U.S. Fish & Wildlife Service

Draft Revised Comprehensive 

Conservation Plan and Environmental 

Impact Statement

Alaska Peninsula and Becharof 

National Wildlife Refuges
U.S. Fish and Wildlife Service Mission Statement 

The mission of the U.S. Fish and Wildlife Service is working 

with others to conserve, protect, and enhance fish, wildlife, 

plants, and their habitats for the continuing benefit of the 

American people. 

Refuge Mission Statement 

The mission of the National Wildlife Refuge System is to 

administer a national network of lands and waters for the 

conservation, management, and, where appropriate, 

restoration of the fish, wildlife, and plant resources and their 

habitats within the United States for the benefit of present 

and future generations of Americans. 

—National Wildlife Refuge System Improvement Act of 1997 

The comprehensive conservation plan details program planning levels 

that are substantially greater than current budget allocations and, as 

such, is for strategic planning and program prioritization purposes only. 

This plan does not constitute a commitment for staffing increases or 

funding for future refuge-specific land acquisitions, construction 

projects, or operational and maintenance increases. 
Draft Revised Comprehensive 

Conservation Plan and 

Environmental Impact Statement 

Alaska Peninsula 

and 

Becharof National Wildlife 

Refuges 

February 2004 

Prepared by 

U.S. Fish and Wildlife Service 

Region 7 

Anchorage, Alaska 

Alaska Peninsula and Becharof U.S. Fish and Wildlife Service 

National Wildlife Refuges Region 7 

P.0. Box 277 1011 East Tudor Rd. 

King Salmon, AK 99613 Anchorage, AK 99503 
Dear Reader, 

This is the Draft Revised Comprehensive Conservation Plan and Environmental Impact 

Statement for the Alaska Peninsula and Becharof National Wildlife Refuges. The final version of 

this document will guide management of these refuges for the next 15 years. This Draft Plan 

outlines three management alternatives and presents our evaluation of the environmental 

consequences of each of those alternatives. 

This document addresses the following three levels of management direction; we are seeking 

your comments on each of these: 

• Regional: Standard management direction for all Alaska refuges (Chapter 2, Sections 2.3–2.5) 

and where and why the management of these Refuges is different from other Alaska refuges 

• Refuge: Proposed management of these Refuges and how the Refuges will respond to issues 

(the alternatives) 

• Project-Specific: The refuge manager’s preliminary reviews of the compatibility of refuge uses 

with refuge purposes (Appendix H, Compatibility Determinations) 

Please provide us with your comments by May 31 2004. This will enable us to analyze and 

respond to your comments and to consider them while we prepare the final plan. Please structure 

your comments so that they alert us to your position on areas of contention. Environmental 

objections that could have been raised at the draft stage may be waived if not raised until after 

the completion of the final plan. Comments on the draft plan should be specific and should 

address the adequacy of the analysis and the merits of the alternatives. 

All comments received from the public will be placed in the Service’s record for this action. Our 

practice is to make comments, including names and home addresses of respondents, available for 

public review during regular business hours. Individual respondents may request that we 

withhold their home addresses from the record, requests that we will honor to the extent 

allowable by law. There also may be circumstances in which we would withhold from the record a 

respondent’s identity, as allowable by law. If you wish us to withhold your name and/or address, 

you must state this prominently at the beginning of your comment. However, we will not consider 

anonymous comments. We will make available for public inspection in their entirety all 

submissions from organizations or businesses and from individuals identifying themselves as 

representatives or officials of organizations or businesses. Comments on the draft plan should be 

mailed, by May 31, 2004, to 

Peter Wikoff, Planning Team Leader 

U.S. Fish and Wildlife Service Division of Refuges 

1011 East Tudor Rd.—Mail stop 231 

Anchorage, AK 99503 

fw7_APB_planning@fws.gov 

Requests for further information should be directed to 

Daryle Lons, Refuge Manager 

Alaska Peninsula/Becharof NWRs 

PO Box 277 

King Salmon, AK 99613 

(907) 246-3339 

daryle_lons@fws.gov 

Public involvement is important to help us develop a high-quality plan. We encourage you to 

review and comment on this draft plan. You may also view the draft plan online at 

www.r7.fws.gov/planning, or contact Peter Wikoff for a printed copy or a CD-ROM disk of the full 

draft plan. 

Thank you for your interest. Your participation will make this a better plan. 
Compatibility Determinations 

Determining compatibility is a key process by which refuge managers decide what uses will be 

permitted on national wildlife refuges. An essential element in the process is providing the public an 

opportunity to provide input for the refuge manager to consider as he or she determines if a use is 

compatible with the purpose for which the refuge was established. 

Compatibility determinations are required for all economic and public-use activities, as well as for 

recreational and educational facilities provided by the refuge and refuge management economic 

activities. Compatibility determinations are not required for refuge management activities such as 

scientific studies or surveys; or historic preservation activities; law enforcement activities; and 

maintenance of refuge management facilities, structures, and improvements. 

Economic uses must contribute to achieving refuge purposes and the mission of the National 

Wildlife Refuge System. 

We reevaluate compatibility determinations for existing wildlife-dependent recreational uses 

when we prepare or revise a comprehensive conservation plan, or every 15 years, whichever is 

sooner. We reevaluate other uses every 10 years, or sooner if conditions change or significant 

new information relative to the use and its effects becomes available. 

As part of the review of this Draft Plan, you are invited to provide relevant information or 

comment on the compatibility determinations for the Alaska Peninsula and Becharof Refuges. A 

discussion of compatibility determinations can be found in Chapter 2, Section 2.3. The analysis in 

Chapter 4 may provide a starting point on which to base your comments. The complete text of 

each draft compatibility determination can be found in Appendix H. 

Public comment on the draft compatibility determinations will be addressed in the final 

determinations to be released with the final Plan. More information on the compatibility process 

can be found at http://alaska.fws.gov/compatibility/. 

Refuge Compatibility List Server 

The Alaska Region Refuge List Server will notify subscribers when any refuge manager in the 

region initiates a compatibility determination and will provide information on how subscribers 

can comment. Subscribers will be notified when determinations are completed and will receive 

information on how to obtain copies. 

To subscribe to this server, send an e-mail message with the word subscribe in the subject line to 

fws-akrefugecompatability-request@lists.fws.gov

For help subscribing or with questions regarding the Alaska Region Refuge List Server, 

please contact George Constantino at (907) 786-3353 (voice) (907) 786-3976 (fax) or 

george_constantino@fws.gov (e-mail). 
 

Alaska Peninsula and Becharof NWR Draft Conservation Plan i 

Contents 

Summary................................................................................................................................. S-1 

Lists of Tables and Figures ...................................................................................................vii 

Abbreviations and Acronyms.................................................................................................. xi 

Glossary ...................................................................................................................................xiii 

1. Introduction ...................................................................................................................1-1 

1.1 Purpose and Need for Action .............................................................................1-2 

1.2 Planning Context..................................................................................................1-3 

1.2.1 The U.S. Fish and Wildlife Service and the 

National Wildlife Refuge System.......................................................1-3 

1.3 Legal and Policy Guidance and State Coordination .......................................1-7 

1.3.1 Legal Guidance .....................................................................................1-7 

1.3.2 Policy Guidance.....................................................................................1-7 

1.3.3 State of Alaska Coordination ..............................................................1-8 

1.4 Refuge Purposes, Vision, and Goals..................................................................1-9 

1.4.1 Refuge Purposes...................................................................................1-9 

1.4.2 Vision Statement.................................................................................1-10 

1.4.3 Refuge Goals........................................................................................1-11 

1.5 Refuge Overview ................................................................................................1-12 

1.5.1 Physical Environment........................................................................1-12 

1.5.2 Biological Resources ..........................................................................1-13 

1.5.3 Human Uses ........................................................................................1-17 

1.6 Special Values.....................................................................................................1-18 

1.6.1 Refuge Characteristics Valued by the Public.................................1-18 

1.6.2 Becharof Refuge (see Figure 1 5).....................................................1-18 

1.6.3 Alaska Peninsula Refuge...................................................................1-21 

1.6.4 Alaska Maritime Refuge ...................................................................1-26 

1.7 The Planning Process........................................................................................1-26 

1.7.1 Design the Planning Process ............................................................1-26 

1.7.2 Initiate Public Involvement and Scoping ........................................1-27 

1.7.3 Determine Significant Issues............................................................1-28 

1.7.4 Develop and Analyze Alternatives ...................................................1-29 

1.7.5 Prepare Draft Plan and Environmental Impact Statement.........1-29 

1.7.6 Prepare and Adopt a Final Plan and 

Environmental Impact Statement ...................................................1-30 

1.7.7 Implement Plan, Monitor, and Evaluate.........................................1-30 

1.7.8 Review and Revise Plan.....................................................................1-30 

1.8 Issues ...................................................................................................................1-30 

1.9 Significant Planning Issues ..............................................................................1-34 

1.9.1 Issue 1. How should we address recreational access to 

remote and sensitive areas? ..............................................................1-35 
Contents 

ii Alaska Peninsula and Becharof NWR Draft Conservation Plan 

1.9.2 Issue 2. How can conflicts between refuge user groups 

be minimized? ......................................................................................1-37 

1.10 References Cited................................................................................................1-38 

2. Refuge Management Direction and Alternatives.....................................................2-1 

2.1 Introduction ..........................................................................................................2-1 

2.2 Refuge Goals and Objectives..............................................................................2-2 

2.3 Regional Management Direction.....................................................................2-13 

2.3.1 Management Emergencies................................................................2-13 

2.3.2 Compatibility Determinations ..........................................................2-13 

2.3.3 Cooperation and Coordination with Others ....................................2-15 

2.3.4 Ecosystem and Landscape ................................................................2-18 

2.3.5 Management of Fish, Wildlife, and Plants......................................2-24 

2.3.6 Subsistence Use Management..........................................................2-30 

2.3.7 Public Access and Transportation Management............................2-33 

2.3.8 Recreation and Other Public Uses ...................................................2-38 

2.3.9 Commercial Use Management..........................................................2-41 

2.3.10 Outreach...............................................................................................2-45 

2.3.11 Management of Areas with Special Designations..........................2-47 

2.3.12 Navigable Waters ...............................................................................2-48 

2.3.13 Land Exchanges and Acquisitions ...................................................2-50 

2.3.14 Environmental Contaminants Identification and Cleanup...........2-51 

2.3.15 Refuge Infrastructure and Administration.....................................2-51 

2.3.16 Refuge Management Step-Down Plans...........................................2-53 

2.3.17 Management of Selected Lands .......................................................2-54 

2.3.18 Cooperative Management..................................................................2-54 

2.4 Management Categories ...................................................................................2-54 

2.4.1 Intensive Management ......................................................................2-55 

2.4.2 Moderate Management......................................................................2-55 

2.4.3 Minimal Management ........................................................................2-59 

2.4.4 Wild and Scenic Rivers Management ..............................................2-59 

2.4.5 Management of Designated Wilderness..........................................2-60 

2.5 Summary of Management Direction ...............................................................2-62 

2.6 Process Employed to Develop Alternatives...................................................2-85 

2.7 Elements Common to All Alternatives ...........................................................2-85 

2.8 Alternatives Considered, But Eliminated from Detailed Study .................2-86 

2.8.1 Access Restrictions.............................................................................2-87 

2.8.2 Activity Restrictions...........................................................................2-87 

2.8.3 Special Area Designations.................................................................2-88 

2.9 Alternative 1— Continue Current Management...........................................2-88 

2.9.1 Management Direction ......................................................................2-88 

2.9.2 Guided and Unguided Public Use.....................................................2-95 

2.9.3 Facility Development and Use..........................................................2-97 

2.9.4 Information and Education ...............................................................2-99 

2.9.5 Funding and Personnel Requirements..........................................2-100 
Contents 

Alaska Peninsula and Becharof NWR Draft Conservation Plan iii 

2.10 Elements Common to Action Alternatives...................................................2-101 

2.10.1 Wildlife ...............................................................................................2-102 

2.11 Alternative 2 .....................................................................................................2-103 

2.11.1 Management Direction ....................................................................2-105 

2.11.2 Funding and Personnel Requirements..........................................2-106 

2.12 Alternative 3 (Preferred Alternative) ...........................................................2-108 

2.12.1 Management Direction ....................................................................2-108 

2.12.2 Funding and Personnel Requirements..........................................2-112 

2.13 Summary Comparison of Alternatives..........................................................2-113 

2.14 References Cited..............................................................................................2-115 

3. Affected Environment ..................................................................................................3-1 

3.1 Geographic and Ecosystem Setting ..................................................................3-1 

3.1.1 Land Status ...........................................................................................3-1 

3.1.2 Physical Environment..........................................................................3-9 

3.2 Biological Environment.....................................................................................3-22 

3.2.1 Ecosystems..........................................................................................3-22 

3.2.2 Vegetation............................................................................................3-31 

3.2.3 Fish and Wildlife.................................................................................3-35 

3.3 Human Environment.........................................................................................3-53 

3.3.1 Local Population and Economy ........................................................3-53 

3.3.2 Subsistence ..........................................................................................3-67 

3.3.3 Cultural Resources .............................................................................3-79 

3.3.4 Recreational Uses...............................................................................3-81 

3.4 Wilderness Values..............................................................................................3-96 

3.4.1 Becharof National Wildlife Refuge ..................................................3-97 

3.4.2 Alaska Peninsula Refuge.................................................................3-101 

3.4.3 Alaska Maritime Refuge..................................................................3-103 

3.4.4 Existing Wilderness Recommendation .........................................3-103 

3.5 River Values......................................................................................................3-105 

3.5.1 Alaska Peninsula Refuge—Ugashik Unit.....................................3-110 

3.5.2 Chignik Unit......................................................................................3-114 

3.6 Refuge Infrastructure and Administration..................................................3-117 

3.6.1 Facilities.............................................................................................3-117 

3.6.2 Staffing ...............................................................................................3-118 

3.7 References Cited..............................................................................................3-122 

4. Environmental Consequences.....................................................................................4-1 

4.1 Introduction ..........................................................................................................4-1 

4.1.1 Setting the Stage for the Analysis .....................................................4-2 

4.2 Alternative 1 Current Management..................................................................4-3 

4.2.1 Effects on Biological Resources .........................................................4-4 

4.2.2 Effects on Human Environment ........................................................4-8 

4.2.3 Effects on Wilderness Values and Character of the 

Becharof Wilderness ..........................................................................4-18 
Contents 

iv Alaska Peninsula and Becharof NWR Draft Conservation Plan 

4.2.4 Cumulative Effects .............................................................................4-18 

4.3 Alternative 2........................................................................................................4-20 

4.3.1 Biological Resources...........................................................................4-20 

4.3.2 Human Environment..........................................................................4-25 

4.3.3 Effects on Wilderness Values and Character of the 

Becharof Wilderness Area.................................................................4-29 

4.3.4 Cumulative Effects .............................................................................4-29 

4.4 Alternative 3 Preferred Alternative................................................................4-31 

4.4.1 Biological Resources...........................................................................4-31 

4.4.2 Human Environment..........................................................................4-34 

4.4.3 Effects on Wilderness Values and Character of the 

Becharof Wilderness Area.................................................................4-39 

4.4.4 Cumulative Effects .............................................................................4-39 

4.5 Relationship Between Short-Term Uses of the Environment and 

Long-Term Productivity ...................................................................................4-39 

4.6 Irreversible and Irretrievable Commitment of Resources..........................4-40 

4.7 Environmental Justice ......................................................................................4-41 

4.8 Section 810 Evaluation ......................................................................................4-41 

4.9 Summary Comparison of Environmental Effects.........................................4-42 

4.9.1 Definition of Terms.............................................................................4-42 

4.10 References Cited................................................................................................4-46 

5. Evaluation of the Alternatives.....................................................................................5-1 

5.1 Evaluation Criteria ..............................................................................................5-1 

5.2 Response to Refuge Purposes............................................................................5-2 

5.3 Response to National Wildlife Refuge System Mission .................................5-2 

5.4 Response to Refuge Goals ..................................................................................5-2 

5.5 Response to Issues...............................................................................................5-2 

5.5.1 Access to Remote or Sensitive Areas.................................................5-2 

5.5.2 User Conflicts........................................................................................5-3 

5.6 Biological Integrity and Ecosystem Management..........................................5-3 

5.7 Agreement with ADF&G Management Plans.................................................5-4 

6. Implementation and Monitoring.................................................................................6-1 

6.1 Step-Down Plans..................................................................................................6-1 

6.2 Partnership Opportunities..................................................................................6-4 

6.3 Monitoring and Evaluation.................................................................................6-6 

6.4 Plan Amendment and Revision ........................................................................6-12 

7. Consultation and Coordination with Others..............................................................7-1 

7.1 Consistency with the Alaska Coastal Management Program .......................7-1 

7.1.1 Alaska Coastal Management Program Policies ...............................7-1 

7.1.2 Lake and Peninsula Borough Coastal Management Plan ..............7-3 

7.1.3 Aleutians East Borough Coastal Management Program ...............7-4 

7.1.4 Kodiak Island Borough Coastal Management Program.................7-5 

7.2 Section 7 Compliance...........................................................................................7-5 
Contents 

Alaska Peninsula and Becharof NWR Draft Conservation Plan v 

Appendix A: Legal and Policy Guidance; Coordination with the State of Alaska .......A-1 

1.1 Legal Guidance....................................................................................................A-1 

1.1.1 International Treaties.........................................................................A-1 

1.1.2 National Guidance ...............................................................................A-1 

1.2 Policy Guidance ...................................................................................................A-4 

1.2.1 Ecosystem Approach to Management..............................................A-5 

1.2.2 National Management Plans..............................................................A-6 

1.2.3 Regional Management Plans .............................................................A-7 

1.3 State of Alaska Coordination...........................................................................A-10 

1.4 References Cited...............................................................................................A-12 

Appendix B: Master Memorandum of Agreement...........................................................B-1 

Appendix C: Easements, Withdrawals, and Rights of Way............................................C-1 

Appendix D: Species Lists ...................................................................................................D-1

Appendix E: Preparers.........................................................................................................E-1 

Appendix F: Mailing List .....................................................................................................F-1 

Appendix G: SOA Perspective on TUS, etc.......................................................................G-1 

Appendix H: Compatibility Determinations..................................................................... H-1 

Recreational Fishing (wildlife-dependent recreation)........................................... H-1 

Recreational Hunting (wildlife-dependent recreation).......................................... H-9 

Wildlife Viewing, Photography, Environmental Education, and 

Environmental Interpretation (wildlife-dependent recreation)................ H-17 

Commercially Guided Recreational Fishing Services ......................................... H-25 

Commercially Guided Big-Game Hunting Services............................................. H-35 

Commercial Transporter Services.......................................................................... H-45 

Subsistence Activities ............................................................................................... H-53 

Reburial of Archaeological Human Remains per State and 

Federal Guidelines........................................................................................... H-61 

Scientific Research.................................................................................................... H-67 

State of Alaska Management Activities................................................................. H-73 
Tables and Figures 

Alaska Peninsula and Becharof NWR Draft Conservation Plan vii 

Tables 

Table 1–1. Location and dates of public meetings in 1998 ........................................1-28 

Table 1–2. Locations and dates of public meetings held in March and 

April 1999 ......................................................................................................1-28 

Table 1–3. Locations and dates of public meetings held during 

winter 2000....................................................................................................1-29 

Table 2–1. Activities, public uses, commercial uses, and facilities by 

management category.................................................................................2-65 

Table 2–2. Management category designations in Alternative 1 .............................2-91 

Table 2–3. Budget and staffing needs for Alternative 1..........................................2-101 

Table 2–4. Management category designations in Alternative 2 ...........................2-105 

Table 2–5. Budget and staffing needs for Alternative 2..........................................2-107 

Table 2–6. Management category designations in Alternative 3 ...........................2-111 

Table 2–7. Budget and staffing needs for Alternative 3..........................................2-113 

Table 2–8. Comparison of acreages in the various management categories 

by alternative..............................................................................................2-113 

Table 2–9. Comparison of alternatives.......................................................................2-114 

Table 2–10. Summary of budget staffing needs..........................................................2-114 

Table 3–1. Land status with the Refuges ......................................................................3-2 

Table 3–2. ANCSA village corporations within the Refuges......................................3-3 

Table 3–3. Acreages of ecoregions found on the Refuges and other 

conservation system units...........................................................................3-26 

Table 3–4. Descriptions of cover types on or near the Refuges...............................3-33 

Table 3–5. Major land cover types on or near the Alaska Peninsula 

and Becharof National Wildlife Refuges..................................................3-34 

Table 3–6. Summary of furbearer harvests in all of GMUs 9C and 9E 

from the winter of 1985–1986 through the winter of 1998–1999 ...........3-47 

Table 3–7. Characteristics of communities associated with the Refuges ...............3-57 

Table 3–8. Employment and income attributable to activity on 

Alaska Peninsula and Becharof Refuges..................................................3-64 

Table 3–9. Annual per capita subsistence harvest, in pounds, of edible food.........3-69 

Table 3–10. Number of birds and eggs used by Alaska Peninsula residents...........3-71 

Table 3–11. Harvest and use of caribou in Alaska Peninsula communities..............3-72 

Table 3–12. Harvest and use of moose in Alaska Peninsula communities................3-77 

Table 3–13. Recreational fishing use levels, Becharof and Ugashik systems ..........3-83 

Table 3–14. Average recreational fishing catch and harvest by species, 

1990–1996, Becharof and Ugashik systems .............................................3-84 
Tables and Figures 

viii Alaska Peninsula and Becharof NWR Draft Conservation Plan 

Table 3–15. Existing administrative facilities .............................................................3-119 

Table 3–16. Additional facilities needed to support current 

Refuges programs......................................................................................3-121 

Table 4–1. Summary of environmental consequences by alternative......................4-43 

Table 6–1. Increased inventory and monitoring projects associated with 

the action alternatives ...................................................................................6-7 

Table 6–2. Monitoring indicators for public use, standards, 

and possible actions .......................................................................................6-8 

Table C–1. Mileage of proposed FS-2477 routes within the Refuges .......................C-3 

Figures 

Figure 1–1. Location of Alaska Peninsula and Becharof National 

Wildlife Refuges .............................................................................................1-1 

Figure 1–2. The 16 national wildlife refuges in Alaska .................................................1-4 

Figure 1–3. State of Alaska game management units ...................................................1-9 

Figure 1–4. Generalized land status ...............................................................................1-15 

Figure 1–5. Becharof National Wildlife Refuge ...........................................................1-20 

Figure 1–6. Ugashik Unit, Alaska Peninsula National Wildlife Refuge ...................1-23 

Figure 1–7. Chignik and Seal Cape Units, Alaska Peninsula National 

Wildlife Refuge.............................................................................................1-24 

Figure 2–1. Current management categories ...............................................................2-57 

Figure 2–2. Alternative 1 .................................................................................................2-90 

Figure 2–3. Alternative 2 ...............................................................................................2-104 

Figure 2–4. Alternative 3 (Preferred Alternative).....................................................2-107 

Figure 2–5. Yantarni Bay Moderate Management Area...........................................2-110 

Figure 3–1. Native corporation lands...............................................................................3-5 

Figure 3–2. Ecosystem designations, U.S. Fish and Wildlife Service.......................3-23 

Figure 3–3. Ecoregion designations (Nowacki et al. 2001) .........................................3-24 

Figure 3–4. Map of conservation units in the region of Alaska Peninsula and 

Becharof Refuges.........................................................................................3-27 

Figure 3–5. Map of the World Wildlife Fund ecoregion designations.......................3-27 

Figure 3–6. Percentage of local residents using and hunting caribou, moose, 

and brown bear.............................................................................................3-72 

Figure 3–7. Estimated community harvest of caribou by 

game management unit...............................................................................3-73 

Figure 3–8. Percentage of households reporting their caribou needs 

were not met in 1996–1997..........................................................................3-74 
Tables and Figures 

Alaska Peninsula and Becharof NWR Draft Conservation Plan ix 

Figure 3–9. Percentage of households reporting their moose needs 

were not met in 1996–1997..........................................................................3-78 

Figure 3–10. Trends in the number of guided sport fishing trips, 

highest-use locations....................................................................................3-85 

Figure 3–11. Trends in air-taxi business .........................................................................3-86 

Figure 3–12. Trends in air-taxi trips ................................................................................3-87 

Figure 3–13. Guided recreational hunt harvest..............................................................3-89 

Figure 3–14. Guided recreational hunting use................................................................3-90 

Figure 3–15. Types of hunt (air taxi), 1988–1997............................................................3-93 

Figure 3–16. Areas with wilderness values .....................................................................3-99 

Figure 3–17. Existing Wilderness recommendation....................................................3-104 

Figure 3–18. Exceptional rivers on the Refuges ..........................................................3-107 

Figure 4–1. Percentage of households reporting their caribou needs 

were not met in 1996–1997..........................................................................4-11 

Figure 4–2. Percentage of households reporting their moose needs 

were not met in 1996–1997..........................................................................4-13 

Figure C–1. Proposed RS 2477 routes.............................................................................C-5 

Figure G–1. Identified TUS and road corridors on the Alaska Peninsula .................G-2 

Figure G–2. Southwest Alaska Area Transportation Plan: 

Alaska Peninsula Corridor ..........................................................................G-3 
Abbreviations and Acronyms 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xi 

Abbreviations and Acronyms 

AAC Alaska Administrative Code 

ACMP Alaska Coastal Management Program 

ADF&G Alaska Department of Fish and Game 

AHRS Alaska Heritage Resource Survey 

ANCSA Alaska Native Claims Settlement Act 

ANHA Alaska Natural History Association 

ANILCA Alaska National Interest Lands Conservation Act 

ANSI American National Standards Institute 

ATV all-terrain vehicle 

BIA Bureau of Indian Affairs 

BLM U.S. Bureau of Land Management 

CE categorical exclusion 

CFR Code of Federal Regulations 

cfs cubic feet per second 

cfs/mi2

 cubic feet per second per square mile 

CRSA coastal resources service area 

DLP defense of life or property 

DNR Alaska Department of Natural Resources 

EA environmental assessment 

EIS environmental impact statement 

EPA Environmental Protection Agency 

FAA Federal Aviation Administration 

fps feet per second 

FRWR Federal Reserved Water Rights 

GIS geographic information systems 

GMU game management unit 

KSVC King Salmon Visitor Center 

LCP land conservation plan 

MAPS Monitoring Avian Productivity and Survivorship 

mg/L milligrams per liter 

NAPCH Northern Alaska Peninsula caribou herd 

NEPA National Environmental Policy Act 

NWR National Wildlife Refuge 

ORV off-road vehicle 

PUMP public use management plan 

RONS Refuge Operational Needs System 

Service U.S. Fish and Wildlife Service 

System National Wildlife Refuge System 

TEA-21 Transportation Equity Act for the 21st Century 

TUS transportation and utility system 

USGS U.S. Geological Survey
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xiii 

Glossary 

air transporter An air taxi operator licensed by the Federal Aviation 

Administration who flies people to/from and/or within the 

Refuges. Transporters must have special-use permits to operate 

on the refuge. 

allowed Activity, use, or facility is allowed under existing National 

Environmental Policy Act (NEPA) analysis, a specific 

compatibility determination, and compliance with all applicable 

laws and regulations of the Service, other Federal agencies, and 

the State of Alaska. 

not allowed Activity, use, or facility is not allowed. 

alternatives Different ways to resolve issues, achieve refuge purposes, meet 

refuge goals, and contribute to the National Wildlife Refuge 

System mission. Alternatives provide different options to 

respond to major issues identified during the planning process.

“No Action Alternative” The current management direction. With this alternative, no 

change from the current comprehensive conservation plan 

would be implemented. 

“Preferred Alternative” A proposed action in the NEPA document for the 

comprehensive conservation plan identifying the alternative 

that the Service believes best achieves planning unit purposes, 

vision, and goals; helps fulfill the Refuge System mission; 

maintains and, where appropriate, restores the ecological 

integrity of each refuge and the Refuge System; addresses the 

significant issues and mandates; and is consistent with 

principles of sound fish and wildlife management.

angler hour One person fishing for one hour with recreational fishing gear 

(e.g., rod and reel). 

archaeological resource Any material remains of past human life or activities that are of 

archaeological interest. Materials that are capable of providing 

understanding of past human behavior, cultural adaptation, and 

related topics through the application of scholarly or scientific 

techniques. 

authorized Activity, use, or facility allowed upon issuance of a special-use 

permit or other authorization.
Glossary 

xiv Alaska Peninsula and Becharof NWR Draft Conservation Plan 

big-game guide outfit Means to provide, for compensation or with the intent or with an 

agreement to receive compensation, big-game commercial 

hunting services in the field; a guide outfit includes 

accompanying or being present with a big-game hunter in the 

field, either personally or through an assistant; guide-outfit 

does not include the provision of transportation to, from, or in 

the field if the person providing the transportation and the 

person being transported do not stalk, pursue, track, kill or 

attempt to kill big game during the provision of transportation. 

big-game guide A big-game guide-outfitter is a person who has special-use 

permit to guide on a refuge and is licensed by the State of 

Alaska to provide services, equipment, or facilities to a big-game 

hunter in the field. A big-game guide accompanies or is present 

with, personally or through an assistant, the hunter in the field. 

big-game outfitter A big-game outfitter is a person who has special-use permit to 

provide services on the refuge and who provides services, 

supplies, or facilities to a big-game hunter in the field but does 

not accompany nor is present with the hunter in the field. 

biological diversity The variety of life, including the variety of living organisms, the 

genetic differences among them, and the communities in which 

they occur (USFWS, 602 FW 1.6). 

biological integrity Biotic composition, structure, and functioning at the genetic, 

organism, and community levels consistent with natural 

conditions, including the natural biological processes that shape 

genomes, organisms, and communities (USFWS, 602 FW 1.6). 

campsite hardening Actions undertaken to increase the durability of a campsite 

through manipulation such as placing gravel on a place to pitch 

a tent or trails within the campsite. Does not include facilities 

such as outhouses, picnic tables, etc., normally associated with 

campgrounds. 

categorical exclusion 

(CE, CX, CATEX, CATX) A category of actions that do not individually or cumulatively 

have a significant effect on the human environment and have 

been found to have no such effect in procedures adopted by a 

Federal agency pursuant to the National Environmental Policy 

Act (40 CFR 1508.4). 

commercial recreational use Recreational use of lands, waters, and resources for business or 

financial gain; includes guided recreational fishing, guided 

recreational hunting, other guided recreation, and air-taxi 

services. 
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xv 

compatible use A proposed or existing wildlife-dependent recreational use or 

any other use of a refuge that, based on sound professional 

judgment, will not materially interfere with or detract from the 

fulfillment of the mission of the System or the purposes of the 

refuge (USFWS, 603 FW 2 2.6). 

compatibility determination A written determination signed and dated by the refuge 

manager and the Service regional chief signifying that a 

proposed or existing use of a national wildlife refuge is a 

compatible use or is not a compatible use. The director of the 

Service makes this delegation through the regional director 

(USFWS, 603 FW 2 2.6). 

comprehensive 

conservation plan A document that describes the desired future conditions of a 

refuge or planning unit and provides long-range guidance and 

management direction to achieve the purposes of the refuge; to 

help fulfill the mission of the Refuge System; to maintain and, 

where appropriate, restore the ecological integrity of each 

refuge and the Refuge System; to help achieve the goals of the 

National Wilderness Preservation System; and to meet other 

mandates. (USFWS, 602 FW 1.6). 

cultural resources Fragile nonrenewable properties, including any district, site, 

building, structure, or object significant in American history, 

architecture, archaeology, engineering, or culture. These 

resources are significant for information they contain or the 

associations they have with past people, events, or life ways 

(USFWS 1992). 

ecological integrity The integration of biological integrity, natural biological 

diversity, and environmental health; the replication of natural 

conditions (USFWS, 602 FW 1.6). 

ecosystem A biological community functioning together with its 

environment as a unit. 

effects (wildlife and habitat)

long-term effects Effects occurring after or lasting longer than 5 years after 

implementation of the action.

major effects Affecting a regional or local population of a species, or its 

habitat, sufficiently to cause a change in abundance or a change 

in distribution beyond which natural recruitment is not likely to 

return the population to its former abundance within several 

generations. 

minor effects Affecting the survival, reproduction, distribution, or behavior of 

a specific group of individuals of a population in a localized area 

for one generation or less without affecting the regional 

population. Habitat composition and structure remain 
Glossary 

xvi Alaska Peninsula and Becharof NWR Draft Conservation Plan 

unchanged; habitat quality, however, may be affected by 

indirect actions (e.g., disturbance or displacement affecting a 

specific group of individuals that may result in altered use of an 

area). 

moderate effects Affecting a local population, or habitat quality and composition 

in a localized area, sufficiently to cause a change in abundance 

or distribution for more than one generation, but unlikely to 

affect the integrity of the regional population over the long 

term. 

negligible effects Temporary effects that do not result in a change in the survival, 

reproduction, distribution, or behavior of individuals. The ability 

of the habitat to support populations would remain unchanged 

(e.g., temporary disturbance of a specific group of individuals 

that does not result in a change in use of an area). 

short-term effects Effects that are anticipated to occur within five years from 

implementation of the action. 

environmental assessment A concise public document that provides a sufficient analysis for 

determining whether to prepare an environmental impact 

statement (EIS) or a finding of no significant impact. It also aids 

an agency’s compliance with NEPA when no EIS is necessary 

(40 CFR 1508.9). 

environmental health Abiotic composition, structure, and functioning of the 

environment consistent with natural conditions, including the 

natural abiotic processes that shape the environment (USFWS, 

602 FW 1.6). 

environmental impact 

statement A detailed written statement, required by section 102(2)(C) of 

the National Environmental Policy Act (NEPA), analyzing the 

environmental impacts of a proposed action, adverse effects of 

the project that cannot be avoided, alternative courses of action, 

short-term uses of the environment versus the maintenance and 

enhancement of long-term productivity, and any irreversible 

and irretrievable commitment of resources (40 CFR 1508.11). 

floating facilities Floathomes, floatcamps, floating lodges, floating caretaker 

facilities (including mariculture), floating recreational facilities, 

and other floating residential or commercial facilities located on 

shorelands, tidelands, or submerged lands. 

goal A descriptive, open-ended, and often broad statement of desired 

future conditions that conveys purposes but does not define 

measurable units (USFWS, 620 FW 1.6). 

haul-out A beach or other terrestrial coastal location used by marine 

mammals on a regular basis.
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xvii 

helicopter use for 

recreational access Use of helicopters for other than official government 

management activities, search and rescue, or other authorized 

activities.

human food-conditioning A behavior learned when an animal receives food, fish, or 

garbage from people.

human habituation Decrease in natural responsiveness upon repeated exposure to a 

nonthreathening, human stimulus.

issue Any unsettled matter that requires a management decision 

(e.g., a Service initiative, opportunity, resource management 

problem, a threat to the resources of the unit, conflict in uses, 

public concern, or the presence of an undesirable resource 

condition) (USFWS, 602 FW 1.6). 

land use permit An authorization issued by the State of Alaska for use of state 

land. Permits are issued by the Alaska Department of Natural 

Resources, Division of Mining, Land, and Water. 

likelihood 

low Effects are typically not expected, but could occur under 

unusual conditions. 

medium Effects are not expected to occur in the majority of instances. 

high Effects are anticipated to occur as a result of implementing the 

action. 

marine transporter A vessel operator, licensed by the U.S. Coast Guard, who 

provides water transportation services for people. 

minimum-impact camping Camping leaving little or no trace of human occupation. 

Techniques vary widely but include the following: selecting 

durable sites (such as gravel bars), proper disposal of human 

waste, packing out all litter not completely burned, having small 

fires or no fires (using stoves for cooking), leaving vegetation 

intact, removing evidence of campfires, using equipment and 

clothing that blend in with the setting, and being quiet. 

national wildlife refuge A designated area of land, water, or an interest in land or water 

within the National Wildlife Refuge System; does not include 

coordination areas. Find a complete listing of all units of the 

Refuge System in the current Annual Report of Lands Under 

Control of the U.S. Fish and Wildlife Service (USFWS 2003). 
Glossary 

xviii Alaska Peninsula and Becharof NWR Draft Conservation Plan 

native species A species, subspecies, or distinct population that occurs within 

its natural range or natural zone of potential dispersal (i.e., the 

geographic area the species occupies naturally or would occupy 

in the absence of direct or indirect human activity or an 

environmental catastrophe). This definition recognizes that 

ecosystems and natural ranges are not static; they can and do 

evolve over time. Thus a species may naturally extend its range 

onto (or within) a refuge and still be considered native. 

navigable waters Under Federal law, for the purpose of determining ownership of 

submerged lands beneath inland water bodies not reserved at 

the date of statehood, navigable waters are waters used or 

susceptible to being used in their ordinary condition as 

highways of commerce over which trade and travel are or may 

be conducted in the customary modes of trade and travel on 

water. In situations where navigability and the ownership of 

submerged lands are disputed, the final authority for 

determining navigability rests with the Federal courts. 

National Environmental 

Policy Act (NEPA) This act, promulgated in 1969, requires all Federal agencies to 

disclose the environmental effects of their actions, incorporate 

environmental information, and use public participation in the 

planning and implementation of all actions. Federal agencies 

must integrate NEPA with other planning requirements and 

must prepare appropriate NEPA documents to facilitate better 

environmental decision-making (from 40 CFR 1500). The law 

also established the Council on Environmental Quality to 

implement the law and to monitor compliance with the law. 

nonconsumptive uses Recreational activities (e.g., hiking, photography, and wildlife 

observation) that do not involve the taking or catching of fish, 

wildlife, or other natural resources. 

noncommercial 

recreational uses Recreational uses of lands, waters, and resources not for 

business or financial gain—including recreational fishing and 

hunting, floating, camping, hiking, photography, and 

sightseeing. 

nonnative species A species, subspecies, or distinct population that has been 

introduced by humans (intentionally or unintentionally) outside 

its natural range or natural zone of potential dispersal. 

objective A concise statement of what we want to achieve, how much we 

want to achieve, when and where we want to achieve it, and who 

is responsible for the work. Objectives derive from goals and 

provide the basis for determining strategies, monitoring refuge 

accomplishments, and evaluating the success of strategies. 

Objectives should be attainable, time-specific, and measurable 

(USFWS, 602 FW 1.6). 
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xix 

ordinary high water mark The line on the shore established by the fluctuations of water 

and indicated by physical characteristics such as a clear, natural 

line impressed on the bank, shelving, changes in the character 

of soil, destruction of terrestrial vegetation, the presence of 

litter and debris, or other appropriate means that consider the 

characteristics of the surrounding area (33 CFR 328.3[e]). 

permanent base camp A camp with permanent or semipermanent structures that 

serves as a base of operations for recreational fishing, hunting, 

research, or other uses. In general, permanent base camps are 

larger and provide more comfort and amenities than do 

temporary base camps. The facilities cannot be readily 

dismantled or moved and normally remain in place from year to 

year. 

primitive tent camps Portable camps, normally consisting of small tents, used by 

nonguided and guided visitors. They usually remain in place 

when in use and then are disassembled and removed. 

public Individuals, organizations, and groups; officials of Federal, 

state, and local government agencies; Indian tribes; Native 

organizations; and foreign nations. Public may include anyone 

outside the core planning team. It includes those who may or 

may not have indicated an interest in Service issues and those 

who do or do not realize that Service decisions may affect them. 

public involvement A process that offers affected and interested individuals and 

organizations opportunities to become informed about, and to 

express their opinions on, Service actions and policies. In the 

process, these public views are studied thoroughly and are 

thoughtfully considered in shaping decisions for refuge 

management. 

public-use sites Sites identified that are important for public access (including 

important floatplane and wheeled plane landing areas), 

camping, hunting, fishing, or other recreational or public uses. 

public-use management 

plan (PUMP) A public-use management plan (also known as a visitor service 

plan) guides the management of public use on a refuge. Public 

use encompasses both recreational and subsistence uses and 

includes hunting, trapping, fishing, guiding, camping, 

photography, sightseeing, hiking, and wildlife viewing. A PUMP 

summarizes how the public is involved in developing issues and 

alternatives and describes the alternatives developed to manage 

public use. 

purposes of the refuge The purposes specified in or derived from the law, proclamation, 

executive order, agreement, public land order, donation 

document, or administrative memorandum establishing, 

authorizing, or expanding a refuge, refuge unit, or refuge 

subunit (USFWS, 602 FW 1.6). 
Glossary 

xx Alaska Peninsula and Becharof NWR Draft Conservation Plan 

quality (recreation 

opportunities and 

experiences) Quality is defined as the degree to which recreational 

opportunities and related experiences meet the objectives for 

which they are planned and managed. The Service develops 

visitor services programs in consultation with state fish and 

wildlife agencies and stakeholder input based on the following 

criteria: 

 Promotes safety of participants, other visitors, and 

facilities 

 Promotes compliance with applicable laws and regulations 

and responsible behavior 

 Minimizes or eliminates conflict with fish and wildlife 

population or habitat goals or objectives in a plan 

approved after 1997 

 Minimizes or eliminates conflicts with other priority 

general public-use participants 

 Minimizes conflicts with neighboring landowners 

 Promotes accessibility and availability to a broad 

spectrum of American people 

 Promotes stewardship and conservation 

 Promotes public understanding and increases public 

appreciation of America’s natural resources and our role 

in managing and protecting those resources 

 Provides reliable/reasonable opportunity to experience 

wildlife 

 Uses facilities that are accessible and that blend into the 

natural setting 

 Uses visitor satisfaction to help define and evaluate 

programs 

record of decision (ROD) A concise public record of a decision prepared by the Federal 

agency, pursuant to NEPA, that contains a statement of the 

decision, identification of all alternatives considered, 

identification of the environmentally preferable alternative, a 

statement whether all practical means to avoid or minimize 

environmental harm from the alternative selected have been 

adopted (and if not, why they were not), and a summary of 

monitoring and enforcement where applicable for any 

mitigation (40 CFR 1505.2). 

recreational fishing Taking or attempting to take for personal use, not for sale or 

barter, any fish by hook and line held in the hand or attached to 

a pole or rod that is held in the hand or is closely attended.

recreational guide A commercial operator who accompanies clients on the refuge 

for photography, sightseeing, or other activities not related to 

hunting or fishing, for either day or overnight trips. 
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xxi 

recreational hunting Taking or attempting to take for personal use, not for sale or 

barter, a game animal (as defined by the regulatory agency) by 

any means allowed by the regulatory agency. 

recreational fishing or 

hunting guide A commercial operator who accompanies recreational fishing or 

hunting clients on the refuge for day or overnight trips. 

Refuge Operating Needs 

System The Refuge Operating Needs System (RONS) is a national 

database that contains a listing of the unfunded operational 

needs of each refuge. We include projects required to 

implement approved plans and to meet goals, objectives, and 

legal mandates. 

river classifications 

wild rivers Those rivers or sections of rivers that are free of impoundments 

and generally inaccessible except by trail, with watersheds or 

shorelines essentially primitive and waters unpolluted. These 

represent vestiges of primitive America. 

scenic rivers Those rivers or sections of rivers that are free of 

impoundments, with shorelines or watersheds still largely 

primitive and shorelines largely undeveloped, but accessible in 

places by roads. 

recreational rivers Those rivers or sections of rivers that are readily accessible by 

road or railroad, that may have some development along their 

shorelines, and that may have undergone some impoundment or 

diversion in the past. 

special-use permit A U.S. Fish and Wildlife Service authorization required for all 

commercial uses of refuge lands and waters. Permits for Alaska 

Peninsula and Becharof National Wildlife Refuges are issued by 

the Refuges office in King Salmon. 

spike camp A temporary camp set up by a guide or outfitter to provide 

overnight accommodations away from base camp (see primitive 

tent camp). 

sport fishing or hunting See “recreational fishing” or “recreational hunting.” 

step-down management plan A plan that provides specific guidance on management subjects 

(e.g., habitat, public use, fire, safety) or groups of related 

subjects. It describes strategies and implementation schedules 

for meeting comprehensive conservation plan goals and 

objectives. 
Glossary 

xxii Alaska Peninsula and Becharof NWR Draft Conservation Plan 

subsistence uses The customary and traditional uses by rural Alaska residents of 

wild, renewable resources for direct personal or family 

consumption as food, shelter, fuel, clothing, tools, or 

transportation; for the making and selling of handicraft articles 

out of nonedible byproducts of fish and wildlife resources taken 

for personal or family consumption; for barter or sharing for 

personal or family consumption; and for customary trade (from 

Section 803 of the Alaska National Interest Lands Conservation 

Act).

temporary base camp Serves as a center of operations and overnight accommodations 

for guests and guides. A temporary base camp usually remains 

in place for the full season of use (90 to 120 days) but may be 

removed within 48 hours. It generally consists of larger tents 

than do primitive camps and often has tent platforms or other 

rigid floors. A typical camp would include several large guest 

tents, a cook tent, and a few smaller tents for staff use, showers, 

waste disposal, storage, etc. In some cases, smaller camps that 

include only four or five tents and related facilities are used by 

clients for overnight visits of two to four days. The primary 

distinction between temporary base camps and primitive camps 

is the period of occupancy. The specific details of a temporary 

base camp located on refuge lands would be spelled out in the 

state land-use permit or refuge special-use permit. 

use day A period of one calendar day (24 hours), or portion thereof, for 

each entity using a resource. When employed as a measure of 

human us, it is called a visitor or visitor-use day. 

visitor contact station A staffed or unstaffed facility where the public can learn about 

the refuge and its resources. 

vision statement A concise statement of the desired future condition of the 

planning unit, based primarily on the System mission, specific 

refuge purposes, and other relevant mandates (USFWS, 602 

FW 1.6). 

visitor day See “use day.” 

wilderness An area essentially undisturbed by human activity, together 

with its naturally developed life community.
Glossary 

Alaska Peninsula and Becharof NWR Draft Conservation Plan xxiii 

Wilderness A designated Wilderness, in contrast with those areas where 

man and his own works dominate the landscape, is hereby 

recognized as an area where the earth and its community of life 

are untrammeled by man, where man himself is a visitor who 

does not remain. A Wilderness area is further defined to mean, 

in this plan, an area of undeveloped federal land retaining its 

primeval character and influence, without permanent 

improvements or human habitation, which is protected and 

managed to preserve its natural conditions and which (1) 

generally appears to have been affected primarily by the forces 

of nature, with the imprint of man’s work substantially 

unnoticeable; (2) has outstanding opportunities for solitude or a 

primitive and unconfined type of recreation; (3) has at least 

5,000 acres of land or is of sufficient size as to make practicable 

its preservation and use in an unimpaired conditions; and (4) 

may also contain ecological, geological, or other features of 

scientific, educational, scenic, or historical value (Wilderness 

Act 1964).

Wilderness Area An area designated by the United States Congress to be 

managed as part of the National Wilderness Preservation 

System (USFWS, 602 FW 1.6). 

wilderness review The process we use to determine if we should recommend 

Refuge System lands and waters to Congress for Wilderness 

designation. 

wildlife-dependent 

recreation A use of a refuge involving hunting, fishing, wildlife observation 

and photography, or environmental education and 

interpretation. These are the six priority public uses of the 

Refuge System, as established in the National Wildlife Refuge 

System Administration Act, as amended. Wildlife-dependent 

recreational uses, other than the six priority public uses, are 

those that depend on the presence of wildlife. 

References Cited 

USFWS. “Service Manual.” Accessed June 4, 2003. At 

http://policy.fws.gov/manual.html on the World Wide Web, 

produced by U.S. Fish and Wildlife Service. 

USFWS. 1992. “Cultural Resources Handbook.” Accessed June 

4, 2003, 2003. At http://www.policy.fws.gov/614fw1.html on the 

World Wide Web, produced by U.S. Fish & Wildlife 

Service. 
Glossary 

xxiv Alaska Peninsula and Becharof NWR Draft Conservation Plan 

USFWS. 2003. “Annual Report of Lands Under Control of the 

U.S. Fish and Wildlife Service (as of September 30, 

2002).” Accessed June 20, 2003. At 

http://realty.fws.gov/PDF_Files/AROL2003.pdf on the World 

Wide Web, produced by U.S. Fish and Wildlife Service, 

Division of Realty. (PDF file)