Chapter 4: Implementation and Monitoring 

4. Implementation and Monitoring 

Implementation of the Koyukuk, Northern Unit Innoko, and Nowitna National Wildlife Refuge 

Comprehensive Conservation Plan (Plan) will be accomplished, in part, through various step-down 

plans (section 4.1). Each step-down plan has its own program focus, identifying and directing the 

implementation of strategies designed to achieve objectives outlined in the Plan (chapter 2, section 

2.1). Implementation also includes identifying partnership opportunities that assist in 

accomplishing refuge objectives (see section 4.2). 

Monitoring the progress of implementing the Plan is accomplished by a variety of methods (section 

4.3). Evaluation of monitoring results may lead to an amendment or a revision of the Plan (section 

4.4). 

4.1 Step-Down Plans 

Step-down management plans are plans that deal with specific management topics, such as the 

inventorying and monitoring of wildlife populations or the management of fire on the Refuge. They 

describe specific, topic-related management strategies and implementation schedules and provide 

the details necessary to implement the goals and objectives in this revised Plan. Step-down plans 

identified for the Refuge include the following: 

 Wildlife Survey and Inventory Plan (June 2008) 

 Fisheries Management Plan Nowitna National Wildlife Refuge (1991) 

 Fisheries Management Plan Koyukuk National Wildlife Refuge (1993) 

 Cultural Resource Guide (1996) 

 Koyukuk and Northern Innoko National Wildlife Refuge Fire Management Plan (November 

2005; scheduled to be updated in 2010) 

 Nowitna National Wildlife Refuge Fire Management Plan (December 2004; scheduled to be 

combined with the Koyukuk and Northern Unit Innoko Fire Management Plan and updated 

in 2010) 

 Koyukuk and Nowitna National Wildlife Refuges Media and Community Relations Guide 

(August 2006) 

 Koyukuk/Nowitna Station Safety Plan (February 2004) 

 Occupant Emergency Plan (2005) 

 Spill Prevention Control and Countermeasure Plan (2005) 

 Plan of Study: Water Resources Investigation—Koyukuk National Wildlife Refuge (June 

1998) 

 Plan of Study: Hydrologic Resources Investigation Nowitna National Wildlife Refuge (June 

1998) 

 Wilderness Stewardship Plan (to be prepared within two years of approval of a U.S. Fish 

and Wildlife Service wilderness policy) 

 Land Protection Plan (scheduled to be completed in 2012) 

4.1.1 Wildlife Survey and Inventory Plan 

Wildlife and habitat inventory and monitoring plans have been required by the U.S. Fish and 

Wildlife Service policy for a number of years. Refuge staff prepared the initial habitat inventory 

and monitoring plan in 1991. This plan was updated in June 2008. Recently, the Alaska Region of 

U.S. Fish and Wildlife Service implemented a new policy mandating development of inventory and 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 4-1 
Chapter 4: Implementation and Monitoring 

monitoring plans (I&MP) for each refuge. The policy requires the Refuge to 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. The refuge biological program is scheduled to be 

reviewed January 2010. 

4.1.2 Fisheries Management Plans 

The 1991 Nowitna and 1993 Koyukuk fishery management plans provide a description of habitats 

and fish species known or expected to occur within the Refuge. The plans identify the purposes of 

the Refuge (as defined in ANILCA) as goals, provide objectives for each goal, and list tasks 

designed to meet each objective. Some of the tasks list Alaska Department of Fish and Game as the 

responsible office and may not fall under the jurisdiction of the Refuge, although responsibilities 

may have changed since the fishery management plans were developed. 

Many of the objectives listed in the two fishery management plans have not been addressed or have 

been only partially addressed, primarily due to lack of funding and staffing. Some progress has 

been made in implementing the fish harvest monitoring objectives. Special use permits for 

commercial recreational guided operations include reporting requirements for fish harvest rates. 

The Refuge also continues to coordinate law enforcement efforts with the State throughout the 

salmon season. Monitoring and evaluating subsistence harvest of fish is an ongoing project with the 

Service’s Regional Subsistence Office and the Alaska Department of Fish and Game Commercial 

Fish Division, which focuses on the subsistence harvest of salmon. Harvest information is collected 

by the refuge information technician via personal interviews and Alaska Department of Fish and 

Game permit returns. 

Both fishery management plans were scheduled to be updated every five years. The Nowitna plan 

is 17 years out of date, and the Koyukuk plan is 15 years out of date. There are no immediate plans 

to revise either plan. 

4.1.3 Cultural Resource Guide 

The cultural resource guide assists refuge staff in meeting legal requirements to protect and 

manage the cultural resources of the Refuge. The guide specifies how the cultural resource 

guidance provided by law and regulation, the Service Manual, and the Cultural Resource 

Management Handbook is to be applied to the Refuge. It outlines roles and responsibilities, 

summarizes legislation governing management of cultural resources, and contains information of 

use to management. It describes the current state of knowledge of the prehistory and history of the 

region. It includes a list of projects that would fill in knowledge gaps or complete existing work. 

This guide was completed in 1996 and is scheduled to be updated. 

4.1.4 Fire Management Plan 

The fire management plan (FMP) describes how the Refuge will respond to wildland fire and 

includes management responses for fire management activities (suppression, prescribed fire, and 

wildland fire use). The FMP lists specific management objectives regarding the use of fire. The 

Refuge has been assigned different fire management options based on resource protection needs. 

The FMP identifies Refuge and Bureau of Land Management–Alaska Fire Service 

responsibilities along with interagency fire management coordination. Post-fire monitoring and 

evaluation is an integral part of the FMP. The refuge fire management officer oversees the 

implementation of the FMP. The FMP and fire management options are reviewed and updated 

annually. The Koyukuk/Northern Unit Innoko and Nowitna FMP will be combined and revised 

by 2010. 

4-2 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 4: Implementation and Monitoring 

4.1.5 Media and Community Relations Guide 

This plan provides guidance and refuge information for use by a public information officer in the 

event of a Type I or II incident on the Refuge. 

4.1.6 Station Safety and Occupant Emergency Plans 

These plans focus on providing a safe and healthy environment for employees and visitors. They aim 

to minimize the potential for injury to employees and the public and to prevent property damage. The 

safety plan describes programs that train personnel to deal with the environment factors, work 

materials, and machines that may pose hazards. Its goal is to make safety and environmental health 

an integral part of every task. These plans contain contact persons and phone numbers to be used in 

the event of an emergency and are posted at an accessible location in the refuge office. Both plans are 

periodically reviewed and revised as needed. 

4.1.7 Spill Prevention Control and Countermeasure Plan 

This plan outlines the procedures, methods, and equipment used at the Refuge to comply with 

Environmental Protection Agency oil spill prevention, control, and countermeasure standards; and 

inspection, reporting, training, and recordkeeping requirements. The original plan was 

implemented in 2005. 

4.1.8 Plan of Study: Water/Hydrologic Resources Investigation 

These plans were completed in June 1999 for the Koyukuk and Nowitna. They guide an inventory 

and assessment of refuge water resources. Results of the study will be used to quantify in-stream 

flow water rights for the maintenance and protection of fish and wildlife habitat. Implementation 

will be determined by the availability of funding and staffing. 

4.1.9 Wilderness Stewardship Plan 

A Wilderness Stewardship Plan will be prepared for the Koyukuk Wilderness within two years of 

the Service adopting a national wilderness policy. This plan will provide additional detailed 

guidance for management of the Koyukuk Wilderness. 

4.1.10 Land Protection Plan 

The Refuge Land Protection Plan focuses on private lands within the refuge boundaries with the 

goal of identifying and conserving high-quality habitat on those lands. It provides a framework for 

refuge and private landowner cooperation. Land conservation measures will be pursued only with 

landowners willing to work with the Service and does not obligate the Refuge or landowners to 

undertake any of the identified measures. The Refuge must consider management goals, priorities, 

and availability of funds when approached by private landowners with land conservation proposals. 

This plan is scheduled to be completed in 2012. It will be revised thereafter if changing land status 

warrants revision. 

4.2 Partnership Opportunities 

Partnerships with other organizations are among the ways the Service fulfills the mission 

statement of “working with others to conserve, protect, and enhance fish, wildlife, and plants and 

their habitats for the continuing benefit of the American people”. The Refuge contains several 

different and dynamic ecosystems. Many of the refuge resources are of regional, State, national, 

and international importance. The Service recognizes that the public, organizations, and other 

governmental agencies have interests in the Refuge. Implementation of many refuge programs 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 4-3 
Chapter 4: Implementation and Monitoring 

requires involvement from these interested parties. The Refuge looks for opportunities to 

coordinate activities with the following: 

 State of Alaska 

 Other federal agencies 

 Federal Subsistence Western Interior Regional Advisory Council 

 Migratory Bird Co-management Council 

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

 Gana-A’Yoo (Galena, Koyukuk, Nulato, and Kaltag); K’oyitl’ots’ina, Limited (Hughes and 

Huslia); Dineega (Ruby); and Tozitna, Limited (Tanana) village corporations 

 Tanana Chiefs Conference, Inc. (a regional Native non-profit organization) 

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

 Yukon Koyukuk and City of Galena school districts 

 University of Alaska Fairbanks (UAF), University of Alaska Anchorage (UAA), and the 

University of Alaska Fairbanks museum 

 Nongovernmental organizations (including Friends of Alaska National Wildlife Refuges, 

Alaska Geographic, and Ducks Unlimited) 

 Other groups not listed here 

Refuge biologists routinely cooperate with biologists from the Alaska Department of Fish and Game 

and the Bureau of Land Management (BLM) to assess status and trends of moose on and near the 

Refuge. The Refuge has cooperated with the U.S. Geological Survey, Biological Resources Division, 

on two regional projects (swan marking and banding and moose calf performance on winter range) 

and the Natural Resources Conservation Service (monthly snow depth surveys). A revised land 

cover map and report was developed for the Refuge and surrounding areas in 2002 in cooperation 

with BLM and Ducks Unlimited. The Refuge annually cooperates with the Boreal Partners in 

Flight and Friends of Alaska National Wildlife Refuges. 

Interagency wildland fire cooperation is crucial when undertaking fire management activities. The 

BLM Alaska Fire Service (AFS) provides suppression services for all of the Department of Interior 

agencies in Alaska. AFS is in charge of detecting, monitoring, and suppressing fires on all federal 

and Native-owned lands. 

The Refuge has been awarded Service Challenge Cost-Share Grants, which have focused on activities 

on and near the Refuge and in Galena. Cost-share projects have included Galena Science Camps, cofunding the UAF Interior-Aleutians Yukon-Koyukuk Center at Galena, a solar energy demonstration 

project housed at the Yukon-Koyukuk Center, a swan nesting ecological study, Nogahabara sand 

dunes cultural artifact and beetle surveys, oral history interviews with local trappers, and village 

invasive species workshops. 

Wildlife research is not expected to increase considerably on the Refuge. Public and private 

partners will be routinely sought where mutual research interests exist and study objectives 

are similar. 

4.3 Monitoring and Evaluation 

Monitoring helps the Refuge track the progress being made on implementing the Plan. Results of 

monitoring activities show how objectives are being achieved and progress is being made towards 

accomplishing goals. The Refuge’s I&MP addresses achieving many of the refuge objectives. It 

4-4 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 
Chapter 4: Implementation and Monitoring 

may involve the collection of baseline data which could lead to additional monitoring efforts (see 

chapter 2, section 2.1). Monitoring and evaluation are an integral part of the fire management plan. 

Most of the other step-down plans provide detailed methods for inventorying and monitoring 

activities. Table 4.1 displays possible monitoring indicators, actions to be measured, and possible 

management actions in response to indicators for fish and wildlife, their habitats, plants, 

recreational uses, and contaminants. Activities will be refined as step-down plans are updated. 

Table 4-1. Examples of inventory/monitoring questions and possible management actions. 

Inventory or 

Monitoring 

Question 

Measured 

Characteristics 

Goal(s) of Inventory 

or Monitoring 

Activity 

Possible 

Management 

Actions 

Possible Sampling 

Procedure 

What wildlife and 

plant species occur 

on the Refuge? 

Species, location, 

and density of birds 

Collect baseline 

information 

NA: baseline data. Birds surveyed 

using point count 

method with 

distance estimation 

Species, location, 

and density of small 

mammals 

Collect baseline 

information 

NA: baseline data. Small mammals 

collected using live 

traps 

Species and location 

of terrestrial 

insects 

Collect baseline 

information 

NA: baseline data. Insects collected 

using various trap 

and net methods 

Species, location, 

and density of 

herbaceous and 

woody plants 

Collect baseline 

information 

NA: baseline data. Plants collected 

using various direct 

and random search 

methods 

Habitat information 

associated with bird, 

small mammal, and 

insect data 

Associate different 

habitats with 

various species of 

birds, small 

mammals, and 

insects 

Information will 

eventually allow 

the Refuge to 

better predict how 

habitat 

disturbances may 

affect birds, small 

mammals, and 

insects 

Habitat data 

collected according 

to Service data 

standards 

How many moose 

are on the Refuge, 

and what is their 

population trend? 

Population density Detect changes in 

population levels 

and distribution 

that can affect 

population 

Research potential 

causes of changes 

in populations 

Modify 

recreational and 

subsistence 

harvest regulations 

Aerial surveys to 

determine 

population density 

at 1–3-year 

intervals 

Capture and fit 

with radio 

telemetry collars 

How many wolves 

use the Refuge? 

Number, size, and 

distribution of packs

Detect changes in 

number of packs, 

pack sizes, and 

distribution over 

time 

Research potential 

causes of 

population changes 

Aerial surveys in 

winter 

Capture and fit 

with radio 

telemetry collars 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 4-5 
Chapter 4: Implementation and Monitoring 

4-6 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

Inventory or 

Monitoring 

Question 

Measured 

Characteristics 

Goal(s) of Inventory 

or Monitoring 

Activity 

Possible 

Management 

Actions 

Possible Sampling 

Procedure 

How many beaver 

are on the Refuge? 

Number, 

distribution, and 

size of fall food 

caches 

Detect changes in 

number and sizes of 

active caches 

Research potential 

causes of change 

Modify trapping 

regulations if 

needed 

Aerial surveys 

Aerial photography 

How does fire 

affect refuge 

resources? 

Small mammal 

species diversity 

and population 

density 

Document change in 

small mammal 

communities over 

time 

NA: baseline data Sampling on 

permanent plots 

Plant species 

diversity and 

structure 

Document change in 

plant communities 

and habitats over 

time 

Allows better 

prediction of fire 

effects based on 

refuge-specific 

information 

Collect tree age 

data 

Forest age Document change in 

forest age and types 

over time 

NA: baseline data 

Establish 

permanent plots 

Satellite imagery 

and aerial 

photography 

Fire intensity Map/document the 

different severity 

categories of new 

fires 

NA: baseline data 

Change 

management 

options 

Satellite imagery 

and ground 

truthing 

Are there any 

invasive plants on 

the Refuge? 

Presence of invasive 

plants 

Document location 

and diversity of 

invasive plants 

Eradication Directed searches 

and opportunistic 

observation 

What are the 

trends in goose 

populations on the 

Refuge? 

Number and 

distribution of 

molting interior 

greater Whitefronted and Canada 

geese 

Detect changes in 

goose numbers 

and/or distribution 

Provide data for 

regional 

investigations of 

interior greater 

White-fronted geese

Research potential 

causes of changes 

in numbers 

Modify 

recreational 

harvest regulations 

along flyway 

and/or subsistence 

harvest regulations 

in Alaska 

Aerial line transect 

survey 

Capture and 

release of molting 

White-fronted 

geese 

How many swans 

utilize the Refuge? 

Number of swans 

and cygnets on the 

refuge 

Document number 

and distribution of 

swans and cygnets 

on refuge 

Research potential 

causes of 

population changes 

Aerial line transect 

surveys 

What are the 

trends in land bird 

populations? 

Species and number 

of birds 

Collect data to 

contribute to 

statewide and 

nation-wide 

databases 

Research potential 

causes of 

populations 

changes 

Breeding bird 

survey routes 
Chapter 4: Implementation and Monitoring 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 4-7 

Inventory or 

Monitoring 

Question 

Measured 

Characteristics 

Goal(s) of Inventory 

or Monitoring 

Activity 

Possible 

Management 

Actions 

Possible Sampling 

Procedure 

How many salmon 

migrate up the 

Yukon and 

Koyukuk rivers 

and into refuge 

streams? 

Species and number 

of salmon passing 

through a weir 

Collect data to 

contribute to 

management of 

Yukon River salmon 

fishery 

NA: baseline data Document species, 

numbers, sex ratio, 

and run timing of 

salmon passing a 

specific point 

What parts of the 

Refuge do 

whitefish use on a 

seasonal basis? 

Locations of broad 

and humpback 

whitefish and least 

cisco 

Track movements of 

fish to identify 

migratory patterns, 

including spawning 

and wintering areas. 

Collect 

morphological and 

genetic data on 

whitefish 

NA: baseline data 

Protect important 

seasonal habitats 

Document 

movement of fish 

to off-refuge sites 

Radio telemetry 

What are the 

current levels of 

visitor use on 

refuge lands and 

what are the 

trends? 

Number of visitors 

and parties, lengths 

of stay, sites visited, 

and activities 

occurring on the 

refuge 

Collect baseline 

data 

NA: baseline data Compile 

information from 

guide reports, air 

taxi operator 

reports, and staff 

observations 

Is recreational use 

on the Refuge 

displacing 

subsistence users? 

Number and type of 

displacement 

incidents observed 

or reported 

Collect baseline 

data 

Increase visitor 

education 

Work with guides, 

transporters, and 

subsistence users 

to resolve issues 

Modify stipulations 

on permits 

Collect information 

from local 

residents, guides, 

air taxi operators, 

and staff 

How will stream 

flow be protected 

to meet primary 

refuge purposes? 

Stream discharge Protect water 

quality and quantity 

File and obtain 

water rights with 

the State 

Stream gauging 

year round for a 

minimum of 5 years
Chapter 4: Implementation and Monitoring 

4-8 Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 

Inventory or 

Monitoring 

Question 

Measured 

Characteristics 

Goal(s) of Inventory 

or Monitoring 

Activity 

Possible 

Management 

Actions 

Possible Sampling 

Procedure 

Is the known 

Hogatza River 

mining site leaking 

containments into 

the Koyukuk 

River? 

Water quality 

downstream of 

mining sites 

Collect baseline 

data 

To be determined 

based upon 

findings 

Use standard 

procedures to 

assess water 

quality 

How are visitors 

getting information 

on the Refuge, and 

are they finding 

the information 

they seek? 

Type of information 

requested, 

information sources, 

information lacking 

Collect baseline 

data 

Modify methods of 

providing and 

obtaining 

information to 

increase ease of 

use, sources, and 

types of 

information 

available 

Invite users to 

complete a 

comment 

sheet/survey on the 

refuge web-site 

Ask guides and air 

taxi operators to 

distribute surveys 

to their clients 

Distribute surveys 

at special events; 

staff conversations 

with visitors 

4.4 Plan Amendment and Revision 

Periodic review and change of this revised Comprehensive Conservation Plan and its various stepdown plans will be necessary. As knowledge of refuge resources, users, and uses improves, changes 

in management may be identified. Fish and wildlife population, user groups, adjacent land users, 

and other management considerations change with time, often in unforeseen ways. Challenges also 

may be encountered in trying to implement the Plan. 

Revisions are a necessary part of the adaptive management approach used by the Service. This 

means that objectives and strategies to reach goals can be adjusted. Most of the resulting changes 

will fine-tune the Plan. These changes will not require modification of this document because minor 

changes will be addressed in the more detailed refuge step-down and annual work plans. Once the 

biological program review has been conducted and the Inventory and Monitoring Plan is approved, 

there may be a change in the direction of the refuge biological program. Only if a major change is 

required in management of the Refuge would it be necessary to create a new revised 

Comprehensive Conservation Plan with a new environmental assessment. 

To enable refuge users; adjacent landowners; local, State and federal agencies; and other interested 

parties to express their views on how the Refuge is managed, the Refuge will periodically hold 

meetings or use other informative techniques, such as comment cards and surveys, to solicit 

comments for evaluation purposes. By encouraging public input, the Refuge will be better able to 

serve the public, to determine any potential problems before they occur, and to take immediate 

action to resolve existing problems. 
Chapter 4: Implementation and Monitoring 

Koyukuk/Nowitna National Wildlife Refuge Revised Comprehensive Conservation Plan 4-9 

The Refuge will periodically review public comments, local and State government recommendations, 

staff recommendations, research studies, and other information to determine if revisions to the Plan 

are necessary. If major changes are proposed, public meetings will be held, and a new 

environmental assessment or an environmental impact statement may be necessary. Full review 

and updating of this Plan will occur approximately 15 years after its approval. 

4.5 Funding and Personnel Requirements 

To accomplish the goals and objectives set forth in section 2.1 of this plan and the goals and 

objectives of the step-down plans, additional funding would be needed to fund the additional staff 

and support their programs. Additional staffing identified in this Plan includes: one GS-9 biologist 

(see section 2.1.1 Objective 5), one GS-9/11 fisheries biologist/hydrologist (see section 2.1.1 Objective 

3), one GS9/11 assistant fire management officer (see section 2.13 Objective 5), and one GS-8 refuge 

information technician (see section 2.1.12 Objective 1). The additional cost of this staff (based on FY 

2009 salary rates) would be approximately $187,908 to $208,106, depending upon the grade level of 

incoming staff. The actual cost of supporting their respective fields of work and providing adequate 

office space is estimated to be $80,000 to $100,000 for support costs and up to $250,000 for new office 

space.