestablishing 

a refuge’s natural fish, wildlife, and habitat diversity. Reintroductions would require 

appropriate NEPA compliance; a review to ensure consistency with the Policy on Maintaining 

Biological Integrity, Diversity, and Environmental Health of the National Wildlife Refuge 

System; an ANILCA section 810 determination, and a refuge compatibility determination. 

Reintroductions also require extensive coordination with adjacent landowners and with the 

State of Alaska. In evaluating the project, the cause(s) of the extirpation should be evaluated 

and management actions taken to alleviate the cause(s) prior to reintroduction. 

The environmental requirements of the species and the ecological dynamics of the area 

proposed for the reintroduction need to be thoroughly reviewed prior to a reintroduction. 

Some factors to consider include behavior, diseases, general ecology of the species, habitat 

requirements, inter- and intra-species competition, life history, genetics, management 

practices, population dynamics, and predators. Consideration should be given to whether 

there have been significant habitat changes since the species’ extirpation (e.g., is the area still 

within the species’ natural range?). 

2.4.11.7 Fish and Wildlife Control 

These activities involve the control, relocation, and/or removal of native species, including 

predators, to maintain natural diversity of fish, wildlife, and habitats. These management 

actions may be employed with species of fish and wildlife within their original range to restore 

other depleted native populations. 

Predator management includes the relocation, removal, sterilization, and other management 

of native predators to accomplish management objectives. The Service considers predator 

management to be a legitimate conservation tool when applied in a prudent and ecologically 

sound manner and when other alternatives are not practical. Appendix E describes what it 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-35 
Chapter 2: Goals and Objectives, Management Direction 

would take to implement a predator control program on the Refuge. The key requirements 

are that a predator management program be ecologically sound and biologically justified. In 

keeping with the Service’s mandate to first and foremost maintain the biological integrity, 

diversity, and environmental health of fish and wildlife populations at the refuge scale, a 

predator population will not intentionally be reduced below a level consistent with the low end 

of natural population cycles (see Service Manual 601 FW 3). 

A predator management program requires appropriate NEPA compliance, an ANILCA 

section 810 determination, and, if conducted by other than the Service or an agent of the 

Service, a refuge compatibility determination. Alternative management actions must be 

evaluated prior to pursuing direct predator control activities. Any proposal to allow or 

implement a predator management program on national wildlife refuges in Alaska will be 

subjected to public review and closely coordinated with the Alaska Department of Fish and 

Game, local communities, tribal governments, and adjacent landowners and/or managers. 

Predator management activities must be monitored and evaluated for effectiveness and 

resource impacts. 

Normal environmental education and population management activities—such as trapper 

education programs and regulation changes that allow for increased harvests of predatory 

animals by licensed trappers and hunters—are not considered to be “predator management.” 

The control or extirpation of non-native predators is not considered to be “predator 

management” (see section 2.4.11.8). 

2.4.11.8 Management of Non-native, Invasive, and Pest Species 

In general, the presence of non-native species (including feral domestic animals) on the Refuge 

is not compatible with refuge purposes or with Refuge System policies. When a non-native 

species (fish, wildlife, or plants) occurs on a refuge, the Service may control or eliminate that 

species. Where a population of a non-native species has already been established on a refuge 

and this population does not materially interfere with or detract from the fulfillment of the 

mission of the Refuge System or the purposes of the Refuge, the species may be managed as 

part of the Refuge’s diverse ecosystems. 

Pests are defined as those organisms (vertebrates, invertebrates, plants, and microorganisms 

and their vectors), which are detrimental to fish, wildlife, human health, fish and wildlife 

habitat, or to established management goals. Pests also include noxious weeds and other 

organisms, which are classified as pests by law (Administrative Manual 30 AM 12). 

Invasive species are non-native species whose introduction causes or is likely to cause 

economic or environmental harm or harm to human health. The federal government is 

prohibited by Executive order, law, and policy from authorizing, funding, or carrying out 

actions that are likely to cause or promote the introduction or spread of invasive species in the 

United States or elsewhere (Service Manual 620 FW 1). Refuge managers conduct habitat 

management activities to prevent, control, or eradicate invasive species using techniques 

described through an integrated pest management plan or other similar management plan. 

Refuge integrated pest management planning will address the advantages and limitations of 

potential techniques including chemical, biological, mechanical, and cultural techniques. 

Management of invasive species on refuges is guided by the National Strategy for Invasive 

Species Management and conducted within the context of applicable policy (Service Manual 

620 FW 1). 

2-36 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
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By definition, invasive species cause significant impacts to the land and water resources or to 

the species of plants and animals that use these habitats. To manage invasive plants, the 

refuge will include weed inventories as part of all habitat inventories. The refuge will review a 

proposed action’s potential to introduce or spread invasive plants and will take measures to 

reduce the hazards (e.g., require weed-free feed for pack animals). 

Introduced vertebrates (e.g., fox and rats) may also adversely affect wildlife populations, 

particularly in island ecosystems where species historically occurred without vertebrate 

predators. Presence of these invasive species may interfere with attainment of refuge 

purposes and management goals. 

Pests on refuges may also be controlled to prevent damage to private property, and routine 

protection of refuge buildings, structures, and facilities is addressed in refuge policy (Refuge 

Manual 7 RM 14). 

The Refuge will coordinate with other landowners and agencies and use integrated pest 

management practices to enhance the detection, prevention, and management of invasive 

species and other pests. Use of chemical control measures on refuge lands requires regional 

office review and approval of a pesticide-use proposal (Administrative Manual 30 AM 12 and 

Refuge Manual 7 RM 14). 

2.4.11.9 Disease Prevention and Control 

Certain disease organisms, viruses, or vectors of disease (e.g., rabies or parasites) may 

threaten human health or the health and survival of native wildlife or plant species. These 

threats may be managed or eliminated after consideration of all reasonable options and 

consultation with the State of Alaska and other concerned parties. This will normally only 

occur when severe resource damage is likely or when public health or safety is jeopardized. 

Wherever possible, an integrated approach to pest management will be used in accordance 

with the Service’s Administrative Manual (30 AM 12) and Refuge Manual (7 RM 14). If 

chemical controls are used, a pesticide-use proposal must be approved. 

2.4.11.10 Fishery Restoration 

Fishery restoration is any management action that increases fishery resources to allow full 

use of available habitat or to reach a population level based on historical biologic data. It can 

also include restoration and protection of habitat to maintain, increase, or improve fishery 

resources. Although the goal of restoration is self-sustaining populations, situations may exist 

in which some form of fishery management or facilities could continue indefinitely. 

Where fishery resources have been severely adversely affected, the Refuge will work with the 

State of Alaska, local tribes, and other partners to restore habitats and populations to 

appropriate, sustainable conditions. Restoration emphasis will focus on strategies that are the 

least intrusive to ecosystems and do not compromise the viability or genetic characteristics of 

the depleted population. This may include regulatory adjustments and/or evaluations of 

escapement goals. If the stocks have been reduced or are threatened, temporary restoration 

facilities may be allowed in designated Wilderness or Wild River areas, as long as the facilities 

will not significantly detract from the values for which those areas were established. 

2.4.11.11 Fishery Enhancement 

Fishery enhancement is any management action or set of actions that is applied to a fishery 

stock to supplement numbers of harvestable fish to a level beyond that which could be 

naturally produced based on a determination or reasonable estimate of historic levels. This 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-37 
Chapter 2: Goals and Objectives, Management Direction 

could be accomplished by stocking barren lakes, providing access to barren spawning areas 

(fish passages), constructing hatcheries, out-stocking in productive systems, or fertilizing 

rearing habitat. 

Refuge management priorities will focus on conserving naturally diverse ecosystems. Fishery 

enhancement facilities for the purpose of artificially increasing fish populations normally will 

not occur within any management category. 

Proposals for fishery enhancement projects will be subject to the provisions of NEPA 

regulations, an ANILCA section 810 determination, and a refuge compatibility determination. 

Only temporary fishery enhancement facilities may be authorized in Minimal, Wild River, and 

Wilderness management areas. Proposals for facilities within designated Wilderness require 

a minimum-requirements analysis to determine if the facilities are necessary within the 

Wilderness Area and would not significantly detract from the values for which those areas 

were established. 

2.4.12 Subsistence Use Management 

Providing the opportunity for continued subsistence use by local residents is one of the 

purposes of the Refuge, as stated in title III of ANILCA. Title VIII of ANILCA further 

provides that rural Alaska residents engaged in a subsistence way of life be allowed to 

continue using resources within refuges for traditional purposes. These resources include fish 

and wildlife, house logs and firewood, and other plant materials.Many aspects of subsistence 

management are addressed outside of refuge comprehensive conservation plans. The Federal 

Subsistence Board, through its rule-making process, addresses seasons, harvest limits, and 

customary and traditional use determinations. The Federal Subsistence Board has 

established Regional Subsistence Advisory Councils to provide for meaningful public input to 

the rule-making process. 

The Refuge will work with others to monitor subsistence harvest. The Refuge will supplement 

the State’s ongoing harvest and resource monitoring programs to provide additional 

information on the status of fish and wildlife populations harvested for subsistence uses. This 

monitoring is intended to identify potential problems before populations of fish and wildlife 

become depleted and to ensure preference is given to subsistence users as required by law. 

All information the Refuge gathers through subsistence monitoring will be shared with local 

State fish and game advisory committees, tribes, and other entities. Refuge staff will attend 

various subsistence-related meetings, including those of local fish and game advisory 

committees and Regional Subsistence Advisory Councils, and provide information on the 

status of subsistence resources and management. 

The noncommercial gathering by local rural residents of fruits, berries, mushrooms, and other 

plant materials for subsistence uses and of dead standing or down timber for firewood is 

allowed without a special use permit. Harvest of live standing timber for house logs, firewood, 

or other uses is allowed, although specific requirements vary by size and location. A special 

use permit is required to cut live trees greater than six inches diameter at breast height (4 1⁄2 

feet above ground level). No more than 20 live trees between three and six inches diameter at 

breast height (dbh) can be cut annually without a special use permit. No cutting may be done 

within 50 feet of a stream, lake, or river, and no more than one tree in five may be cut in any 

specific stand. Cutting of live trees less than three inches dbh does not require a special use 

permit. Timber stocks subject to subsistence use will also be monitored to ensure they remain 

available over the long term. 

2-38 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

Under section 816 of ANILCA, refuge lands may be closed to the taking of fish and wildlife if 

closure is deemed necessary for reasons of public safety, administration, or to ensure the 

continued viability of particular populations of fish or wildlife. Emergency closure to 

subsistence taking generally would occur only after other consumptive uses competing for the 

resources were restricted or eliminated. 

2.4.12.1 Access for Subsistence Purposes 

Access to refuge lands by traditional means will be allowed for subsistence purposes in 

accordance with section 811 of ANILCA, subject to reasonable regulation (50 CFR 36.12). 

Traditional means include snowmobiles, motorboats, dog teams, four-wheelers, and other 

means of surface transportation traditionally used by local rural residents engaged in 

subsistence activities. Use of these traditional means of travel will be in compliance with State 

and federal law in such a manner to prevent waste of harvested resources or damage to the 

Refuge and to prevent herding, harassment, hazing, or driving of wildlife. 

2.4.12.2 Section 810 Evaluations 

The Refuge will evaluate the effects of proposed activities on subsistence use to ensure 

compliance with section 810 of ANILCA. The Refuge will work with the Federal Subsistence 

Board, Regional Subsistence Advisory Councils, local fish and game advisory committees, 

tribes, Native corporations, the Alaska Department of Fish and Game, and other appropriate 

local sources to determine whether a proposed activity would “significantly restrict” 

subsistence uses. If the Refuge determines that a proposal would probably result in adverse 

effects to subsistence use, the Refuge would follow the requirements identified in section 810 

before making a final decision on the proposal. 

2.4.13 Public Access and Transportation Management 

2.4.13.1 Snowmobiles, Motorboats, Airplanes, and Non-motorized Surface Transportation 

Section 1110(a) of ANILCA allows the use of snowmobiles (during periods of adequate snow 

cover and frozen river conditions), motorboats, airplanes, and non-motorized surface 

transportation methods for traditional activities and for travel to and from villages and home 

sites. Such access shall be subject to reasonable regulations to protect the natural and other 

values of the refuges (43 CFR 36.11). Specific areas may be closed, in accordance with these 

regulations, to such uses. The refuge manager is responsible for determining when snow cover 

is adequate to protect the underlying vegetation and soil from damage by snowmobile use. 

2.4.13.2 Off-Road Vehicles 

The regulations at 43 CFR 36.11(g) restrict the use of off-road vehicles within the Refuge. 

The definition of off-road vehicles in 50 CFR 36.2 excludes snowmobiles but includes air boats 

and air-cushion vehicles along with motorized wheeled vehicles. Off-road vehicles such as 

four-wheelers may be allowed only on designated routes or areas within Intensive and 

Moderate Management areas or by special use permit. 

2.4.13.3 Helicopters 

The use of a helicopter in any area other than at designated landing areas pursuant to the 

terms and conditions of a permit issued by the Service, or pursuant to a memorandum of 

understanding between the Service and another party, or involved in emergency or search and 

rescue operations is prohibited (43 CFR 36.11(f)(4)).

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-39 
Chapter 2: Goals and Objectives, Management Direction 

Helicopter landings for volcano monitoring, geologic hazards evaluations, and fisheries and 

wildlife management activities may be authorized under special use permit or other 

authorization, subject to site-specific stipulations. Helicopter landings for initial-attack fire 

suppression must comply with the Refuge fire management plan and operational guidance in 

the Alaska Interagency Wildland Fire Management Plan. Helicopter landings by commercial 

operators and for public access are generally not allowed in designated Wilderness. Where 

such use was established prior to Wilderness designation, it may be allowed to continue. 

2.4.13.4 Access to Inholdings 

Section 1110(b) of ANILCA ensures adequate and feasible access, for economic or other 

purposes, across a refuge for any person or entity that has a valid inholding. An inholding is 

defined as State-owned or privately-owned land, including subsurface rights underlying public 

lands, valid mining claims, or other valid occupancy that is within or effectively surrounded by 

one or more conservation system units. When a right-of-way permit is necessary under this 

provision (e.g., construction of permanent or long-term facilities), the Service will review and 

process the application in accordance with regulations at 43 CFR 36 and 50 CFR 29. Such 

permits are subject to terms and conditions as specified in the regulations. 

2.4.13.5 Temporary Access 

43 CFR 36.12(a) (2) defines temporary access as “limited, short-term (i.e., up to one year from 

issuance of the permit) access which does not require permanent facilities for access to state 

or private lands.” Temporary access is limited to survey, geophysical, exploratory, or other 

temporary uses of non-federal lands and where access is not otherwise provided for in 43 CFR 

36.10 or 43 CFR 36.11. 

The Refuge will evaluate applications for temporary access across the Refuge and shall issue a 

permit with the necessary stipulations and conditions to ensure that the access granted is 

compatible with the purposes for which the three refuges were established, that it complies 

with the provisions of section 810 of ANILCA, and that it ensures that no permanent harm will 

result to refuge resources. 

2.4.13.6 Subsistence Access 

See Access for Subsistence Purposes under Subsistence Use Management (section 2.4.12.1). 

2.4.13.7 Transportation and Utility Systems 

Transportation and utility systems include roads, highways, railroads, airports, pipelines, 

electrical transmission lines, communication systems, and related structures and facilities 

reasonably and minimally necessary for the construction, operation, and maintenance of such 

systems (section 1102 of ANILCA). Anyone seeking to acquire a right-of-way across refuge 

lands for a transportation or utility system, consistent with 43 CFR 36, must file an application 

with the regional office. Regulations (43 CFR 36 and 50 CFR 29) establish specific procedures 

and time constraints for application review, compliance with NEPA, decision making, and 

appeals. 

The Service will decide whether to approve or disapprove that portion of a transportation or 

utility system that would cross refuge lands, except for those on designated Wilderness. 

When the proposed transportation or utility system would cross a designated Wilderness 

Area, the Service tentatively approves or disapproves the application subject to the 

President’s subsequent decision. If the President approves, a recommendation is submitted to 

Congress for final approval. 

2-40 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

A right-of-way for a transportation or utility system across refuge lands can be granted only if 

the system meets the compatibility standard, the criteria outlined in section 1104(g)(2) of 

ANILCA, and the 43 CFR 36.7(a)(2) regulations, and if there is no economically feasible and 

prudent alternative route for the system. If approved, permits issued for a transportation or 

utility system will contain terms and conditions as required under regulations 43 CFR 36.9(b) 

and 50 CFR 29.21 through 29.24. Rights-of-way that cross any area within the boundaries of a 

Wild and Scenic River unit will assure that the stream flow of, and transportation on, such 

river are not interfered with or impeded and that the facility is located and constructed in an 

environmentally sound manner (section 1107(b) of ANILCA and 43 CFR 36.9(c) and (d) 

regulations). Additional special requirements apply to rights-of-way for pipelines issued 

under the Mineral Leasing Act of 1920 (30 U.S.C. 185), section 1107(c) of ANILCA, and 43 

CFR 36.9(d) regulations. 

When considering an application for a transportation or utility system, the authorization process 

would incorporate a corresponding comprehensive conservation plan amendment to update the 

desired management category(s) of the affected area if the system were to be approved. 

2.4.13.8 State Transportation Planning 

Federal transportation planning regulations require each state to develop a long-range 

statewide transportation plan in consultation and coordination with other government 

agencies and the public. In Alaska, transportation projects nominated for funding are 

evaluated and ranked by the Alaska Department of Transportation and Public Facilities. 

When appropriate, the Refuge will participate in the State transportation planning process 

and provide input regarding environmental considerations of proposed projects affecting 

refuge lands and resources. See sections 3.1.1.8 and 3.4.6 of this Plan for a discussion of Stateidentified potential transportation and utility systems that cross refuge lands. 

2.4.13.9 RS 2477 Rights-of-Way 

The State of Alaska identifies numerous claims to roads, trails, and paths across federal lands 

under Revised Statute 2477 (RS 2477), a section in the Mining Act of 1866 that states, “The 

right-of-way for the construction of highways over public lands, not reserved for public uses, is 

hereby granted.” RS 2477 was repealed by the Federal Land Policy and Management Act of 

1976, subject to valid existing claims. 

Assertion and identification of potential rights-of-way does not establish the validity of these 

claims nor the public’s right to use them. The validity of all RS 2477 rights-of-way will be 

determined on a case-by-case basis, either through the courts or by other legally-binding means. 

The State of Alaska has currently identified in Alaska Statute 19.30.400 three routes on the 

Refuge it claims may be asserted as rights-of-way under RS 2477 (see appendix F and Figures 

3-1 through 3-3). 

2.4.13.10 17(b) Easements 

Section 17(b) of the Alaska Native Claims Settlement Act, December 18, 1971 authorizes the 

Secretary of the Interior to reserve easements on lands conveyed to Native corporations to 

guarantee access to public lands and waters. Easements across Native lands include linear 

easements (e.g., roads and trails) and site easements. Site easements are reserved for use as 

temporary campsites and to change modes of transportation. 

The Service is responsible for administering those public easements inside and outside refuge 

boundaries that provide access to refuge lands. Service authority for administering 17(b) 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-41 
Chapter 2: Goals and Objectives, Management Direction 

easements is restricted to the lands within the easement. The size, route, and general location 

of 17(b) easements are identified on maps filed with conveyance documents. Conveyance 

documents also specify the terms and conditions of use, including the acceptable periods and 

methods of public access. See appendix G and Figures 3-1 through 3-3 for additional 

information. 

2.4.13.11 Navigation Aids and other Facilities 

Section 1310 of ANILCA authorizes reasonable access to and operation and maintenance of 

existing air and water navigation aids, communications sites, and related facilities. It 

authorizes existing facilities for weather, climate, and fisheries research and monitoring 

subject to applicable laws and regulations. Reasonable access to and operation and 

maintenance of facilities for national defense and related air and water navigation are also 

provided for within designated Wilderness areas. 

New facilities shall be authorized only after consultation with the head of the federal 

department or agency undertaking the establishment, operation, or maintenance and in 

accordance with mutually agreed to terms and conditions. 

2.4.14 Recreation and Other Public Use 

Public recreation activities compatible with refuge purposes are authorized unless specifically 

prohibited (50 CFR 36.31). Compatible recreation uses of the Refuge will continue. The 

Refuge Administration Act identifies compatible hunting, fishing, wildlife observation and 

photography, and environmental education and interpretation as priority public uses. These 

uses are encouraged and will receive emphasis in public use management. 

Both consumptive (e.g., hunting, fishing, and trapping) and non-consumptive (e.g., wildlife 

observation and photography) recreation uses are appropriate. Some recreational uses are 

incidental to others. For example, camping and hiking may be related to hunting, fishing, 

wildlife photography, or other recreational uses. 

There is often a fine line between subsistence and recreational use (e.g., berry picking). 

Subsistence uses are addressed under Subsistence Use Management (section 2.4.12). When it 

is necessary to restrict the taking of fish and wildlife on a refuge to protect the continued 

viability of such populations, the taking of fish and wildlife for non-wasteful subsistence uses 

on refuges shall be accorded priority over the taking of fish and wildlife for other purposes, in 

accordance with title VIII of ANILCA. 

The Refuge will be managed to provide recreational experiences in a generally natural 

wildland setting. Recreational use is managed consistent with the designated management 

category. Areas designated as Intensive and Moderate Management will be managed for 

greater concentrations of visitors than those designated as Minimal Management, Wilderness, 

or Wild River. The Refuge will manage all recreational use to avoid crowded conditions and to 

minimize adverse effects to cultural resources, fish and wildlife, wilderness, and other special 

values of the Refuge. “Leave No Trace” principles will be the standard. 

The least intrusive means of managing recreational use will be employed. Education will be 

the primary management tool for recreation management, using brochures, maps, signs, and 

personal contacts. However, if voluntary methods fail, other actions may be taken, including 

limiting commercial guiding and outfitting; regulating use and access subject to the provisions 

of section 1110(a) of ANILCA; and recommending changes in State and/or federal fishing, 

hunting, and/or trapping regulations. When necessary, recreation opportunities may be 

2-42 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

seasonally or otherwise restricted to minimize user conflicts and to protect the natural or 

other values of the Refuge. 

Any restrictions on public use will follow the public participation and closure procedures (50 

CFR 36, 43 CFR 36), or other applicable regulations. State management actions available 

through the Master Memorandum of Understanding (see appendix B) and other State 

management tools will also be used where mutually desirable. 

A Visitor Services Plan may be prepared for the Refuge, or more specific management plans 

may be prepared for areas of relatively concentrated use. 

2.4.15 Public Use Facilities 

Facilities may be provided to support certain recreation and other public uses. Recreation 

facilities may be located on refuge lands and at administrative sites. Visitor centers and highly 

developed environmental education and interpretive sites may be located off refuge lands at 

administrative sites or other appropriate locations. Public use facilities may include roads, 

trails, boat launch sites, airstrips, campgrounds, interpretive sites, environmental education 

sites, visitor centers, public use cabins, visitor contact facilities, and signs. 

All new buildings (e.g., visitor centers, restrooms, public use cabins, and visitor contact 

buildings), some recreation facilities (e.g., fishing platforms), and additions and alterations to 

existing buildings will comply with current accessibility standards. Other non-building 

recreation facilities (e.g., campgrounds, trails) are not currently covered under these standards, 

although access for the disabled will be considered in the design of new or upgraded facilities. 

As funds are available, existing buildings will be updated to meet these standards. 

The level of development and appearance of facilities will be appropriate for the management 

category of the area in which they are located. More elaborate facilities will be constructed in 

the Intensive Management category; more rustic and rudimentary facilities will occur in the 

other management categories. 

2.4.15.1 Cabins 

Special use permits are required for subsistence and commercial cabins. Management of 

existing cabins and review of proposals for construction of new cabins for traditional uses will 

be in accordance with the Service’s cabin regulations (50 CFR 36.33) and regional cabin policy 

(see appendix N). Private recreational use cabins will not be authorized. 

Public use cabins are intended to provide the public with unique opportunities to enjoy and use 

the Refuge. They also help ensure public health and safety in bad weather and emergencies. 

2.4.15.2 Temporary Facilities for the Taking of Fish and Wildlife 

Per section 1316 of ANILCA, the Refuge will allow the use of temporary campsites, tent 

platforms, shelters, and other temporary facilities and equipment directly and necessarily 

related to the taking of fish and wildlife, provided these facilities are not detrimental to refuge 

purposes. Special use permits may be issued for tent frames, caches, smokehouses, and other 

facilities. Appropriate stipulations will be included in the special use permits to ensure 

protection of refuge resources. Permits for these facilities within the Refuge will only be 

required for tent frames located in the Nowitna Wild River corridor and the Koyukuk 

Wilderness Area. 

The following criteria will be considered in evaluating applications for temporary facilities: 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-43 
Chapter 2: Goals and Objectives, Management Direction 

2-44 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

 Where feasible, they will be located in a manner to not displace or compete with 

existing public uses. 

 They will be located away from the vicinity of existing cabins. 

 They will be located on sites that are not currently popular campsites. 

 They will be located to minimize displacement of wildlife. 

The following conditions may be imposed on temporary facility special use permits: 

 The time of occupancy will coincide with the State and/or federal hunting, fishing, 

and/or trapping season for the species for which the temporary facility is being used. 

 At the end of the specified occupancy, tents and other readily portable materials will 

be removed. 

 To the extent feasible, temporary structures will be built with materials that blend into 

and are compatible with the surrounding landscape. 

 To the extent feasible, temporary facilities will be screened from water and located so 

that they are as unobtrusive as possible when viewed from trails and areas of 

significant public use. 

2.4.16 Outreach 

Outreach is two-way communication between the Refuge and the public to establish mutual 

understanding, promote public involvement, and influence public attitudes and actions. The 

Refuge will continue to take advantage of partnership opportunities in providing these 

services, including working with the Alaska Geographic Association; Alaska Public Lands 

Information Centers; Friends of Alaska National Wildlife Refuges; local, State, and other 

federal agencies; local schools; tribal governments; Alaska Native organizations; and others. 

Use of outreach as a management tool is key to the success of many of the management 

activities outlined in this Plan. Two outreach activities—environmental education and 

interpretation—are included in the six priority public uses identified in the Refuge 

Improvement Act. Many other activities are also available for use by the refuge staff in its 

outreach program, which may be developed in more detail as a step-down management plan. 

All outreach activities must be continually evaluated to determine whether they fulfill refuge 

management goals and objectives. The Refuge will ensure that these services are available to 

all segments of the public, including those with disabilities and those who speak languages 

other than English. 

Refuge staff will work with the news media; attend public meetings and workshops; develop 

informational displays, brochures, web pages, and teaching materials; invite the public to the 

Refuge (open houses); visit local schools and communities; and foster one-on-one 

communication. 

2.4.17 Commercial-use Management 

Commercial uses are activities involving use of a refuge or its resources for a profit. 

Subsistence uses are not included in commercial uses. Refer to section 2.4.12 for policies 

related to subsistence. 

Except for mining on valid claims under the 1872 Mining Law, of which there are none located 

within the boundaries of the Refuge, other activities where specific property rights are held by 

entities other than the federal government, or where specifically exempted by law, all 

commercial uses must comply with both NEPA and the compatibility requirements of the 
Chapter 2: Goals and Objectives, Management Direction 

Refuge Administration Act. A written authorization (such as a special use permit) is required 

to conduct commercial activities on any refuge. Compliance with NEPA and a refuge 

compatibility determination will be required prior to deciding whether to authorize a 

commercial use. Prior to authorizing any economic use of a natural resource, the refuge 

manager must determine that each use, except for proposed activities authorized by ANILCA, 

contributes to the achievement of refuge purposes or the Refuge System mission (50 CFR 

29.1). Except for commercial services described previously such as air charters and guided 

hunting and fishing, commercial enterprises are prohibited in designated Wilderness. 

2.4.17.1 Commercial Recreation Services 

Air-taxi and water-taxi operators, wildlife-viewing guides, tour operators, wilderness guides, 

recreational fishing guides, big-game hunting guides, and others providing recreation services 

are required, under 50 CFR 27.97, to obtain special use permits to operate on refuge lands. 

Where the number of special use permits is limited, refuge managers will award permits 

competitively (50 CFR 36.41). Special use permits require compliance with all applicable laws 

and regulations (e.g., United States Coast Guard licensing regulations). Permit stipulations 

ensure that camps; travel methods; storage of food, fish, and game meat; and activities are 

compatible with refuge purposes and reduce the potential for impacts to resources and to 

other refuge users. If problems arise relating to commercial recreation activities—such as 

disturbance of active nests, conflicts with subsistence use, chronic incidence of bears getting 

into food, or violations of State or federal regulations—the Refuge may modify or terminate 

use under the special use permit stipulations. The Refuge will monitor the number and type of 

guides and outfitters operating on the Refuge and the number of clients and will, if necessary, 

further regulate use. 

Under section 1307 of ANILCA, local preference is provided for all new commercial visitor 

services except guiding for recreational hunting and fishing. Regulations defining local 

preference are under 50 CFR 36.37. 

2.4.17.2 Mineral Exploration and Development 

Oil and Gas Assessment: Geological and geophysical studies, including subsurface core 

sampling and seismic activities, require special use permits with site-specific stipulations that 

ensure compatibility with refuge purposes and consistency with the management objectives of 

this Plan. Decisions to allow exploration will be made on a case-by-case basis. These activities 

will not be allowed in designated Wilderness. 

Oil and Gas Leasing: Oil and gas leasing may be allowed only in Intensive management areas. 

Oil and gas leasing will not be authorized until completion of the following: 

 An assessment of potential 

 A national interest determination 

 A refuge compatibility determination, where applicable 

 A Comprehensive Conservation Plan amendment 

During this process, the Service will seek the views of State and local governments and other 

interested parties, in accordance with section 1008(b) (2) of ANILCA. 

If leasing is authorized, lease holders will be subject to federal leasing regulations (43 CFR 

3100) and appropriate State regulations. Leases will be subject to stipulations on access, 

seasonal use, and site restoration. Operators would be required to use technology that 

minimizes impacts on fish, wildlife, and habitat. The Refuge will work closely with lease 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-45 
Chapter 2: Goals and Objectives, Management Direction 

holders to minimize adverse effects of mineral exploration and extraction on refuge resources 

and recreation opportunities. 

Sand, Gravel, and Other Common Variety (Saleable) Minerals: Common variety minerals—

such as sand, gravel, and stone—may be sold pursuant to the Materials Act of July 31, 1947 

(30 U.S.C. 601 and 602), as amended. Regulations are found under 43 CFR 3600. Disposal is 

also authorized under the Refuge Revenue Sharing Act (16 U.S.C. 715s). Also see 612 FW 1 of 

the Service Manual. Extraction may be authorized, where compatible, in Intensive and 

Moderate Management areas to support construction and maintenance projects on or near 

refuge lands if no reasonable material sites exist off refuge lands. 

Other Mineral Leasing: In general, mineral leasing is not allowed on refuge land. Geothermal 

leasing is not allowed on refuges under section 1014(c) of the Geothermal Steam Act (30 U.S.C. 

1014). Coal mining is also prohibited, subject to valid existing rights, under section 16 of the 

Federal Coal Leasing Amendment Act of 1975 (30 U.S.C. 201 Notes) and the Surface Mining 

Control and Reclamation Act of 1977 (30 U.S.C. 1272; 43 CFR 3400.2). In specific cases of 

national need, however, mineral exploration, development, or extraction may be permitted 

under section 1502 of ANILCA. The President must determine that the national need for the 

mineral activity outweighs the other public values of the land. Any recommendation by the 

President would take effect only after enactment of a joint resolution by Congress. 

2.4.17.3 Commercial Fishing and Related Facilities 

Under section 304(d) of ANILCA, the Service will continue to allow individuals with valid 

commercial fishing rights or privileges to operate on the Refuge. The use of campsites, cabins, 

motor vehicles, and aircraft on the Refuge in support of commercial fishing is subject to 

reasonable regulation. Section 304(d) provides for restricting commercial fishing rights if the 

use is determined to be inconsistent with refuge purposes and to be a “significant expansion of 

commercial fishing activities . . . beyond the level of such activities during 1979.” The Service 

recognizes that fishery levels are cyclic and will take that into consideration when applying the 

1979 level criteria. Any new fishery and related facilities and equipment will have to meet the 

compatibility standard. 

Aquaculture and mariculture support facilities may be allowed in Intensive Management areas, 

subject to provisions of State and federal laws. Seafood processing plants will not be allowed. 

2.4.17.4 Commercial Harvest of Timber and Firewood 

Commercial harvest of timber and firewood will only be authorized under a special use permit 

and when necessary to fulfill overall refuge management objectives. Within Moderate, 

Minimal, and Wild River management categories, commercial harvest of timber and firewood 

to accomplish management objectives will only occur when an approved refuge fire 

management plan identifies the need to reduce fuel loads in an area. Applicable federal and 

State of Alaska (Alaska Forest Resources & Practices Act, as amended) guidelines for timber 

management will be followed. Commercial harvest of timber and firewood is not allowed in 

designated Wilderness. 

2.4.17.5 Commercial Gathering of Other Resources 

Commercial gathering of other resources (e.g., antlers or mushrooms) requires a special 

use permit under 50 CFR 27.51 and may be authorized in Intensive and Moderate 

Management areas. 

2-46 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

2.4.17.6 Commercial Filming and Recording Activities 

It is Service policy to provide refuge access and/or assistance to firms and individuals in the 

pursuit of commercial visual and audio recordings when they are compatible with refuge 

purposes or the mission of the Refuge System. Commercial films, television production, or 

sound tracks made within a refuge for other than news purposes require a special use permit 

or authorization (43 CFR 5.1). 

Commercial filming or recording activities such as videotaping, audio taping, and photography 

for the purpose of advertising products and services are subject to an A/V Production Permit 

(Refuge Manual 8 RM 16). 

Permits are not required for still photography on refuge lands open to the public, including 

commercial still photography, so long as no models or props which are not a part of the site’s 

natural or cultural resources or administrative facilities are used (16 U.S.C. 460l-6d(c)). 

2.4.17.7 Other Commercial Uses 

Generally, other commercial uses such as grazing, agriculture, and hydroelectric power 

development will not be allowed. An exception may be made for low-head or small run-of-theriver hydropower facilities. These may be authorized in Intensive and Moderate Management 

areas on a case-by-case basis. See section 2.4.13.9 for transmission lines, pipelines, and other 

rights-of-way mentioned in title XI of ANILCA. 

2.4.18 Environmental Contaminants Identification and Cleanup 

One goal of the Refuge Administration Act, as amended, is to maintain the biological integrity, 

diversity, and environmental health of the Refuge System. In support of this goal, the Service 

studies environmental contaminants that may threaten trust species (i.e., those species for 

which the Service has primary jurisdiction) and other resources of a refuge. This work will 

continue as new concerns are identified and as funding allows. 

An assessment of known or suspected contaminants threats is normally completed for each 

refuge as part of the national Contaminants Assessment Process. During comprehensive 

conservation plan revisions, existing information will be reviewed. The decommissioned 

Galena Air Force Base and the demolished Campion Base are known contaminants sites. An 

assessment of potential contaminants threats will be completed and a report prepared at a 

future date. 

When contaminants are identified on refuge lands, the Service will initiate discussions with 

the responsible party or parties to remedy the situation. If the Service caused the 

contamination, funds will be sought to define the extent and type of the contamination and to 

remedy it. Appropriate environmental regulations—including the Resource Conservation 

Recovery Act, Comprehensive Environmental Response and Compensation Liability Act, Oil 

Pollution Act of 1990, and State of Alaska regulations (e.g., 18 AAC 75)—would be followed 

during remediation work. 

All spills of petroleum products and hazardous materials must be reported to the Alaska 

Department of Environmental Conservation and to the National Response Center. Incidents 

also need to be reported to the U.S. Fish and Wildlife Service Regional Spill Response 

Coordinator. The Refuge will refer to the U.S. Fish and Wildlife Service Region 7 Spill 

Response Contingency Plan and other relevant plans when responding to spills. 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-47 
Chapter 2: Goals and Objectives, Management Direction 

2.4.19 Management of Designated Wilderness 

Designated Wilderness within the Refuge will be managed in accordance with the Wilderness 

Act of 1964, as modified by provisions of ANILCA; Service guidelines as found in the Refuge 

Manual (6 RM 8) and part 610 of the Service Manual, when approved; and regional policy. 

Preserving the wilderness character of the area is the management focus for designated 

Wilderness. A minimum requirements analysis will be conducted for administrative activities 

proposed in Wilderness areas. This two-step decision process involves determining if an 

activity should be conducted in the Wilderness Area and, if so, determining the minimum tool, 

which is the least intrusive tool, equipment, device, force, regulation, or practice deemed 

necessary to achieve a management objective in Wilderness. 

Certain activities are legislatively prohibited in designated Wilderness, including oil, gas, and 

other mineral leasing and most surface-disturbing activities. Section 4(c) of the Wilderness 

Act generally prohibits roads, commercial enterprises, motor vehicles, motorboats, other 

forms of mechanical transport, motorized equipment, the landing of aircraft, and structures 

and installations in Wilderness areas. Provisions of ANILCA, however, provide exceptions to 

some of these prohibitions for specific purposes, such as allowing motorized public access for 

traditional activities, and for the continuation of pre-existing commercial and private use 

cabins. Following are some of the ANILCA provisions and their applicable sections affecting 

public use of Wilderness areas: 

 Access for subsistence purposes (section 811) 

 Access for traditional activities and to and from villages and home sites (section 

1110(a)) 

 Access to state- or privately-owned lands (including subsurface rights), valid mining 

claims, or other valid occupancy (section 1110(b)) 

 Construction and use of cabins for traditional and customary uses (section 1303) 

 Use of facilities associated with the exercise of valid commercial fishing rights (section 

304(d)) 

Other provisions of ANILCA affect the administrative uses of Wilderness areas, including the 

following: 

 Access for mineral assessment purposes, as part of the Alaska Mineral Resources 

Assessment Program (section 1010) 

 Construction and maintenance of navigation aids and other facilities (section 1310) 

 Continuation of existing, and construction of new, public use cabins (sections 1315(c) 

and (d)) 

Under 50 CFR 35.5(b), regional policy allows local residents engaged in subsistence activities 

to use chainsaws. Other motorized equipment not related to transportation (such as 

generators and water pumps) are not allowed. 

Granting rights-of-way for transportation or utility systems through designated Wilderness 

requires Presidential and congressional approval (section 1106(b) of ANILCA; see also section 

2.4.13.7). 

A step-down Wilderness Stewardship Plan may be prepared for the Koyukuk Wilderness to 

address in greater detail its resources, uses, and management. Specific details would be 

included on how the broad management direction provided in the Comprehensive Conservation 

2-48 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

Plan would be applied to the Wilderness Area to preserve the wilderness character. The stepdown plan would be prepared in cooperation with the State and other partners. Public 

involvement would be an essential part of preparation of the stewardship plan. 

2.4.20 Administration of the Koyukuk, Northern Unit Innoko, and Nowitna National Wildlife 

Refuges 

2.4.20.1 Administrative Sites and Visitor Facilities 

Administrative sites include temporary and permanent field camps, residences, offices, and 

associated storage, communication, and transportation facilities. The type of administrative 

site and level of development will be consistent with the management intent of the 

management category in which they are constructed. Administrative field camps or other 

administrative facilities within Minimal, Wilderness and Wild River Management categories 

will only be allowed when required to meet management objectives, when no reasonable 

alternative sites exist, and when the facilities are essential to protect the health and safety of 

employees. New facilities would only be the minimum required to meet long-term needs. 

Fuel storage or other hazardous-material storage in conjunction with administrative sites will 

meet all federal and State requirements for spill containment and storage. Hazardous 

materials stored within the Wild River and Wilderness Management categories will be in 

small (55-gallon or less) containers. 

Under section 1306 of ANILCA, the Secretary of the Interior may establish administrative 

sites and visitor facilities, either within or outside the boundaries of a conservation system 

unit, in accordance with the unit’s management plan and for the purposes of ensuring the 

preservation, protection, and proper management of the unit. Section 1306 (a) (2) further 

states that “To the extent practicable and desirable, the Secretary shall attempt to locate such 

sites and facilities on Native lands in the vicinity of the unit.” 

Department of Interior guidelines, developed in 1995 and implementing section 1306, require 

that prior to initiating a search for an administrative site or visitor facility, site-selection 

criteria be developed, with public input, and all proposals be evaluated according to the siteselection criteria. If it is determined that Native lands satisfy the site-selection criteria and 

are desirable and practicable for the intended use, the highest-ranked Native lands shall be 

selected as the preferred site, subject to a specific site evaluation. If no Native lands satisfy 

the site-selection criteria, the highest-ranked parcel will become the preferred site. Public 

comments will be considered prior to making a final decision. 

Applicability of Refuge Regulations to Off-Refuge Administrative and Visitor Facility Sites:

Under 50 CFR 36.1(c) the Service is authorized to enforce regulations concerning public safety 

and protection of government property, and State of Alaska fish and wildlife regulations, on 

administrative and visitor facility sites that may be held in fee or less-than-fee title and are 

either inside or outside the approved boundaries of the refuges. In the case of the Koyukuk, 

Northern Unit Innoko, and Nowitna National Wildlife Refuges, these sites are primarily 

located in the village of Galena. 

2.4.20.2 Refuge Management Plans 

Some management programs are addressed in sufficient detail in the Comprehensive 

Conservation Plan to be integrated directly into the budgetary process. For other programs, 

it may be necessary to prepare step-down management plans to implement general strategies 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-49 
Chapter 2: Goals and Objectives, Management Direction 

identified in this Plan. Additional information on the step-down planning process can be found 

in 602 FW 3 of the Service Manual. 

A list of refuge step-down management plans is found in section 4.1 and Appendix J of this 

Plan. 

2.4.21 Alaska Mineral Resource Assessment Program 

Section 1010 of ANILCA requires that all federal lands be assessed for their oil, gas, and 

other mineral potential, although section 304(c) prohibits new hard rock mining on refuges. 

Mineral assessment techniques that do not have lasting impacts—such as side-scanning radar, 

trenching, and core drilling—may be allowed throughout the Refuge. Special use permits 

issued to other government agencies or their contractors for assessment work would include 

stipulations to ensure that the assessment program is compatible with refuge purposes. For 

example, stipulations may limit access during nesting, calving, spawning, or other times when 

fish and wildlife may be especially vulnerable to disturbance. See section 2.4.17.2 for more 

information. 

2.5 Management Categories Table 

2.5.1 Introduction 

Table 2-1 lists activities, public uses, commercial uses, and facilities by management category. 

In some cases, it provides very specific guidance (such as for highway vehicles). In other cases 

(such as for research and management facilities), the direction is general. While facilities may 

be allowed in all management categories, the types of facilities and how they would be 

constructed and operated vary by management category. The descriptions of the 

management categories reflect a clear distinction in the level of action and constraints that 

may be placed on activities or development within the management categories. The 

descriptions of the management categories should be used to reflect the desired future 

condition of the area when site-specific proposals are being evaluated. Activities allowed or 

authorized within the different categories will be managed differently depending on the 

management category in which they occur. Those management categories and activities, 

public uses, commercial uses, and facilities that generally do not apply to the Refuge are 

shaded in gray. 

2.5.1.1 Definitions for Management Categories Table 

The following are definitions for terms used in the table. 

Allowed—Activity, use, or facility is allowed under existing NEPA analysis, appropriate use 

findings, refuge compatibility determinations, and applicable laws and regulations of the 

Service, other federal agencies, and the State of Alaska. 

May be allowed—Activity, use, or facility may be allowed subject to site-specific NEPA 

analysis, an appropriate use finding (when required), a specific refuge compatibility 

determination (when required), and compliance with all applicable laws and regulations of the 

Service, other federal agencies, and the State of Alaska. 

May be authorized—Activity, use, or facility may be allowed; a special use permit or other 

authorization is required. 

Not allowed—Activity, use, or facility is not allowed. 

The following terms are used in the table and throughout this chapter. 

2-50 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 2: Goals and Objectives, Management Direction 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 2-51 

NEPA analysis—All activities, uses, and facilities proposed for a refuge that have the 

potential to result in significant effects on the environment require an analysis of potential 

environmental impacts under the National Environmental Policy Act. This analysis may be 

documented as a categorical exclusion (CE), an environmental assessment (EA), or an 

environmental impact statement (EIS), depending on the nature of the proposed project. 

Appropriate Use—All uses over which the Service has jurisdiction must be determined to be 

appropriate following direction in Service Manual 630 FW 1. Hunting, fishing, wildlife 

observation and photography, and environmental education and interpretation are considered 

appropriate by national policy with no further analysis required. See section 2.4.5 for a 

description of the criteria used to determine if other uses are appropriate. 

Compatibility—All activities, uses, and facilities allowed on a refuge, except management 

actions undertaken by or for the Service, must be compatible with the purposes of the refuge 

and the mission of the Refuge System. The analysis performed results in a refuge 

compatibility determination. Management activities undertaken by the Service or by 

volunteers, cooperators, or contractors working for the Service, with limited exception, are 

exempt from compatibility review (part 603 of the Service Manual). 

Regulations—All activities, uses, and facilities allowed on a refuge must comply with any 

applicable regulations, as published in the Code of Federal Regulations. Regulations are 

developed by the Service through a public process to implement the legal authorities under 

which the Service manages the Refuge System. For more information on these regulations, 

see the appropriate topic in the Management Policies and Guidelines section of this chapter. 

For some activities, other federal agency and/or State regulations may also apply. 

Temporary—A continuous period of time that does not to exceed 12 months, except as 

specifically provided otherwise. Special use permits or other authorizations may prescribe a 

longer period of time, but the structures or other human-made improvements need to be readily 

and completely dismantled and removed from the site when the period of authorized use 

terminates. 

The following guidelines apply to all activities, uses, and facilities on a refuge. 

Area or time restrictions—All activities and uses allowed on a refuge may be restricted in 

certain areas or at certain times, at the discretion of the refuge manager and with the 

appropriate level of public involvement, by emergency (short-term) or permanent regulation, 

if necessary to protect refuge resources or human health and safety. 

Management emergencies—Activities, uses, and facilities not allowed on a refuge or in 

specific management categories may be allowed if naturally-occurring or human-caused 

actions adversely affect refuge resources or threaten human health and safety. 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-52 Koyukuk/Nowitna National Wildlife Refuge Revised CompreTable 2-1. Activities, public uses, commercial uses, and facilities by management category. Note: Those management categories that do not apply to the Refuges are shaded grey. 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

ECOSYSTEM, HABITAT, AND FISH AND WILDLIFE MANAGEMENT 

Ecosystem and Landscape Management Collecting Information on and Monitoring Ecosystem Components Data gathering, monitoring, and maintaining a comprehensive data base of selected ecosystem components (plants, animals, fish, water, and air). (See sections 2.4.11 and 2.4.11.2) 

Allowed*; see section 2.4.19 

Allowed Allowed Allowed 

Research and Management Access and collection of data necessary for management decisions or to further science by the Service. (See section 2.4.11) 

Allowed*; see section 2.4.19 

Allowed Allowed Allowed 

Access and collection of data necessary for management decisions or to further science by ADF&G. 

Allowed*; see section 2.4.19 

Allowed Allowed Allowed 

Access and collection of data necessary for management decisions or to further science by other researchers. 

May be authorized*; see section 2.4.19

May be authorized May be authorized May be authorized 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Research and Management Facilities May be permanent or temporary structures or camps, including weirs, counting towers, and sonar counters. (See section 2.4.20.1) 

May be allowed*; consistent with section 2.3.4 

May be allowed May be allowed May be allowed 

Fish and Wildlife Habitat Management Describing, Locating, and Mapping Habitats Development of quantitative, written, and graphic descriptions of fish and wildlife habitat, including water, food, and shelter components. (See section 2.4.10.1) 

Allowed*; see section 2.4.19 

Allowed Allowed Allowed 

Habitat Management (See section 2.4.10.1) Mechanical Treatment: Activities such as cutting, crushing, or mowing of vegetation; water control structures; fencing; and artificial nest structures.

Not allowed*; with exceptions consistent with sections 2.3.4. See also section 2.4.19 

May be allowed; with exceptions consistent with section 2.3.5 

Not allowed; with exceptions consistent with section 2.3.3 

May be allowed 

Chemical Treatment: Use of chemicals to remove or control non-native species. (See section 2.4.11.8) 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 

Manual Treatment: Use of hand tools to remove, reduce, or modify hazardous plant fuels or exotic plant species, or to modify habitats (e.g., remove beaver dams). 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-54 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Aquatic Habitat Modifications Activities such as stream bank restoration, passage structures, fish barriers, or removal of obstacles which result in physical modification of aquatic habitats to maintain or restore native fish species. (See section 2.4.10.1) 

May be allowed*; consistent with section 2.3.4. See also section 2.4.19 

May be allowed; consistent with section 2.3.5 

May be allowed May be allowed 

Fire Management—Prescribed Fires Fire ignited by management actions to meet specific management objectives. (See section 2.4.10.2) 

May be allowed*; see section 2.3.4 

May be allowed May be allowed May be allowed 

Fire Management—Wildland Fire Use The planned use of naturally occurring fires to meet management objectives. (See section 2.4.10.2) 

May be allowed* May be allowed May be allowed May be allowed 

Fire Management—Fire Suppression Management actions intended to protect identified resources from a fire, extinguish a fire, or alter a fire’s direction of spread. (See section 2.4.10.2) 

Allowed Allowed Allowed Allowed 

Non-native and Pest Plant Control Monitoring, extirpation, control, removal and/or relocation, and other management practices for pest and nonnative plant species. (See section 2.4.11.8) 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Water Quality and Quantity ManagementMonitoring of water quality and quantity to identify baseline data and for management purposes; includes installation of gauging stations. (See section 2.4.9.2)

Allowed*; see section 2.4.19 

Allowed Allowed Allowed 

Fish and Wildlife Population Management Reintroduction of Species The reintroduction of native species to restore natural diversity of fish, wildlife, and habitats. (See section 2.4.11.6) 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 

Fish and Wildlife Control The control, relocation, sterilization, removal, or other management of native species including predators, to maintain natural diversity of fish, wildlife, and habitats; favor other fish or wildlife populations; protect reintroduced, threatened, or endangered species or to restore depleted native populations. (See section 2.4.11.7) 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 

Non-native Species Management The removal or control of non-native species (including predators). (See section 2.4.11.8) 

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-56 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Pest Management and Disease Prevention and Control Relocation or removal of organisms that threaten human health or survival of native fish, wildlife, or plant species. Management practices directed at controlling pathogens that threaten fish, wildlife, and people, such as rabies and parasite control. (See section 2.4.11.9)

May be allowed*; see section 2.4.19 

May be allowed May be allowed May be allowed 

Fishery Restoration Actions taken to restore fish access to spawning and rearing habitat, or actions taken to restore populations to historic levels. Includes harvest management, escapement goals, habitat restoration, stocking, egg incubation boxes, and lake fertilization. (See section 2.4.11.10) 

May be allowed* May be allowed May be allowed May be allowed 

Fishery Restoration Facilities Fisheries facilities may be permanent or temporary and may include hatcheries, fish ladders, fish passages, fish barriers, and associated structures. (See sections 2.4.11.10 and 2.4.20.1) 

May be authorized* 

May be authorized May be authorized May be authorized 

Fishery Enhancement Activities applied to a fish stock to supplement numbers of harvestable fish to a level beyond what could be naturally produced based upon a determination or reasonable estimate of historic levels. (See section 2.4.11.11) 

May be allowed*; consistent with section 2.4.19 

May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Fishery Enhancement Facilities May be permanent or temporary and may include hatcheries, egg incubation boxes, fish ladders, fish passages, fish barriers, and associated structures. (See sections 2.4.11.11 and 2.4.20.1) 

May be authorized* 

May be authorized May be authorized May be authorized 

Native Fish Introductions Movement of native fish species within a drainage on the Refuge to areas where they have not historically existed. (See section 2.4.11.6) 

May be allowed* May be allowed May be allowed May be allowed 

Non-native Species Introductions Introduction of species not naturally occurring within the Refuge. (See section 2.4.11.6) 

Not allowed Not allowed Not allowed Not allowed 

SUBSISTENCE 

(See section 2.4.12) 

Subsistence Activities Fishing, Hunting, Trapping, and Berry Picking The taking of fish and wildlife and other natural resources for personal consumption, as provided by law. 

Allowed Allowed Allowed Allowed 

Collection of House Logs and FirewoodHarvesting live standing timber greater than 6 inches diameter at breast height for personal or extended family use. 

May be authorized May be authorized May be authorized May be authorized 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-58 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Collection of House Logs and FirewoodHarvesting live standing timber between 3 and 6 inches diameter at breast height for personal or extended family use. 

20 trees or less per year allowed; more than 20 trees per year may be authorized; consistent with section 2.4.12 

20 trees or less per year allowed; more than 20 trees per year may be authorized; consistent with section 2.4.12 

20 trees or less per year allowed; more than 20 trees per year may be authorized; consistent with section 2.4.12 

20 trees or less per year allowed; more than 20 trees per year may be authorized; consistent with section 2.4.12 

Collection of Plant Materials Harvesting trees less than 3 inches diameter at breast height, dead standing or downed timber, grass, bark, and other plant materials used for subsistence purposes. 

Allowed Allowed Allowed Allowed 

Temporary Facilities Establishment and use of tent platforms, shelters, and other temporary facilities and equipment directly related to the taking of fish and wildlife. (See section 2.4.15.2) 

Tent platforms may be authorized; all others may be allowed 

Tent platforms may be authorized; all others may be allowed 

Tent platforms may be authorized; all others may be allowed 

Allowed 

Subsistence Cabins – See Cabins (See also section 2.4.15.1) Subsistence Access – subject to reasonable regulations under provisions of section 811 of ANILCA (See section 2.4.12.1) Use of snowmobiles, motorboats, fourwheelers, and other means of surface transportation traditionally employed for subsistence purposes. 

Allowed Allowed Allowed Allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

ACCESS 

(See sections 2.4.12.1 and 2.4.13) 

Restrictions subject to provisions of section 1110 of ANILCA as applicable; see also Subsistence Access section ab

Foot Allowed Allowed Allowed Allowed Dogs and Dog Teams Allowed Allowed Allowed Allowed Other Domestic Animals Includes horses, mules, llamas, etc. (certified weed-free feed required). 

Allowed Allowed Allowed Allowed 

Nonmotorized Boats Includes canoes, kayaks, rafts, etc. 

Allowed Allowed Allowed Allowed 

Motorized Use of snowmobiles, motorboats, airplanes, and nonmotorized surface transportation methods for traditional activities and for travel to and from villages and home sites. 

Allowed Allowed Allowed Allowed 

Highway Vehicles Not allowed Not allowed Not allowed May be allowed on 

designated roads 

Off-Road Vehicles (All-Terrain Vehicles) Includes air boats and air-cushion vehicles. (See section 2.4.13.2) 

Not allowed; with exceptions consistent with section 2.4.12 

Not allowed; with exceptions consistent with section 2.2.12.2 

Not allowed; with exceptions consistent with section 2.4.12.2 

May be allowed 

Helicopters Includes all rotary-wing aircraft. (See section 2.4.13.3) 

May be authorized; consistent with sections 2.3.4 and 2.4.19 

May be authorized May be authorized May be authorized 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-60 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

PUBLIC USE, RECREATION, and OUTREACH ACTIVITIES 

Also see ACCESS and Commercial Recreation sections. 

Hunting, Fishing, Wildlife Observation, Wildlife Photography, Interpretation and Environmental Education Note: All activities listed are priority public uses. (See sections 2.4 and 2.4.14)

Allowed Allowed Allowed Allowed 

Trapping, Walking, Hiking, Camping at Undeveloped Sites, and Dog Sledding (See sections 2.4 and 2.4.14)

Allowed Allowed Allowed Allowed 

General Photography See also COMMERCIAL USES. (See sections 2.4.1 and 2.4.14) 

Allowed Allowed Allowed Allowed 

Outreach Activities (See sections 2.4.1 and 2.4.16) 

Allowed Allowed Allowed Allowed 

Public Use and Recreation Facilities – level of development is consistent with management intent of the category (See section 2.All Weather Roads And associated developments including bridges. 

Not allowed Not allowed Not allowed May be allowed 

Unimproved Roads Note: while unimproved roads are not allowed in Minimal management, Wilderness, and Wild Rivers, roads may exist. In these management categories, the roads would not be designated for use or maintained. 

Not allowed Not allowed Not allowed May be allowed 

Designated Off-Road Vehicle (AllTerrain Vehicle) Trails and Routes Not allowed May be allowed Not allowed May be allowed Roadside Exhibits and Waysides Not applicable Not applicable Not applicable May be allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Constructed and Maintained Airstrips Not allowed Not allowed Not allowed May be allowed Cleared Landing Strips and Areas Includes unimproved areas where airplanes land. Minor brush cutting or rock removal by hand is allowed for maintenance. 

Existing strips allowed to remain*; new strips not allowed; see section 2.4.19 

May be allowed May be allowed May be allowed 

Constructed Hiking Trails Includes bridges, boardwalks, trailheads, and related facilities. 

May be allowed* May be allowed May be allowed May be allowed 

Designated Hiking Routes Unimproved and unmaintained trails; may be designated by signs, cairns, and/or on maps. 

Allowed Allowed Allowed Allowed 

Boat Launches and Docks Designated sites for launching and storing watercraft or tying up a float plane. 

May be allowed* May be allowed May be allowed May be allowed 

Visitor Contact Facilities A variety of staffed and unstaffed facilities providing information on the Refuge and its resources to the public; facilities range from visitor centers to kiosks and signs. (See section 2.4.15) 

Generally not allowed*; see sections 2.3.4 and 2.4.19 

May be allowed May be allowed May be allowed 

Campgrounds Developed sites accessible by highway vehicles. 

Not applicable Not applicable Not applicable May be allowed 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-62 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Hardened Campsites Areas where people can camp that are accessible by vehicle or on foot but where the only facilities provided are for public health and safety and/or resource protection; may include gravel pads for tents, hardened trails, and/or primitive toilets. (See section 2.4.15) 

Allowed*; consistent with section 2.4.19 

Allowed Allowed Allowed 

Temporary Facilities Includes tent frames, caches, and other similar or related facilities; does not include cabins. See also SUBSISTENCE, COMMERCIAL USES, and Administrative Facilities. (See section 2.4.15.2) 

Tent platforms may be authorized; all others may be allowed 

Tent platforms may be authorized; all others may be allowed 

Tent platforms may be authorized; all others may be allowed 

Tent platforms may be authorizedall others may be allowed 

Cabins – also other related structures such as outdoor toilets, food caches, storage sheds, and fish drying racks (See section 2.4.15.1) Public Use Cabin A cabin administered by the Service and available for use by the public; intended only for short-term public recreational use and occupancy. 

Existing cabins allowed to remain*; new cabins may be allowed; consistent with section 2.4.19 

Existing cabins allowed to remain; new cabins may be allowed 

Existing cabins allowed to remain; new cabins may be allowed 

Existing cabins allowed to remain; new cabins may be allowed 

Administrative Cabin Any cabin primarily used by refuge staff or other authorized personnel for the administration of the Refuge. (See section 2.4.20.1) 

May be allowed*; consistent with section 2.4.19 

May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Subsistence Cabin Any cabin necessary for health and safety and to provide for the continuation of ongoing subsistence activities; not for recreational use. 

Existing cabins allowed to remain; new cabins may be authorized; consistent with section 2.4.19 

Existing cabins allowed to remain; new cabins may be authorized 

Existing cabins allowed to remain; new cabins may be authorized 

Existing cabins allowed to remain; new cabins may be authorized 

Commercial Cabin Any cabin which is used in association with a commercial operation, including but not limited to commercial fishing activities and recreational guiding services. 

Existing cabins allowed to remain; new cabins not allowed consistent with section 2.4.19 

Existing cabins allowed to remain; new cabins may be authorized 

Existing cabins allowed to remain; new cabins may be authorized 

Existing cabins allowed to remain; new cabins may be authorized 

Other Cabins Cabins associated with authorized uses by other government agencies. 

May be authorized; consistent with section 2.4.19 

May be authorized May be authorized May be authorized 

Administrative Facilities (See section 2.4.20.1) Administrative Field Camps Temporary facilities used by refuge staff and other authorized personnel to support individual (generally) field projects; may include, but not limited to, tent frames and temporary/portable outhouses, shower facilities, storage/maintenance facilities, and caches. 

May be allowed* May be allowed May be allowed May be allowed 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-64 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Administrative Field Sites Permanent facilities used by refuge staff or other authorized personnel for the administration of the Refuge. Includes administrative cabins and related structures (see Cabins) and larger multi-facility administrative sites necessary to support ongoing field projects, research, and other management activities. Temporary facilities, to meet short-term needs, may supplement the permanent facilities at these sites. 

Use of existing sites allowed, including replacement of existing facilities as necessary; new sites may be allowed*; consistent with sections 2.3.4 and 2.4.19 

Use of existing sites allowed including replacement of existing facilities as necessary; new sites may be allowed 

Use of existing sites allowed including replacement of existing facilities as necessary; new sites may be allowed 

Use of existing sites allowed including replacement of existing facilities as necessary; new sites may be allowed 

Refuge Administrative Office Complex Facilities necessary to house refuge operations, outreach, and maintenance activities, and associated infrastructure; includes staff offices, storage, maintenance, parking lots, and other similar facilities. 

Not allowed Not allowed Not allowed Not allowed 

Hazardous Materials Storage Sites, including appropriate structures and equipment, necessary for the storage and transfer of fuels and other hazardous materials used for administrative purposes; must be in compliance with all federal and State requirements. 

May be allowed May be allowed May be allowed May be allowed 

Residences Residential housing for refuge staff and their families; includes single and multifamily dwellings. 

Not allowed Not allowed Not allowed Not allowed 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Bunkhouses Quarters to house temporary and similar employees, volunteers, visitors, and other agency personnel. 

Not allowed Not allowed Not allowed May be allowed 

Aircraft Hangars and Facilities for Storage of Aircraft 

Not allowed Not allowed Not allowed Not allowed 

Boat Launches and Docks Designated sites for launching and storing watercraft or tying up a float plane. 

May be allowed* May be allowed May be allowed May be allowed 

Radio Repeater Sites Sites used to maintain radio communications equipment; may include helispots for access. 

May be allowed* May be allowed May be allowed May be allowed 

COMMERCIAL USES 

Except as noted, a special use permit or other authorization is required for economic use of a refuge. 

Commercial Recreation – includes all forms of guiding, including those operated by nonprofit, educational, and other noncommercial g(See section 2.4.17.1) Guiding and Outfitting May be authorized May be authorized May be authorized May be authorized Transporting May be authorized May be authorized May be authorized May be authorized Fixed-Wing Air Taxis May be authorized May be authorized May be authorized May be authorized Helicopter Air Taxis Not allowed; with 

exceptions consistent with section 2.4.13.3 

May be authorized May be authorized May be authorized 

Bus and Auto Tours Not applicable Not applicable Not applicable May be authorized Mineral Exploration (See section 2.4.17.2) See section 2.4.21 for information on the Alaska Mineral Resource Assessment Program. 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-66 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Surface Geological Studies Includes surface rock collecting and geological mapping activities (includes helicopter or fixed-wing access). 

Not allowed May be authorized May be authorized May be authorized 

Geophysical Exploration and Seismic Studies Examination of subsurface rock formations through devices that set off and record vibrations in the earth. Usually involves mechanized surface transportation, but may be helicopter supported; includes studies conducted for the Department of the Interior. 

Not allowed May be authorized May be authorized May be authorized 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Core Sampling Using helicopter transported motorized drill rig to extract subsurface rock samples; does not include exploratory wells; includes sampling conducted for Department of the Interior. 

Not allowed May be authorized May be authorized May be authorized 

Other Geophysical Studies Helicopter-supported gravity and magnetic surveys and other minimal impact activities that do not require mechanized surface transportation. 

Not allowed May be authorized May be authorized May be authorized 

Mineral Development (see section 2.4.17.2) Oil and Gas Leasing Leasing, drilling, and extraction of oil and gas for commercial purposes. Includes all associated above and below ground facilities. 

Not allowed Not allowed Not allowed Not allowed 

Sale of Sand, Gravel, and Other Common Variety Minerals Extraction of sand, gravel, and other saleable minerals for commercial purposes; includes commercial use by federal, State, and local agencies. 

Not allowed Not allowed Not allowed May be authorized 

Other Mineral Leasing Includes the extraction of coal, geothermal resources, potassium, sodium, phosphate, sulfur, or other leasable minerals for commercial purposes. For cases of national need, see section 2.4.17.2. 

Not allowed Not allowed Not allowed Not allowed 
Chapter 2: Goals and Objectives, Management Direction 

* Subject to minimum requirements analysis 2-68 Koyukuk/Nowitna National Wildlife Refuge Revised Compre

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Mining of Hardrock Minerals Development of valid (pre-ANILCA) mining claims (lode, placer, and mill sites) on refuge lands for the purpose of extracting hardrock minerals. There are no valid claims on the Refuge. 

Not allowed Not allowed Not allowed Not allowed 

Other Commercial Activities Commercial Filming, Videotaping, and Audio taping (See section 2.4.17.6) 

May be authorized May be authorized May be authorized May be authorized 

Grazing (See section 2.4.17.7) 

Not allowed Not allowed Not allowed Not allowed 

Agriculture (Commercial) (See section 2.4.17.7) 

Not allowed Not allowed Not allowed Not allowed 

Commercial Fishery Support Facilities At or below 1979 levels. (See section 2.4.17.3) 

Allowed Allowed Allowed Allowed 

Commercial Fishery Support Facilities Above 1979 levels. (See section 2.4.17.3)

Not allowed May be authorized May be authorized May be authorized 

Seafood Processing (See section 2.4.17.3) 

Not allowed Not allowed Not allowed Not allowed 

Aquaculture and Mariculture Support Facilities (See section 2.4.17.3) 

Not allowed Not allowed Not allowed Not allowed 

Commercial Timber and Firewood Harvest (See section 2.4.17.4) 

Not allowed May be authorized May be authorized May be authorized 

Commercial Gathering of Other Refuge Resources (See section 2.4.17.5)

Not allowed Not allowed Not allowed May be authorized 
Chapter 2: Goals and Objective

* Subject to minimum requirements analysis Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

ACTIVITY MANAGEMENT of 

WILDERNESS 

MANAGEMENT of 

WILD RIVERS 

MINIMAL 

MANAGEMENT 

MODERATE 

MANAGEMENT 

Transportation and Utility Systems Includes transmission lines, pipelines, telephone and electrical power lines, oil and gas pipelines, communication systems, roads, airstrips, and other necessary related facilities. Does not include facilities associated with onrefuge oil and gas development. (See section 2.4.13.7) 

May be authorized by Congress 

May be authorized; would require a plan amendment 

May be authorized; would require a plan amendment 

May be authorized 

Navigation Aids and Other Facilities Includes air and water navigation aids and related facilities, communication sites and related facilities, facilities for national defense purposes and related air/water navigation aids, and facilities for weather, climate, and fisheries research and monitoring; includes both private and government facilities. (See section 2.4.13.11) 

May be authorized* 

May be authorized May be authorized May be authorized 

Major Hydroelectric Power Development Hydroelectric dams creating a change in stream flow with an elevation change and reservoir behind the dam. (See section 2.4.17.7) 

Not allowed Not allowed Not allowed Not allowed 

Small Hydroelectric Power Development

Hydroelectric generation by low-head or in-stream structures that do not change the flow of the river. (See section 2.4.17.7) 

Not allowed Not allowed Not Allowed May be authorized